54 THE BRITISH APPROACH TO POLITICS

trade had enriched the class which could keep accounts. Thus
Queen Elizabeth governed through her Privy Council, as the
group of the Crown's immediate advisers had then come to be
called. She recruited it largely from the newer merchant families,
not because she disliked the old nobility as such, but because
she required competent and loyal servants. The Privy Council
is the first effective instrument of Central Government in England.
Dismissal from it would have implied loss of Royal favour, and^
disgrace; so it was understood that membership lasted for life.
In the late iyth century, the division of the governing class into
two parties, Whig and Tory, was established., and this created
difficulties for the Privy Council. For if it appeared that Parlia-
ment preferred a Tory Ministry, and Tories were accordingly
admitted to a Privy Council which already contained Whigs,
the result was a body with constant divisions of opinion. Now a
legislative body, such as Parliament, thrives on division of
opinion; discussion is encouraged, and a final decision can be
made by majority vote. But an Executive, such as the Privy
Council was meant to be, requires unity if it is to pursue a
consistent policy and make quick decisions. If there are unbridge-
able differences, the discussion already held in Parliament will
be repeated interminably. So it became necessary to select from
the Privy Council an inner ring, probably of one party, to carry
on the Government. Charles II chose now one group, now
another, so that for each department of policy he could have
Ministers who agreed with him; and since he met them in secret,
the Privy Council as a whole could never tell who was responsible
for the advice given to the King. The idea of an Inner Council
thus became unpopular; it was believed to be an instrument of
Royal despotism. The word "Cabinet" means originally a
Council meeting in the King's private room, in secret. By the
early i8th century the plan was fairly established. It was not
recognised by the law, and the odour of a secret conclave still
clung to it; it survived because it was necessary* Some group of
men, of one mind on major matters, there must be, to do the