The executive power of the government was under the personal control of the Emperor, who was assisted by the Ministers of State, and so the Cabinet was originally established merely as a consultative body, within which Ministers of State engaged in discussion to ensure that their opinions were consistent with each other.
行政権は国務各大臣の輔弼により天皇が自ら行うものとされ、内閣は国務各大臣の協議と意思統一のための組織体にすぎないものとされた。