Two of Germany's most famous writers, Goethe and Schiller, identified the central aspect of most of Germany's history with their poetic lament, "Germany? But where is it? I cannot find that country." Until 1871, there was no "Germany." Instead, Europe's German-speaking territories were divided into several hundred kingdoms, principalities, duchies, bishoprics, fiefdoms and independent cities and towns.
Finding the answer to "the German question"--what form of statehood for the German speaking lands would arise, and which form could provide central Europe with peace and stability--has defined most of German history. This history of many independent polities has found continuity in the F.R.G.'s federal structure. It is also the basis for the decentralized nature of German political, economic, and cultural life that lasts to this day.
The Holy Roman Empire
Between 962 and the beginning of the 19th Century, the German territories were loosely organized into the Holy Roman Empire of the German Nation. The initially non-hereditary Emperor, elected by the many princes, dukes, and bishops of the constituent lands and confirmed by the Pope, nominally governed over a vast territory, but had very limited ability to intervene in the affairs of the hundreds of entities that made up the Empire, many of which would often wage war against each other. The Empire was never able to develop into a centralized state.
Beginning in 1517 with Martin Luther's posting of his 95 Theses on the door of the Wittenberg Castle church, the German-speaking territories bore the brunt of the pan-European struggles unleashed by the Reformation. The leaders of the German kingdoms and principalities chose sides, leading to a split of the Empire into Protestant and Catholic regions, with the Protestant strongholds mostly in the North and East, the Catholic in the South and West. The split along confessional lines also laid the groundwork for the later development of the most powerful German states--Prussia and Austria--as the Prussian Hohenzollern line adopted Protestantism and the Hapsburgs remained Catholic.
The tension culminated in the 30 Years War (1618-1648), a combination of wars within the Empire and between outside European states that were fought on German land. These wars, which ended in a rough stalemate, devastated the German people and economy, definitively strengthened the rule of the various German rulers at the cost of the (Habsburg) Emperor (though Habsburg Austria remained the dominant single German entity within the Empire), and established the continued presence of both Catholics and Protestants in German territories.
The Rise of Prussia
The 18th and 19th Centuries were marked by the rise of Prussia as the second powerful, dominant state in the German-speaking territories alongside Austria, and Austrian-Prussian rivalry became the dominant political factor in German affairs. Successive Prussian kings succeeded in modernizing, centralizing, and expanding the Prussian state, creating a modern bureaucracy and the Continent's strongest military. Despite Prussia's emphasis on militarism and authority, Prussia also became a center of the German Enlightenment and was known for its religious tolerance, with its western regions being predominantly Catholic and Jews being granted complete legal equality by 1812. After humiliating losses to Napoleon's armies, Prussia embarked on a series of administrative, military, economic, and education reforms that eventually succeeded in turning Prussia into the Continent's strongest state.
Following Napoleon's defeat, the 1814-1815 Congress of Vienna replaced the Holy Roman Empire with the German Confederation, made up of 38 independent states. A loose confederation, this construct had no common citizenship, legal system, or administrative or executive organs. It did, however, provide for a Federal Diet that met in Frankfurt--a Congress of deputies of the constituent states who would meet to discuss issues affecting the Confederation as a whole.
The Path to Unification: The Customs Union and the 1848 Revolutions
Prussia led a group of 18 German states that formed the German Customs Union in 1834, and the Prussian Thaler eventually became the common currency used in this region. The Customs Union greatly enhanced economic efficiency, and paved the way for Germany to become a single economic unit during the 19th Century's period of rapid industrialization. Austria chose to remain outside the German Customs Union, preferring instead to form its own customs union with the Hapsburg territories--a further step down the path of a unified Germany that did not include Austria.
France's 1848 February Revolution that overthrew King Louis Phillipe sparked a series of popular uprisings throughout the German states. Panicking local leaders provided several political, social, and economic concessions to the demonstrators, including agreeing to a national assembly that would discuss the constitutional form of a united Germany, individual rights, and economic order. The assembly rapidly devolved into competing factions; meanwhile, the conservative leaders of the German states reconstituted their power. When the assembly finally determined that there should be a united, federal Germany (excluding Austria) with universal male suffrage, organized as a constitutional monarchy under an Emperor--and offered that emperor title to the King of Prussia--there was no longer any interest or political reason (least of all in absolutist, powerful Prussia) for the leaders to listen. The Prussian monarch rejected the assembly's offer, and the assembly was forcefully disbanded without achieving any of the stated goals of the 1848 revolutionaries.
Nevertheless, the 1848 Revolutions did leave a lasting legacy. The factions of the ill-fated national assembly went on to develop into political parties. Certain economic and social reforms, such as the final abolition of feudal property structures, remained. The idea of German unity was firmly established. And the revolutionaries' colors--black, red, and gold--became firmly ensconced as the colors of German democratic and liberal aspirations.
Unification and Imperial Germany
German nationalism developed into an important unifying and sometimes liberalizing force during this time, though it became increasingly marked by an exclusionary, racially-based definition of nationhood that included anti-Semitic tendencies. However, eventual unification of Germany was essentially the result of Prussian expansionism rather than the victory of nationalist sentiment. Prussia's economic growth outstripped Austria's during the latter half of the 19th Century and Prussia-controlled Germany became one of Europe's industrial powerhouses. Under Chancellor Otto von Bismarck, Prussia defeated Austria (1866) and France (1870) in wars that paved the way for the formation of the German Empire under Emperor Wilhelm I in 1871. Germany became a federal state, with foreign and military policy determined at the national level, but most other policies remained the purview of the states.
Internally, Bismarck waged a struggle against Catholicism, which he viewed as an agent of Austria (ironically, this anti-Catholic move--which eventually failed--actually ended up consolidating a lasting political role for Germany's Catholics), and tried to both co-opt and repress the emerging socialist movement by passing the age's most progressive social insurance and worker protection legislation while clamping down on Socialist activities. Externally, Bismarck then moved to consolidate the stability of the new Empire, launching a string of diplomatic initiatives to form a complex web of alliances with other European powers to ensure that Germany did not become surrounded by hostile powers and avoid Germany's involvement in further wars.
However, Emperor William II disagreed vehemently with Bismarck, sacking him in 1890. Wilhelm II had ambitious aspirations for Germany, including acquisition of overseas colonies. His dynamic expansion of military power and confrontational foreign policies contributed to tensions on the continent. The fragile European balance of power, which Bismarck had helped to create, broke down in 1914. World War I and its aftermath, including the Treaty of Versailles, ended the German Empire.
The Weimar Republic and Fascism's Rise and Defeat
The postwar Weimar Republic (1919-33) was established as a broadly democratic state, but the government was severely handicapped and eventually doomed by economic problems and the rise of the political extremes. The dozens of political parties represented in the federal parliament never allowed stable government formation, creating political chaos. (This lesson led to the decision by the creators of the F.R.G. to limit parliamentary representation to parties that garner at least 5% of the vote.) The hyperinflation of 1923, the world depression that began in 1929, and the social unrest stemming from resentment toward the conditions of the Versailles Treaty worked to destroy the Weimar government.
The National Socialist (Nazi) Party, led by Adolf Hitler, stressed nationalist and racist themes while promising to put the unemployed back to work. The party blamed many of Germany's ills on the alleged influence of Jewish and non-German ethnic groups. The party also gained support in response to fears of growing communist strength. In the 1932 elections, the Nazis won a third of the vote. In a fragmented party structure, this gave the Nazis a powerful parliamentary caucus, and Hitler was asked to form a government. He quickly declined. The Republic eroded and Hitler had himself nominated as Reich Chancellor in January 1933. After President Paul von Hindenburg died in 1934, Hitler assumed that office as well.
Once in power, Hitler and his party first undermined and then abolished democratic institutions and opposition parties. The Nazi leadership immediately jailed many Jewish citizens and opposition figures and withdrew their political rights. Hitler's Nuremburg Laws subsequently deprived all of Germany's Jews of their political rights and also of their economic assets and professional licenses, foreshadowing the systematic plundering of Jewish assets throughout Nazi-occupied territory. The Nazis implemented a program of genocide, at first through incarceration and forced labor and then by establishing death camps. In a catastrophe generally known as the Holocaust or Shoah, roughly six million European Jews from Germany and Nazi-occupied countries were murdered in these death camps and in the killing fields set up behind military lines on the Eastern Front. Hitler's henchmen also carried out a campaign of ethnic extermination against Europe's Roma/Sinti and murdered thousands of homosexuals, mentally disabled people, and opposition figures.
Nazi revanchism and expansionism led to World War II, which resulted in the destruction of Germany's political and economic infrastructures and led to its division.
After Germany's unconditional surrender on May 8, 1945, the United States, the United Kingdom, the U.S.S.R. and, later, France occupied the country and assumed responsibility for its administration. The commanders in chief exercised supreme authority in their respective zones and acted in concert on questions affecting the whole country.
The United States, the United Kingdom, and the Soviet Union agreed at Potsdam in August 1945 to treat Germany as a single economic unit with some central administrative departments in a decentralized framework. However, Soviet policy turned increasingly toward dominating the part of Europe where Soviet armies were present, including eastern Germany. In 1948, the Soviets, in an attempt to abrogate agreements for Four-Power control of the city, blockaded Berlin. Until May 1949, the Allied-occupied part of Berlin was kept supplied only by an Allied airlift. The "Berlin airlift" succeeded in forcing the Soviets to accept, for the time being, the Allied role and the continuation of freedom in a portion of the city, West Berlin.
Political Developments in West Germany
The United States and the United Kingdom moved to establish a nucleus for a future German government by creating a central Economic Council for their two zones. The program later provided for a constituent assembly, an occupation statute governing relations between the Allies and the German authorities, and the political and economic merger of the French with the British and American zones. The western portion of the country became the Federal Republic of Germany.
On May 23, 1949, the Basic Law, which came to be known as the constitution of the Federal Republic of Germany, was promulgated. Konrad Adenauer became the first federal Chancellor on September 20, 1949. The next day, the occupation statute came into force, granting powers of self-government with certain exceptions.
As part of an ongoing commitment to deal with its historic responsibility, the Federal Republic of Germany took upon itself a leading role in the field of Holocaust education and support for research into this dark period of history. It has also paid out nearly 63 billion Euros as a measure of compensation to Jewish survivors and heirs of the Holocaust and other victims of Nazism, such as forced laborers from many European countries.
The F.R.G. quickly progressed toward fuller sovereignty and association with its European neighbors and the Atlantic community. The London and Paris agreements of 1954 restored full sovereignty (with some exceptions) to the F.R.G. in May 1955 and opened the way for German membership in the North Atlantic Treaty Organization (NATO) and the Western European Union (WEU).
The three Western Allies retained occupation powers in Berlin and certain responsibilities for Germany as a whole, including responsibility for the determination of Germany's eastern borders. Under the new arrangements, the Allies stationed troops within the F.R.G. for NATO defense, pursuant to stationing and status-of-forces agreements. With the exception of 45,000 French troops, Allied forces were under NATO's joint defense command. (France withdrew from NATO's military command structure in 1966.)
Political life in the F.R.G. was remarkably stable and orderly. After Adenauer's chancellorship (1949-63), Ludwig Erhard (1963-66) and Kurt Georg Kiesinger (1966-69) served as Chancellor. Between 1949 and 1966 the united caucus of the Christian Democratic Union (CDU) and Christian Social Union (CSU), either alone or with the smaller Free Democratic Party (FDP), formed the government. Kiesinger's 1966-69 "Grand Coalition" included the F.R.G.'s two largest parties, CDU/CSU and the Social Democratic Party (SPD). After the 1969 election, the SPD, headed by Willy Brandt, formed a coalition government with the FDP. Brandt resigned in May 1974, after a senior member of his staff was uncovered as an East German spy.
Helmut Schmidt (SPD) succeeded Brandt, serving as Chancellor from 1974 to 1982. Hans-Dietrich Genscher, a leading FDP official, became Vice Chancellor and Foreign Minister, a position he would hold until 1992.
In October 1982, the FDP joined forces with the CDU/CSU to make CDU Chairman Helmut Kohl the Chancellor. Following national elections in March 1983, Kohl emerged in firm control of both the government and the CDU. He served until the CDU's election defeat in 1998. In 1983, a new political party, the Greens, entered the Bundestag for the first time.
Political Developments in East Germany
In the Soviet zone, the Communist Party forced the Social Democratic Party to merge in 1946 to form the Socialist Unity Party (SED). Under Soviet direction, a constitution was drafted on May 30, 1949, and adopted on October 7 when the German Democratic Republic was proclaimed. On October 11, 1949, a SED government under Wilhelm Pieck was established. The Soviet Union and its East European allies immediately recognized the G.D.R. The United States and most other countries did not recognize the G.D.R. until a series of agreements in 1972-73.
The G.D.R. established the structures of a single-party, centralized, communist state. On July 23, 1952, the G.D.R. abolished the traditional Laender and established 14 Bezirke (districts). Formally, there existed a "National Front"--an umbrella organization nominally consisting of the SED, four other political parties controlled and directed by the SED, and the four principal mass organizations (youth, trade unions, women, and culture). However, control was clearly and solely in the hands of the SED. Balloting in G.D.R. elections was not secret. On July 17, 1953, East Germans revolted against totalitarian rule. The F.R.G. marked the bloody revolt by making the date the West German National Day, which remained until reunification.
During the 1950s, East Germans fled to the West by the millions. The Soviets made the inner German border increasingly tight, but Berlin's Four-Power status countered such restrictions. Berlin thus became an escape point for even greater numbers of East Germans. On August 13, 1961, the G.D.R. began building a wall through the center of Berlin, slowing down the flood of refugees and dividing the city. The Berlin Wall became the symbol of the East's political debility and the division of Europe.
In 1969, Chancellor Brandt announced that the F.R.G. would remain firmly rooted in the Atlantic Alliance but would intensify efforts to improve relations with Eastern Europe and the G.D.R. The F.R.G. commenced this "Ostpolitik" by negotiating nonaggression treaties with the Soviet Union, Poland, Czechoslovakia, Bulgaria, and Hungary. Based upon Brandt's policies, in 1971 the Four Powers concluded a Quadripartite Agreement on Berlin to address practical questions the division posed, without prejudice to each party's view of the city's Four Power status.
The F.R.G.'s relations with the G.D.R. posed particularly difficult questions. Though anxious to relieve serious hardships for divided families and to reduce friction, the F.R.G. under Brandt was intent on holding to its concept of "two German states in one German nation." Relations improved, however, and in September 1973, the F.R.G. and the G.D.R. were admitted to the United Nations. The two Germanys exchanged permanent representatives in 1974, and, in 1987, G.D.R. head of state Erich Honecker paid an official visit to the F.R.G.
Shortly after World War II, Berlin became the seat of the Allied Control Council, which was to have governed Germany as a whole until the conclusion of a peace settlement. In 1948, however, the Soviets refused to participate any longer in the quadripartite administration of Germany. They also refused to continue the joint administration of Berlin and drove the government elected by the people of Berlin out of its seat in the Soviet sector and installed a communist regime in its place. From then until unification, the Western Allies continued to exercise supreme authority--effective only in their sectors--through the Allied Kommandatura. To the degree compatible with the city's special status, however, they turned over control and management of city affairs to the Berlin Senat (executive) and House of Representatives, governing bodies established by constitutional process and chosen by free elections. The Allies and German authorities in the F.R.G. and West Berlin never recognized the communist city regime in East Berlin or G.D.R. authority there.
During the years of Berlin's isolation--176 kilometers (110 mi.) inside the former G.D.R.--the Western Allies encouraged a close relationship between the Government of West Berlin and that of the F.R.G. Representatives of the city participated as non-voting members in the F.R.G. parliament; appropriate West German agencies, such as the supreme administrative court, had their permanent seats in the city; and the governing mayor of Berlin took his turn as President of the Bundesrat. In addition, the Allies carefully consulted with the F.R.G. and Berlin Governments on foreign policy questions involving unification and the status of Berlin.
Between 1948 and 1990, major events such as fairs and festivals took place in West Berlin, and the F.R.G. encouraged investment in commerce by special concessionary tax legislation. The results of such efforts, combined with effective city administration and the Berliners' energy and spirit, were encouraging. Berlin's morale remained high, and its industrial production considerably surpassed its prewar level.
During the summer of 1989, rapid changes took place in the G.D.R. Pressures for political opening throughout Eastern Europe had not seemed to affect the G.D.R. regime. However, Hungary ended its border restrictions with Austria, and a growing flood of East Germans began to take advantage of this route to West Germany. Thousands of East Germans also tried to reach the West by staging sit-ins at F.R.G. diplomatic facilities in other East European capitals. The exodus generated demands within the G.D.R. for political change, and mass demonstrations in several cities--particularly in Leipzig--continued to grow. On October 7, Soviet leader Mikhail Gorbachev visited Berlin to celebrate the 40th anniversary of the establishment of the G.D.R. and urged the East German leadership to pursue reform.
On October 18, Erich Honecker resigned and was replaced by Egon Krenz. The exodus continued unabated, and pressure for political reform mounted. Finally, on November 9, the G.D.R. allowed East Germans to travel freely. Thousands poured through the Berlin Wall into the western sectors of Berlin. The Wall was opened.
On November 28, F.R.G. Chancellor Kohl outlined a 10-point plan for the peaceful unification of the two Germanys. In December, the G.D.R. Volkskammer eliminated the SED's monopoly on power. The SED changed its name to the Party of Democratic Socialism (PDS), and numerous political groups and parties formed. The communist system had been eliminated. A new Prime Minister, Hans Modrow, headed a caretaker government that shared power with the new, democratically oriented parties.
In early February 1990, Chancellor Kohl rejected the Modrow government's proposal for a unified, neutral Germany. Kohl affirmed that a unified Germany must be a member of NATO. Finally, on March 18, the first free elections were held in the G.D.R., and Lothar de Maiziere (CDU) formed a government under a policy of expeditious unification with the F.R.G. The freely elected representatives of the Volkskammer held their first session on April 5, and the G.D.R. peacefully evolved from a communist to a democratically elected government.
Four Power Control Ends
In 1990, as a necessary step for German unification and in parallel with internal German developments, the two German states and the Four Powers--the United States, U.K., France, and the Soviet Union--negotiated to end Four Power reserved rights for Berlin and Germany as a whole. These "Two-plus-Four" negotiations were mandated at the Ottawa Open Skies conference on February 13, 1990. The six foreign ministers met four times in the ensuing months in Bonn (May 5), Berlin (June 22), Paris (July 17), and Moscow (September 12). The Polish Foreign Minister participated in the part of the Paris meeting that dealt with the Polish-German borders.
Of key importance was overcoming Soviet objections to a united Germany's membership in NATO. The Alliance was already responding to the changing circumstances, and, in NATO, issued the London Declaration on a transformed NATO. On July 16, after a bilateral meeting, Gorbachev and Kohl announced an agreement in principle to permit a united Germany in NATO. This cleared the way for the signing of the "Treaty on the Final Settlement With Respect to Germany" in Moscow on September 12. In addition to terminating Four Power rights, the treaty mandated the withdrawal of all Soviet forces from Germany by the end of 1994. This made it clear that the current borders were final and definitive, and specified the right of a united Germany to belong to NATO. It also provided for the continued presence of British, French, and American troops in Berlin during the interim period of the Soviet withdrawal. In the treaty, the Germans renounced nuclear, biological, and chemical weapons and stated their intention to reduce German armed forces to 370,000 within 3 to 4 years after the Conventional Armed Forces in Europe (CFE) Treaty, signed in Paris on November 19, 1990, entered into force.
German unification could then proceed. In accordance with Article 23 of the F.R.G.'s Basic Law, the five Laender (which had been reestablished in the G.D.R.) acceded to the F.R.G. on October 3, 1990. The F.R.G. proclaimed October 3 as its new national day. On December 2, 1990, all-German elections were held for the first time since 1933.
The Final Settlement Treaty ended Berlin's special status as a separate area under Four Power control. Under the terms of the treaty between the F.R.G. and the G.D.R., Berlin became the capital of a unified Germany. The Bundestag voted in June 1991 to make Berlin the seat of government. The Government of Germany asked the Allies to maintain a military presence in Berlin until the complete withdrawal of the Western Group of Forces (ex-Soviet) from the territory of the former G.D.R. The Russian withdrawal was completed August 31, 1994. On September 8, 1994, ceremonies marked the final departure of Western Allied troops from Berlin.
In 1999, the formal seat of the federal government moved from Bonn to Berlin. Berlin also is one of the Federal Republic's 16 Laender.
Information by U.S. Department of State
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