the British self-governing Dominions, her own military organisation and has also her own postal system.  But Prussia in size, influence, and military strength is by far the most important, and for practical purposes her power preponderates over that of all the other States combined.  The real control of legislation naturally lies with the State which controls two-fifths of the votes in the Bundesrat, where legislation is initiated and can be vetoed; it is wielded by the Kaiser, as King of Prussia, and by his Imperial Chancellor, President of the Bundesrat and always a Prussian Minister.  The Imperial Chancellor, who is the only Imperial Minister, is chosen by the Kaiser and is responsible to him alone:  he countersigns all the Kaiser’s orders and edicts, and has the function, it may be added, of explaining away his indiscretions.

It is inevitable, under these circumstances, that the policy and legislation of the central government should largely reflect Prussian views and ideals.  On the other hand, the temper of the rest of Germany must always be kept in mind.  As Prince Buellow, the late Imperial Chancellor, says:  “If the Empire is governed without reference to Prussia, ill-will towards the Empire will grow in that country.  If Prussia is governed without reference to the Empire, then there is the danger that mistrust and dislike of the leading State will gain ground in non-Prussian Germany....  The art of governing in our country will always have to be directed chiefly towards maintaining the harmony between Germany and Prussia, in the spirit as well as in the letter."[1]

[Footnote 1:  Imperial Germany, pp. 191-192.]

Why should the government of Germany be such an “art”?  And why should there be any difficulty in maintaining a harmonious spirit between Prussia and non-Prussian Germany?  To answer these questions we must widen the scope of our inquiry.  So far we have considered only the growth and development of the German State.  It is now time to turn from the German State to the German people.

Sec.2. The Real Germany.—­The difficulty of establishing German Unity has lain in the fact that there have really always been two Germanies, different in history, in temper, in ideals, and in their stages of development in civilisation.  There has been Prussia, or North-Eastern Germany; and there has been the real Germany, the Germany of the South and West.  It is only since 1870, and especially within the reign of the present Kaiser, that, through education and common experience; the two have become fused into one; but even now, beneath the uniform surface of German life and public opinion, there is a great inner distinction.