Despite being designated as the sole decision-makers, both Ci'an and Cixi were forced to rely on the Grand Council and a complex series of procedures in order to deal with affairs of state. When state documents came in, they were to be first forwarded to the Empresses Dowager, then referred back to Prince Gong and the Grand Council. Having discussed the matters, Prince Gong and his colleagues would seek the instruction of the Empresses Dowager at audiences and imperial orders would be drawn up accordingly, with drafts having to be approved by the Empresses Dowager before edicts were issued. The most important role of the Empresses Dowager during the regency was to apply their seals to edicts, a merely mechanical role in a complex bureaucracy.