2005–2009: First CDU–SPD grand coalition Election On 30 May 2005, Merkel won the CDU/CSU nomination to challenge Chancellor
Gerhard Schröder of the
SPD in the
2005 federal elections. Her party began the campaign with a 21point lead over the
SPD in national opinion polls, although her personal popularity lagged behind that of the incumbent. However, the CDU/CSU campaign suffered when Merkel, having made economic competence central to the CDU's platform, confused
gross and
net income twice during a televised debate. She regained some momentum after she announced that she would appoint
Paul Kirchhof, a former judge at the German Constitutional Court and leading fiscal policy expert, as Minister of Finance. This was compounded by Merkel's proposal to increase
VAT to reduce Germany's deficit and fill the gap in revenue from a flat tax. The SPD were able to increase their support simply by pledging not to introduce flat taxes or increase VAT. The CDU's lead was down to 9 percentage points on the eve of the election, with Merkel having a significant lead in popularity based on opinion polls. On 18 September 2005, Merkel's CDU/CSU and Schröder's SPD went head-to-head in the national elections, with the CDU/CSU winning 35.2% (CDU 27.8% / CSU 7.5%) The deal was approved by both parties at party conferences on 14 November 2005. Merkel was elected Chancellor by the majority of delegates (397 to 217) in the newly assembled Bundestag on 22 November 2005, but 51 members of the governing coalition voted against her. Reports at the time indicated that the grand coalition would pursue a mix of policies, some of which differed from Merkel's political platform as leader of the opposition and candidate for Chancellor. The coalition's intent was to cut public spending whilst increasing
VAT (from 16 to 19%),
social insurance contributions and the top rate of
income tax. When announcing the coalition agreement, Merkel stated that the main aim of her government would be to reduce unemployment, and that it was this issue on which her government would be judged.
Healthcare reform Reform of the
German healthcare system was a salient issue during the 2005 election; the previous system had been criticised as inefficient and overly bureaucratic. After a significant period of negotiations, a deal was passed in 2006. While this agreement was described as having "saved the coalition government", it was also widely criticised as ineffectual. The deal also increased the tax burden on employers and their publicly insured employees. The 2006 round of reforms introduced the "health insurance duty", which establishes that individuals must be insured either through the public insurance system or through private insurance firms and accordingly cannot be uninsured. The reforms also targeted
preventive healthcare as a priority, particularly with regards to
eldercare. Merkel said there were no plans for the
German Government to do the same. The following day, Merkel stated that the government would guarantee private savings account deposits, after all. However, two days later, on 6 October 2008, it emerged that the pledge was simply a political move that would not be backed by legislation. Most other European governments eventually either raised the limits or promised to guarantee savings in full. At the time of the
Greek government-debt crisis, Germany was the largest creditor of the Greek government, giving it significant negotiating power. Merkel is often credited as having "saved the Euro", primarily due to her coordinating role in the development of debt relief policy. The austerity measures imposed on debtors such as Greece, which were a significant part of Merkel's position in the negotiations, have been criticised as overly harsh by some observers. A
Bloomberg opinion piece noted that "irresponsible borrowers can't exist without irresponsible lenders"; accordingly, "Germany's banks were Greece's enablers." In the course of the
2008 financial crisis, the Merkel cabinet increased the budget of the
Kurzarbeit programme significantly and extended the permitted duration of such contracts from 6 months to 18 months. Although similar provisions had existed previously, the Merkel cabinet's expansion of the programme was widely praised and is credited with having saved 500,000 jobs during the
2008 financial crisis.
2009–2013: CDU–FDP coalition Merkel's CDU was
re-elected in 2009 with an increased number of seats and could form a governing coalition with the
FDP. After brief negotiations, the
second Merkel cabinet was sworn in on 28 October 2009. In early 2011, Merkel's approval ratings plummeted, resulting in heavy losses in state elections for her party. An August 2011 poll found her coalition had only 36% support compared to a rival potential coalition's 51%. Notwithstanding the effects of the
2008 financial crisis, unemployment sank below 3 million unemployed people in 2011.
Abolition of conscription Following increased debate on the subject in the summer of 2010, the German government announced plans to abolish
conscription in Germany, making the a
volunteer military, in November 2010. The decision was finalised in December that year, and conscription was suspended on 1 July 2011. Although somewhat popular at the time, the decision has later come under scrutiny, particularly following to the
2022 Russian invasion of Ukraine. It has also been criticised in conjunction with Germany's financial commitments to
NATO. In 2023, 61% of Germans said that they were in favour of reestablishing conscription.
Healthcare reform Responding to a budget deficit of billion in the public healthcare system in 2009, the Merkel government passed widely unpopular healthcare reforms in 2010. The changes reduced healthcare spending in certain areas and increased employer and employee contributions to 15.5% of gross wages. The reforms also established that future contribution increases would only affect the contributions by employers, which was criticised by opposition parties and
trade unions. However, their preferred coalition partner, the FDP, failed to enter parliament for the first time since 1949, being below the minimum of 5% of second votes required to enter parliament. The CDU/CSU turned to the SPD to form the third
grand coalition in postwar German history and the second under Merkel's leadership. The
third Cabinet of Angela Merkel was sworn in on 17 December 2013. Merkel scored well in opinion polls on her handling of the recent euro crisis (69% rated her performance as good rather than poor), and her approval rating reached an all-time high of 77% in February 2012 and again in July 2014.
2015 European migrant crisis and Merkel in
Sanlúcar de Barrameda, 2018 Throughout the course of the
European migrant crisis, Merkel encouraged cooperation between EU member states, urging that Europe needs to act "as a whole". In late August 2015, at the height of the crisis, Merkel's government suspended the
Dublin Regulation, which stipulated that asylum seekers must seek asylum in the first EU country they arrive in. Merkel announced that Germany would also process asylum applications from Syrian refugees if they had come to Germany through other EU countries. That year, nearly 1.1 million asylum seekers entered Germany. Merkel coined the phrase (literally 'We can do this') around this time. Junior coalition partner and Vice Chancellor
Sigmar Gabriel said that Germany could take in 500,000 refugees annually for the next several years. German opposition to the government's admission of the new wave of migrants was strong and coupled with a rise in anti-immigration protests. Merkel insisted that Germany had the economic strength to cope with the influx of migrants and reiterated that there is no legal maximum limit on the number of migrants Germany can take. In September 2015, enthusiastic crowds across the country welcomed arriving refugees and migrants.
Horst Seehofer, leader of the
Christian Social Union in Bavaria (CSU)the sister party of Merkel's
Christian Democratic Unionand then-
Bavarian Minister President, attacked Merkel's policies. Seehofer criticised Merkel's decision to allow in migrants, saying that "[they were] in a state of mind without rules, without system and without order because of a German decision." Seehofer argued that as many as 30% of asylum seekers arriving in Germany claiming to be from Syria are in fact from other countries. He argued for a punitive reduction in EU funding for member countries that rejected mandatory refugee quotas. Meanwhile,
Yasmin Fahimi, secretary-general of the
Social Democratic Party (SPD), the junior partner of the ruling coalition, praised Merkel's policy allowing migrants in Hungary to enter Germany as "a strong signal of humanity to show that Europe's values are valid also in difficult times". In November 2015, there were talks inside the governing coalition to stop family unification for migrants for two years and to establish "Transit Zones" on the border. Additionally, there were plans to provide housing to migrants with a low likelihood of getting approved for asylum until the processing of their application. This led to increased tensions between the CSU, who were generally in favour of these measures and threatened to leave the coalition without them, and the SPD, who opposed them; Merkel agreed to the measures. The
November 2015 Paris attacks prompted a reevaluation of the German government's stance on EU migration policy. While she did not directly limit the number of immigrants, Merkel tightened asylum policy in Germany, for example through more thorough vetting of migrants with respect to internal safety and security. Half of Germans did not want her to serve a fourth term in office, with only 42% in favour of another term in office. In a poll from October that year, her approval rating was found to have risen again; 54% of Germans were found to be satisfied with the work of Merkel as Chancellor. According to another poll taken in November 2016, 59% were to found to be in favour of a renewed Chancellorship candidature in 2017. According to a poll carried out shortly after the
2016 Berlin truck attack, 56% of Germans named Merkel as a political leader they trusted to solve their country's problems. In October 2016, Merkel travelled to
Mali and
Niger. The diplomatic visit took place to discuss how their governments could improve conditions which caused people to flee those countries and how illegal migration through and from these countries could be reduced. The migrant crisis spurred right-wing electoral preferences across Germany with the Alternative for Germany (AfD) gaining 12% of the vote in the
2017 German federal election. These developments prompted debates over the reasons for increased right-wing populism in Germany. Some researchers have argued that increased right-wing preferences are a result of the European migrant crisis, particularly the increasingly common perception that refugees constitute an ethnic and cultural threat to Germany. Some observers have described Merkel's policymaking with respect to the migrant crisis as a success. In 2022, the United Nations'
High Commissioner for Refugees granted Merkel the Nansen Award for her "courage and compassion" during the crisis. However, Merkel has also faced significant criticism, particularly with regards to her policymaking early in the crisis, which some critics describe as hypocritically unilateral.
2018–2021: Third CDU–SPD grand coalition Election In the
2017 federal election, Merkel led her party to victory for the fourth time. However, both the CDU/CSU and the SPD received a significantly lower proportion of the vote than they did in 2013, and the
CDU/CSU subsequently attempted to form a coalition with the FDP and Greens. The SPD announced that they would go into the Opposition, both due to their loss of popular support and because the idea of another grand coalition was widely unpopular at the time. The FDP eventually withdrew from negotiations with the CDU/CSU, leading to a stalemate. The German President
Frank-Walter Steinmeier subsequently appealed successfully to the SPD to change their hard stance against coalition with the CDU/CSU, and the SPD agreed to a third grand coalition with the CDU/CSU. The negotiations leading up to this agreement were the longest in German post-war history, lasting almost six months. A YouGov survey published in late December 2017 found that just 36% of all respondents wanted Merkel to stay at the helm until 2021, while half of those surveyed voters called for a change at the top before the end of the legislature. The
Fourth Merkel cabinet was sworn in on 14 March 2018.
2018 government crisis As part of the newly formed government, the CSU's
Horst Seehofer took over the role of Interior Minister. Seehofer announced that he had a "master plan for faster asylum procedures, and more consistent deportations." Under Seehofer's plan, Germany would immediately reject prospective immigrants who had already been deported or were subject to an entry ban. Additionally, the police would be instructed to turn away all applicants who had previously registered elsewhere in the EU, no matter if these countries agreed to take them back. Merkel feared that unilaterally sending migrants back to neighbouring countries without seeking a multilateral European agreement could endanger the stability of the European Union. In June 2018, Seehofer issued an ultimatum to Merkel; as Interior Minister, he could unilaterally implement the policy without her support. Although he eventually agreed to cooperate with Merkel while she negotiated with other EU member countries, he went on to reject the EU agreement that she obtained. On 1 July 2018, during a meeting with party leadership, Seehofer declared his intention to resign from his position in protest. During the night of 2 July 2018, Seehofer and Merkel announced they had settled their differences and agreed to instead accept a compromise of tighter border control. As a result of the agreement, Seehofer agreed to not resign, and to negotiate bilateral agreements with the specific countries himself. Seehofer received some criticism for his stance in the crisis.
COVID-19 pandemic and Polish Prime Minister
Mateusz Morawiecki in Brussels, 24 June 2021 In the initial phases of the pandemic, Germany established a crisis team to manage Germany's containment policy and pandemic response. In late February 2020, referring to this crisis team, Merkel recommended an approach characterised by moderation and an avoidance of extreme or universal measures (). On 18 March 2020, Merkel gave a widely publicised speech on the COVID-19 pandemic, comparing its challenges to the
Second World War: The speech was well-received both nationally and internationally, receiving widespread attention and an award for "speech of the year". On 6 April 2020, Merkel stated: "In my view ... the European Union is facing the biggest test since its foundation and member states must show greater solidarity so that the bloc can emerge stronger from the economic crisis unleashed by the pandemic". Merkel has won international plaudits for her handling of the pandemic in Germany. Merkel opposed
mandatory vaccinations, instead stressing scientific literacy and education. During the German presidency of the
European Council, Merkel spearheaded negotiations for the
Next Generation EU reconstruction package.
Succession On 29 October 2018, Merkel announced that she would not seek reelection as leader of CDU at their party conference in December 2018, but intended to remain as chancellor until the
2021 German federal election was held. She stated that she did not plan to seek any political office after this. The resignations followed October setbacks for the CSU in the
Bavarian state election and for the CDU in the
Hessian state election. In August 2019, Merkel hinted that she might return to academia at the end of her term in 2021. She decided not to suggest any person as her successor as leader of the CDU. However, political observers had long considered
Annegret Kramp-Karrenbauer as Merkel's protégé groomed for succession. This view was confirmed when Kramp-Karrenbauer – widely seen as the chancellor's favourite for the post – was voted to succeed Merkel as leader of the CDU in December 2018. Kramp-Karrenbauer's elevation to
Defence Minister after
Ursula von der Leyen's departure to become
president of the European Commission also boosted her standing as Merkel's most likely candidate for succession. In 2019, media outlets speculated that Kramp-Karrenbauer might take over Merkel's position as
Chancellor sooner than planned if the current
governing coalition proved unsustainable. The possibility was neither confirmed nor denied by
the party. In February 2020, Kramp-Karrenbauer announced that she would resign as party leader of the CDU in the summer, after party members in
Thuringia defied official party lines and voted with
Alternative for Germany to
support an FDP candidate for minister-president. Kramp-Karrenbauer was succeeded by
Armin Laschet at the
2021 CDU leadership election. In the
2021 federal election, the SPD won the most votes. This necessitated long negotiations among the various parties to form a government. On 23 November 2021, a
new coalition was announced, with
Olaf Scholz nominated to succeed Merkel. Merkel continued to serve as chancellor until 8 December 2021, when Scholz was sworn in. The constituency she had held since its establishment in the German reunification was won by
Anna Kassautzki (
SPD). == Post–chancellorship (2021–present) ==