The possibility of being called upon to settle this great point, and the necessity of taking speedy advantage of his enemy's weakness, brought more clearly home to William the great difficulty which had beset his reign. For the position which was necessary to enable him to engage authoritatively in the affairs of Europe, for the money required for the pay of his army, and for the subsidies by which alone the allies were kept true to their engagements, he was dependent upon Parliament. For at the Revolution the Parliament had taken upon itself the supreme authority of the nation. Yet upon that Parliament he was unable to rely; for the representative body, though conscious of its power, had not yet learnt to use it advantageously. It was that worst of all forms of supreme power, a large disorganized assembly. Well aware that, both as head of a confederacy and as a general, freedom of action was necessary for him, William had kept as far as possible the management of foreign affairs in his own hands, and had sought to win the favour of all parties by a judicious impartiality. In the main he had been well supported in his foreign policy; but faction was so rife, the increasing divergence of opinion so great, and the capricious character of the Lower House so evident, that he could take no important step with confidence. He could not answer for a year's continuance of the war spirit, nor be certain that any steps he might take with regard to peace would be acknowledged even by his own ministers. It became necessary, if possible, to introduce some order and organization into this uncertain body. It would be better to risk a formal opposition of a certain number, and be sure of unanimity in his own administration, than to be at the caprice of a popular assembly. William therefore listened to the suggestions of Sunderland, and determined to place himself entirely in the hands of the Whig party, that party to which he owed his elevation to the throne, and which was pledged to the continuation of the war. During the next two years a change in ministry was gradually carried out, which ended by the establishment in 1696 of the first united ministry in English history. It was led by the chiefs of the Whig party, of which the leaders were Somers, Halifax, Russell and Wharton (known afterwards as the Junto). [Sidenote: Party struggles.]