Later, however, in 1818, during the administration of Sir John Coape Sherbrooke, the offer of the Assembly was accepted by the Imperial government. Sherbrooke was an apostle of conciliation. It was he who gave the Catholic bishop of Quebec a seat in the Executive Council; and he also recommended that the speaker of the House of Assembly should be included in the Council--a recommendation which was a preliminary move in the direction of responsible government. Through Sherbrooke's instrumentality the British government now decided to allow the Lower-Canadian legislature to vote the entire revenue of the province, apart from the casual and territorial dues of the Crown and certain duties levied by Act of the Imperial parliament. Sherbrooke's intention was that the legislature should vote out of this revenue a permanent civil list to be continued during the lifetime of the sovereign. Unfortunately, however, the Assembly did not fall in with this view. It insisted, instead, on treating the civil list as an annual affair, and voting the salaries of the officials, from the governor {25} downwards, for only one year. Since this would have made every government officer completely dependent upon the pleasure of the House of Assembly, the Legislative Council promptly threw out the budget. Thus commenced a struggle which was destined to last for many years. The Assembly refused to see that its action was really an encroachment upon the sphere of the Executive; and the Executive refused to place itself at the mercy of the Assembly. The result was deadlock. During session after session the supplies were not voted. The Executive, with its control of the royal revenue, was able by one means or another to carry on the government; but the relations between the 'Bureaucrats' and the _Patriotes_ became rapidly more bitter. Papineau's attitude toward the government during this period was in harmony with that of his compatriots. It was indeed one of his characteristics, as the historian Christie has pointed out, that he seemed always 'to move with the masses rather than to lead them.' In 1812 he fought side by side with the British. As late as 1820 he publicly expressed his great admiration for the constitution of 1791 and the blessings of British rule. But in the struggles over the budget he took up ground {26} strongly opposed to the government; and, when the question became acute, he threw restraint to the winds, and played the part of a dangerous agitator.