one vote, and six _curiae_, comprising the remaining states in groups
had likewise each a single vote. The presidency of the two assemblies
was vested permanently in Austria, and the Austrian delegation
possessed in each a casting vote. Proposals were carried in the
smaller body by simple majority, but _in Plenum_ only by a two-thirds
vote. For the enactment of fundamental laws, the modification of
organic institutions, the amendment of individual rights, and the
regulation of religious affairs, it was declared by the Federal Act
that a majority vote should be insufficient, and, although it was not
expressly so stipulated, the intent was that in such cases unanimity
should be required. Early in the Diet's history, indeed, the president
was instructed solemnly to announce that the fundamental law of the
Confederation, far from being subject to revision, was to be regarded
as absolutely final.

The Confederation was, and was intended to be, only the loosest sort
of a league of sovereign powers. The party of German unity,
represented by Stein and the Liberals generally, began by assuming it
to be a _Bundesstaat_, or true federal state; but at the opening of
the first session of the Diet (November 5, 1816) the Austrian
authorities formally pronounced it a _Staatenbund_, or federation of
states, and from this ruling, according strictly with both the facts
of the situation and the intent of the founders, there was no possible
escape. The powers and functions which were vested in the
Confederation were exercised exclusively through and upon states, and
with the private individual it had no sort of direct relation, being,
in these respects, essentially similar to the federal government of
the United States under the Articles of Confederation. The function of
the Diet, in effect, came to be little more than that of registering
and promulgating the decrees of the authorities at Vienna.

*205. Constitutional Progress, 1815-1848.*--Notwithstanding these facts,
the decade which terminates with the creation of the Confederation of
1815 contributed enormously to the clearing of the way for the
establishment of modern German unity and of vigorous and efficient
national government. Among large numbers of the German people there
had been engendered a genuine desire, not only for constitutionalism
in government, but for a substantial unification of the German-speaking
world; and the increased homogeneity and prosperity of the kingdom of