Such a body was more like a congress of the representatives of European sovereigns than an English Parliament. Each member came in his own right. He might or might not speak the sentiments of his subjects, and, even if he did, he naturally preferred deciding pretty much as he pleased at home to allowing the question to be debated by an assembly of his equals. An Elector of Saxony, a Landgrave of Hesse, or an Archduke of Austria knew that taxes were levied, armies trained, temporal and spiritual wants provided for at his own court at Dresden, at Cassel, or at Vienna, and he had no wish that it should be otherwise. Nor was it easy, even when a prince had made himself so obnoxious as to call down upon himself the condemnation of his fellows, to subject him to punishment. He might, indeed, be put to the ban of the Empire, a kind of secular excommunication. But if he were powerful himself, and had powerful friends, it might be difficult to put it in execution. It would be necessary to levy war against him, and that war might not be successful. [Sidenote: § 12. Some sort of order established.] Still, at the end of the fifteenth and the beginning of the sixteenth centuries some progress was made. An Imperial Court (_Reichskammergericht_) came into existence, mainly nominated by the princes of the Empire, and authorized to pronounce judgment upon cases arising between the rulers of the various territories. In order to secure the better execution of the sentences of this court, Germany was divided into circles, in each of which the princes and cities who were entitled to a voice in the Diet of the Empire were authorized to meet together and to levy troops for the maintenance of order. [Sidenote: § 13. The three Houses of the Diet.] These princes, lay and ecclesiastical, together with the cities holding immediately from the Empire, were called the Estates of the Empire. When they met in the general Diet they voted in three houses. The first house was composed of the seven Electors, though it was only at an Imperial election that the number was complete. At all ordinary meetings for legislation, or for the dispatch of business, the king of Bohemia was excluded, and six Electors only appeared. The next house was the House of Princes, comprising all those persons, lay or ecclesiastical, who had the right of sitting in the Diet. Lastly, came the Free Imperial Cities, the only popular element in the Diet. But they were treated as decidedly inferior to the other two houses. When the Electors and the Princes had agreed upon a proposition, then and not till then it was submitted to the House of Cities. [Sidenote: § 14. The cities too weak.]