Nor was the development of this sacramental system the only method by which the importance of the priesthood became enhanced. The whole penitential system of the Church was gradually perverted. Originally those convicted of open sin who submitted to penance were publicly readmitted to the Church after confessing their sin and making some form of atonement. People were encouraged to confess their sins to their bishop or priest even when their sins were not open and notorious. This was especially enjoined in the case of mortal sin. But it was for a long time a matter of discussion whether this confession to a priest was an indispensable preliminary to forgiveness. Peter Lombard marks another view. God alone remits or retains sins, but to the priests he assigns the power, not of forgiveness, but of declaring men to be bound or loosed from their sins. He adds that even though sinners have been forgiven by God, yet they must be loosed by the priest's judgment in the face of the Church. In this ambiguous position of the priest laymen were even entrusted with the power of hearing a confession if no priest was available. But in the twelfth century, as we have seen, confession was often reckoned among the sacraments; and at the Lateran Council Innocent III enjoined an annual confession to the parish priest. Before long the precatory form of absolution is replaced by the indicative form by which the priest declared the sinner absolved. Thomas Aquinas lays it down that "the grace which is given in the sacraments descends from the head to the members: and so he alone is minister of the sacraments in which grace is given who has a true ministry over Christ's body; and this belongs to the priest alone who can consecrate the Eucharist. And so when grace is conferred in the sacrament of penance, the priest alone is the minister of this sacrament; and so to him alone is to be made the sacramental confession which ought to be made to a minister of the Church." There was no room here for confession to laymen, although Thomas himself allows that in cases of necessity such confession has a kind of sacramental character which would be supplemented by Christ Himself as the high priest. [Sidenote: Indulgences.]