The Church government became identical very soon with the state government in the Lutheran countries, and with the society government we call it “trustees in the Calvinist countries. The reason was that the hierarchy had been removed by Luther.
There is no pope, no bishops, no priests, in the technical sense. Who shall govern in the Church? Now of course first of all the ministers, but they are not sufficient; they have no power. The power comes from the princes, or from free associations with society, as we have very often in Calvinism. Therefore the princes are called by Luther the highest bishops of their realm. But they are not to interfere with the inner-religious things; they have to perform the administration the ius circa sacrum, the right around the sacred, but not into the sacred, which remains for the ministers, and every Christian.
The situation which produced this was an emergency situation. There were no bishops, no authorities, any more; but the Church needed administration and government. And so emergency bishops were created, and nobody else could be this except the electors and princes.
Out of this situation, which Luther accepted as an emergency situation, something occurred already, when it began to work, namely the state Church in Germany. The Church became more or less and I think “more” than “less” a department of the state administration, and the princes became the arbiters of the Church in all respects. This is not intentionally so, but it shows that a Church needs a political backbone. In Catholicism it was the Pope and the hierarchy; in Protestantism it was the “outstanding members of the communion” who must take over, after the bishops have disappeared either the princes, or social groups in more democratic countries, or if the princes do not take it.