Liberal hopes for German unification were not met during the politically turbulent 1848-49 period. A Prussian plan for a smaller union was dropped in late 1850 after Austria threatened Prussia with war. Despite this setback, desire for some kind of German unity, either with or without Austria, grew during the 1850s and 1860s. It was no longer a notion cherished by a few, but had proponents in all social classes. An indication of this wider range of support was the change of mind about German nationalism experienced by an obscure Prussian diplomat, Otto von Bismarck. He had been an adamant opponent of German nationalism in the late 1840s. During the 1850s, however, Bismarck had concluded that Prussia would have to harness German nationalism for its own purposes if it were to thrive. He believed too that Prussia's well-being depended on wresting primacy in Germany from its traditional enemy, Austria.
In 1862 King Wilhelm I of Prussia (r. 1858-88) chose Bismarck to serve as his minister president. Descended from the Junker, Prussia's aristocratic landowning class, Bismarck hated parliamentary democracy and championed the dominance of the monarchy and aristocracy. However, gifted at judging political forces and sizing up a situation, Bismarck contended that conservatives would have to come to terms with other social groups if they were to continue to direct Prussian affairs. The king had summoned Bismarck to direct Prussia's government in the face of the Prussian parliament's refusal to pass a budget because it disagreed with army reforms desired by the king and his military advisers. Although he could not secure parliament's consent to the government's budget, Bismarck was a tactician skilled and ruthless enough to govern without parlia-ment's consent from 1862 to 1866.
As an ardent and aggressive Prussian nationalist, Bismarck had long been an opponent of Austria because both states sought primacy within the same area--Germany. Austria had been weakened by reverses abroad, including the loss of territory in Italy, and by the 1860s, because of clumsy diplomacy, had no foreign allies outside Germany. Bismarck used a diplomatic dispute to provoke Austria to declare war on Prussia in 1866. Against expectations, Prussia quickly won the Seven Weeks' War (also known as the Austro-Prussian War) against Austria and its south German allies. Bismarck imposed a lenient peace on Austria because he recognized that Prussia might later need the Austrians as allies. But he dealt harshly with the other German states that had resisted Prussia and expanded Prussian territory by annexing Hanover, Schleswig-Holstein, some smaller states, and the city of Frankfurt. The German Confederation was replaced by the North German Confederation and was furnished with both a constitution and a parliament. Austria was excluded from Germany. South German states outside the confederation--Baden, Württemberg, and Bavaria--were tied to Prussia by military alliances.
Bismarck's military and political successes were remarkable, but the first had been achieved at considerable risk, and the second were by no means complete. Luck had played a part in the decisive victory at the Battle of Königgrätz (Hradec Králóve in the present-day Czech Republic); otherwise, the war might have lasted much longer than it did. None of the larger German states had supported either Prussia's war or the formation of the North German Confederation led by Prussia. The states that formed what is often called the Third Germany, that is, Germany exclusive of Austria and Prussia, did not desire to come under the control of either of those states. None of them wished to be pulled into a war that showed little likelihood of benefiting any of them. In the Seven Weeks' War, the support they gave Austria had been lukewarm.
In 1870 Bismarck engineered another war, this time against France. The conflict would become known to history as the Franco-Prussian War. Nationalistic fervor was ignited by the promised annexation of Lorraine and Alsace, which had belonged to the Holy Roman Empire and had been seized by France in the seventeenth century. With this goal in sight, the south German states eagerly joined in the war against the country that had come to be seen as Germany's traditional enemy. Bismarck's major war aim--the voluntary entry of the south German states into a constitutional German nation-state--occurred during the patriotic frenzy generated by stunning military victories against French forces in the fall of 1870. Months before a peace treaty was signed with France in May 1871, a united Germany was established as the German Empire, and the Prussian king, Wilhelm I, was crowned its emperor in the Hall of Mirrors at Versailles.
The German Empire--often called the Second Reich to distinguish it from the First Reich, established by Charlemagne in 800--was based on two compromises. The first was between the king of Prussia and the rulers of the other German states, who agreed to accept him as the kaiser (emperor) of a united Germany, provided they could continue to rule their states largely as they had in the past. The second was the agreement among many segments of German society to accept a unified Germany based on a constitution that combined a powerful authoritarian monarchy with a weak representative body, the Reichstag, elected by universal male suffrage. No one was completely satisfied with the bargain. The kaiser had to contend with a parliament elected by the people in a secret vote. The people were represented in a parliament having limited control over the kaiser.
As had been the tradition in Prussia, the kaiser controlled foreign policy and the army through his handpicked ministers, who formed the government and prepared legislation. The government was headed by a chancellor, also selected by the kaiser, who served in this post at the kaiser's pleasure and could be dismissed by him at any time. The Bundesrat (Federal Council) represented Germany's princes. About one-third of its seats were held by Prussians. Conceived as an upper house to the Reichstag, the Bundesrat, like the Reichstag, was required to vote on legislation drawn up by the government before it became law. The Reichstag had no power to draft legislation. In addition, the government's actions were not subject to the Reichstag's approval, and the government was not drawn from the Reichstag, as is ordinarily the case in parliamentary democracies.
The government needed the approval of the Bundesrat and the Reichstag to enact legislative proposals, and the kaiser and his chancellor had many means of securing this approval. Conservative in nature, the Bundesrat was usually docile and needed little wooing. Compliant in the early years of the empire, the Reichstag, by contrast, became less so with time. The easiest means of controlling the Reichstag was to threaten it with new elections in the hope of getting a legislative body more attuned to the intentions of the government. During elections the government campaigned for the parties it favored, sometimes cynically conjuring up fears of national catastrophe if particular parties won many seats. The government also bargained with parties, granting them what they sought in exchange for votes. A last means of taming the Reichstag was to spread rumors of a possible coup d'état by the army and the repeal of the constitution and universal suffrage. This technique was used repeatedly in imperial Germany and could even frighten the conservative Bundesrat. However little many of the Reichstag members might like the empire's political order, the prospect of naked despotism pleased them even less.
Although the Reichstag did not wield real power, elections to it were hotly contested, and Bismarck and later chancellors and governments were concerned with their outcome. As more-democratic parties came to dominate in the Reichstag, governing became more difficult for the kaiser and his officials. During the later decades of the reign of Wilhelm II (r. 1888-1918), the empire's governing system experienced such difficulties that some conservatives advocated scrapping it, and democrats argued for a new, truly parliamentary system. A fear of these drastic choices and their possible effects caused Germany to muddle through with the existing system until the disaster of World War I culminated in that system's abolition.
Data as of August 1995