Philip understood the character of his countrymen better than his father had done. A Spaniard by birth, he was, as I have more than once had occasion to remark, a Spaniard in his whole nature. His tastes, his habits, his prejudices, were all Spanish. His policy was directed solely to the aggrandisement of Spain. The distant races whom he governed were all strangers to him. With a few exceptions, Spaniards were the only persons he placed in offices of trust. His Castilian countrymen saw with pride and satisfaction that they had a native prince on the throne, who identified his own interests with theirs. They contrasted this conduct with that of his father, and requited it with a devotion such as they had shown to few of his predecessors. They not only held him in reverence, says the Venetian minister Contarini, but respected his laws, as something sacred and inviolable.[369] It was the people of the Netherlands who rose up against him. For similar reasons it fared just the opposite with Charles. His Flemish countrymen remained loyal to the last: it was his Castilian subjects who were driven to rebellion.
Though tenacious of power, Philip had not the secret consciousness of strength which enabled his father, unaided as it were, to bear up so long under the burden of empire. The habitual caution of the son made him averse to taking any step of importance without first ascertaining the opinions of others. Yet he was not willing, like his ancestor, the good Queen Isabella, to invoke the co-operation of the Cortes, and thus awaken the consciousness of power in an arm of the government which had been so long smitten with paralysis. Such an expedient was fraught with too much danger. He found a substitute in the several councils, the members of which, appointed by the crown and removable at its pleasure, were pledged to the support of the prerogative.
Under Ferdinand and Isabella there had been a complete reorganization of these councils. Their number was increased under Charles the Fifth, to suit the increased extent of the empire. It was still further enlarged by Philip.[370] Under him there were no less than eleven councils, among which may be particularly noticed those of war, of finance, of justice, and of state.[371] Of these various bodies the council of state, charged with the most important concerns of the monarchy, was held in highest consideration. The number of its members varied. At the time of which I am writing, it amounted to sixteen.[372] But the weight of the business devolved on less than half that number. It was composed of both ecclesiastics and laymen. Among the latter were some eminent jurists. A sprinkling of men of the robe, indeed, was to be found in most of the councils. Philip imitated in this the policy of Ferdinand and Isabella, who thus intended to humble the pride of the great lords, and to provide themselves with a loyal militia, whose services would be of no little advantage in maintaining the prerogative.