Domestic concerns

From its origins in 1871, the empire was governed under the constitution designed four years earlier by Otto von Bismarck, the Prussian prime minister, for the North German Confederation. This constitution reflected the predominantly rural nature of Germany in 1867 and the authoritarian proclivities of Bismarck, who was a member of the Junker landowning elite. There were two houses: the Reichstag, to represent the people, and the Bundesrat, to represent the 25 states. The former comprised 397 members elected by universal manhood suffrage and a secret ballot. The constituencies established in 1867 and 1871 were never altered to reflect population shifts, and rural areas thus retained a vastly disproportionate share of power as urbanization progressed. In theory the Reichstag’s ability to reject any bill seemed to make it an important reservoir of power; in practice, however, the power of the lower house was circumscribed by the government’s reliance on indirect taxes and by the parliament’s willingness to approve the military budget every seven (after 1893, every five) years. Most legislative proposals were submitted to the Bundesrat first and to the Reichstag only if they were approved by the upper house. Although members of the Reichstag could question the chancellor about his policies, the legislative bodies were rarely consulted about the conduct of foreign affairs. Imperial ministers were chosen by and were responsible to the emperor rather than to the legislature.

A problem that was to plague the empire throughout its existence was the disparity between the Prussian and imperial political systems. In Prussia the lower house was elected under a restricted three-class suffrage system, an electoral law that allowed the richest 15 percent of the male population to choose approximately 85 percent of the delegates. A conservative majority was always assured in Prussia, whereas the universal manhood suffrage resulted in increasing majorities for the political center and left-wing parties in the imperial parliament. William I was both German emperor (1871–88) and king of Prussia (1861–88). Apart from two brief instances the imperial chancellor was simultaneously prime minister of Prussia. Thus, the executives had to seek majorities from two separate legislatures elected by radically different franchises. A further problem was that government ministers were generally selected from the civil service or the military. They often had little experience with parliamentary government or foreign affairs.

The constitution had been designed by Bismarck to give the chancellor and monarch primary decision-making power. Universal manhood suffrage had been proposed because of Bismarck’s belief that the rural population would vote for either the Conservative or Free Conservative parties. (Female suffrage had not been proposed because politics was considered a male preserve at the time.) The Progressives, a left-wing liberal party, were expected to do poorly in the two-thirds of Germany that was rural in 1867. Bismarck had not counted on new parties such as the Centre Party, a Roman Catholic confessional party, or the Social Democratic Party (Sozialdemokratische Partei Deutschlands; SPD), both of which began participating in imperial and Prussian elections in the early 1870s. The Centre generally received 20–25 percent of the total vote in all elections. The SPD grew from 2 seats in the first imperial election to 35 by 1890, when the SPD actually gained a plurality of votes. Bismarck termed the Centre and SPD along with the Progressives Reichsfeinde (“enemies of the empire”) because he believed that each sought in its own way to change the fundamental conservative political character of the empire.

Beginning in 1871, he launched the Kulturkampf (“cultural struggle”), a campaign in concert with German liberals against political Catholicism. Bismarck’s aim was clearly to destroy the Centre Party. Liberals saw the Roman Catholic church as politically reactionary and feared the appeal of a clerical party to the more than one-third of Germans who professed Roman Catholicism. Both Bismarck and the liberals doubted the loyalty of the Catholic population to the Prussian-centerd and, therefore, primarily Protestant nation. In Prussia the minister of ecclesiastical affairs and education, Adalbert Falk, introduced a series of bills establishing civil marriage, limiting the movement of the clergy, and dissolving religious orders. All church appointments were to be approved by the state. As a result hundreds of parishes and several bishoprics were left without incumbents. Clerical civil servants were purged from the Prussian administration.

The Kulturkampf failed to achieve its goals and, if anything, convinced the Roman Catholic minority that their fear of persecution was real and that a confessional party to represent their interests was essential. By the late 1870s Bismarck abandoned the battle as a failure. He now launched a campaign against the SPD in concert with the two conservative parties and many National Liberals. Fearing the potential of the Social Democrats in a rapidly industrializing Germany, Bismarck found a majority to outlaw the party from 1878 to 1890, although constitutionally it could not be forbidden to participate in elections. Party offices and newspapers were closed down and meetings prohibited. Many socialists fled to Switzerland and sought to keep the party alive in exile. During the 1880s Bismarck also sought to win the workers away from socialism by introducing legislation granting them modest pensions, accident insurance, and a national system of medical coverage. Like the Kulturkampf, the campaign against the SPD was a failure, and, when the 1890 elections showed enormous gains for the Reichsfeinde, Bismarck began to consider having the German princes reconvene, as in 1867, to draw up a new constitution. The new emperor, William II, saw no reason to begin his reign (1888–1918) with a potential bloodbath and asked for the 74-year-old chancellor’s resignation. Thus, Bismarck, the architect of German unity, left the scene in a humiliating fashion, believing that his creation was fatally flawed. Indeed, his policy of supporting rapid social and economic modernization while avoiding any reform of the authoritarian political system did lead to an atmosphere of persistent crisis.