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1866] of Germany should be closely united to Prussia, and the southern States formed in a separate union with Bavaria at the head. He had always pointed out, even when he was at Frankfort, that Bavaria was a natural ally of Prussia. In a great war the considerable army of Bavaria would not be unimportant.

At the beginning of April Bismarck instructed Savigny, his envoy at the Diet, to propose the consideration of a reform in the Constitution. The proposal he made was quite unexpected. No details were mentioned as to changes in the relations of the Princes, but a Parliament elected by universal suffrage and direct elections was to be chosen, to help in the management of common German affairs. It is impossible to exaggerate the bewilderment and astonishment with which this proposal was greeted. Here was the man who had risen into power as the champion of monarchical government, as the enemy of Parliaments and Democracy, voluntarily taking up the extreme demand of the German Radicals. It must be remembered that universal suffrage was at this time regarded not as a mere scheme of voting,—it was a principle; it was the cardinal principle of the Revolution; it meant the sovereignty of the people. It was the basis of the French Republic of 1848, it had been incorporated in the German Constitution of 1849, and this was one of the reasons why the King of Prussia had refused then to accept that Constitution. The proposal was universally condemned. Bismarck had perhaps hoped to win the Liberals; if so, he was disappointed; their confidence could not be gained by this sudden and