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2021–2022 Dutch cabinet formation

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Expected parliamentary leaders meeting the day after the election to discuss the formation.

A process of cabinet formation took place following the 2021 Dutch general election, leading to the formation of the Fourth Rutte cabinet in 2022. The coalition consists of People's Party for Freedom and Democracy (VVD), Democrats 66 (D66), Christian Democratic Appeal (CDA) and Christian Union (CU), the same parties that formed the preceding Third Rutte cabinet. At 299 days, it was the longest formation in Dutch history.

At the start of the formation, notes from the scouts, that included the text "position Omtzigt, function elsewhere", became public. VVD leader and demissionary prime minister Mark Rutte turned out – after first denying it – to have spoken about CDA MP Pieter Omtzigt. This led to distrust of ruling with Rutte. Informateur Herman Tjeenk Willink was then instructed to look at how confidence could be restored and how a cabinet could be formed.

In the following months, informateur Mariëtte Hamer looked for a majority coalition consisting of a combination of VVD, D66, CDA, PvdA, GroenLinks (GL) and CU. However, without substantive negotiations, blockades were put up between these parties. Informateur Johan Remkes then looked for a minority coalition or extra-parliamentary cabinet, but these options were also blocked. Because of the impasse, D66 decided to lift the blockade against a majority coalition with the ChristenUnie. Led by informateurs Remkes and Wouter Koolmees, VVD, CDA, D66 and CU then negotiated. On December 15, 2021, these parties presented a coalition agreement. Under the leadership of formateur Rutte, a search was then made for ministers, who were sworn in on 10 January 2022.

Background

The third Rutte cabinet resigned in January 2021 because of a report on the Dutch childcare benefits scandal. One of the driving forces behind exposing the scandal was CDA MP Pieter Omtzigt. Omtzigt was candidate in the CDA party leader election 2020, but narrowly lost to Hugo de Jonge. Omtzigt became running mate, being placed second on the candidacy list. When De Jonge withdrew as party leader, the party board chose Wopke Hoekstra as party leader. The opposition he had encountered led to a burn-out, as a result of which Omtzigt was already at home before the elections without being replaced.

As the election of March 2021 took place during the COVID-19 pandemic, parties wanted a short cabinet formation.[1] Leader of the People's Party for Freedom and Democracy (VVD) Mark Rutte even suggested dividing the formation into two parts, with parties first collectively working on a recovery plan for the Covid crisis.[2]

During the campaign, some parties already expressed preferences for coalition partners. Christian Democratic Appeal (CDA) and VVD ruled out cooperation with the radical-right parties Party for Freedom (PVV) and Forum for Democracy (FvD). VVD explicitly indicated that it wanted to govern with CDA.[3] GroenLinks proposed that the progressive parties D66 and PvdA should join a coalition together, but both parties rejected this.[4] GroenLinks and PvdA indicated that they only wanted to join cabinet if the other party or the Socialist Party (SP) also joined. Contrary to previous elections, SP no longer ruled out cooperation with the VVD and did not impose another left-wing party in the cabinet as a condition.[5] After the appointment of party leader Esther Ouwehand, Party for the Animals (PvdD) was also open to joining a cabinet.[6] During the campaign, coalition partners D66 and Christian Union (CU) emphasized their differences regarding medical-ethical questions, making cooperation between those parties unlikely.[7]

Election results

Composition of the House of Representatives throughout the cabinet formation:
  BIJ1: 1
  Volt: 3
  Denk: 3
  Den Haan (ex-50+): 1
  GL: 8
  SP: 9
  PvdD: 6
  PvdA: 9
  D66: 24
  CU: 5
  SGP: 3
  VVD: 34
  CDA: 14
  Omtzigt (ex-CDA): 1
  BBB: 1
  JA21: 3
  FvD: 5
  Groep Van Haga (ex-FvD): 2
  Ephraim (ex-Groep Van Haga,
ex-FvD): 1
  PVV: 17
Main article: 2021 Dutch general election

After the elections the liberal parties VVD and D66 both gained seats, with D66 becoming the second largest party and VVD maintaining its position as largest party. For the first time since the 1998 Dutch general election a sitting cabinet won seats in the general election.[8] FvD gained the most seats, growing from two to eight seats.[9] PvdD was the only other sitting party that managed to grow, with one seat. Four parties (Volt, JA21, BIJ1 and Farmer–Citizen Movement (BBB)) managed to join parliament for the first time. All other parties lost or kept their seats. With 17 parties, this was the highest number of elected partiee since the 1918 Dutch general election.[10] Because of this fragmentation, a majority cabinet had to consist of at least four parties. With 28 seats, the radical-right (JA21, PVV and FVD) achieved the best result ever.[11] The traditional left parties (GroenLinks, PvdA, and SP) were smaller than ever with a combined 26 seats.[12]

Scouts Jorritsma and Ollongren

Scouts Annemarie Jorritsma (VVD) and Kajsa Ollongren (D66) receiving their assignment from President of the House Khadija Arib.

On 18 March, the expected seventeen parliamentary leaders met to discuss the formation, and to select a scout to investigate which coalitions would be possible.[13] In addition to the custom that the largest party to provides the scout, D66 insisted on a second scout from their party. Subsequently, VVD Senate leader Annemarie Jorritsma and D66 Minister of the Interior and Kingdom Relations Kajsa Ollongren were appointed as scouts.[14] On 22 and 23 March the scouts interviewed expected parliamentary leaders on their coalition preferences.[15]

Coalition preferences

Coalition preferences among voters
# EenVandaag (18 March 2021)[16] Seats
1 VVD + D66 + CDA + ChristianUnion 78
2 VVD + D66 + CDA + Volt 76
3 VVD + D66 + CDA + PvdA 82
4 VVD + PVV + CDA + FVD + JA21 77
5 VVD + D66 + PvdA + SP + GroenLinks 84
# Peil.nl (28 March 2021)[17]
Seats
1 VVD + D66 + CDA + JA21[a] 76
2 VVD + D66 + PvdA + SP + GroenLinks[b] 84
3 VVD + CDA + D66 + PVV 90
4 VVD + D66 + CDA + ChristianUnion 78
5 VVD + D66 + CDA + PvdA 82

VVD and D66 had different coalition preferences. VVD leader Mark Rutte wanted to "look seriously" at a center-right coalition with D66, CDA and JA21.[18] However, D66-leader Kaag found collaboration with JA21 "difficult to imagine" and preferred a progressive coalition, without naming parties. Collaboration with one of the left-wing progressive parties, on the other hand, was only an option for Rutte after considering CU.[19]

A number of parties were open to cabinet participation. PVV leader Geert Wilders said that a right-wing coalition of VVD, CDA, PVV, FVD and JA21 should be investigated,[20] but this was ruled out by VVD. JA21-leader Joost Eerdmans supported Rutte's wish to form a right-wing cabinet of VVD, D66, CDA and JA21.[21] Lilianne Ploumen said PvdA was open to cabinet participation, provided that SP or GroenLinks also joined.[22] GroenLinks-leader Klaver was also open to government participation in an "as progressive as possible cabinet". PvdD leader Esther Ouwehand also argued for a cabinet that was as green and progressive as possible.[23]

Most other parties were hesitant about joining a cabinet at this stage for various reasons. CDA-leader Wopke Hoekstra said he had no desire to join a "liberal block", referring to VVD and D66.[18] As the tenth political group in terms of seats, CU-leader Gert-Jan Segers considered it strange if negotiations started with CU. SP-leader Lilian Marijnissen thought that coalition participation was not obvious given the electoral defeat.[24] Although FVD leader Thierry Baudet indicated on election evening that cabinet participation was possible,[25] he no longer expected this after talking to the scouts.[24] Although there was speculation about cabinet participation by newcomer Volt, party leader Laurens Dassen was cautious about this.[26] The other groups, with three or fewer seats, all indicated that cabinet participation was not an option for them.[21]

The scouts also spoke with President of the Senate Jan Anthonie Bruijn. He indicated that a majority in the Senate was 'preferable', but added that in recent years it had become apparent that a government can still succeed in realizing its legislative agenda in the absence of such a majority. Of the proposed coalitions, only the combination of VVD, D66, CDA, PvdA and GroenLinks had a majority in the Senate.

"Position Omtzigt, function elsewhere"

The notes that were accidentally photographed including the text "positie Omtzigt, functie elders" (Template:Lang-en)

From the start, the scouts considered CDA pivotal within the formation. According to them, Omtzigt's position was a circumstance that could hinder coalition participation. They brought this up in a conversation with President of the House of Representatives Khadija Arib on 19 March. They indicated that they found the deadline of 30 March unfeasible. They thought it would be best to wait until the official results of the elections would be known on 26 March, which would show whether Omtzigt had more preference votes than party leader Hoekstra (which turned out not to be the case[27]). Jorritsma called Omtzigt's position a problem for coalition formation and 'untenable'. Arib did not agree to the request, because she thought it was inappropriate to talk about people in the scouting phase. The content of this conversation was not mentioned in the scouts' final report and only revealed a year and a half after the formation.[28]

On 25 March, Rutte and Kaag were due to hold a second meeting with the scouts separately.[29] However, after arriving at Binnenhof, where the meetings were to take place, Ollongren learned that she had tested positive for COVID-19 and had to go into quarantine.[30] On the way to her car, Ollongren's notes about the formation were photographed by an ANP photographer. Among other things, it read: "position Omtzigt, function elsewhere" (Template:Lang-nl).[31] An hour and a half after the notes were leaked, Jorritsma and Ollongren resigned as scouts.[32]

Debate about leaked notes

Several party leaders insisted on a debate about the leaked notes.[33] Also on behalf of Kaag, Rutte indicated that same day that neither of them had said anything about Omtzigt in their conversations. In the same interview, Rutte indicated that the scouts could not be summoned for debate, because they had already resigned.[34] Arib therefore asked Jorritsma and Ollongren as private persons to explain the notes, to which both agreed.[35]

Just before the debate on the 1 April, it appeared from the published interview reports that Rutte had spoken about Omtzigt, specifically about a possible ministerial position. Rutte indicated that he had no memory of this. During this debate it also emerged that Rutte had heard "via-via" as early as 7.30 in the morning, a few hours before the other parliamentary leaders, that the notes probably stated that he had spoken about Omtzigt. During the debate, Rutte refused to reveal who had notified him.[36] A motion of no confidence against Rutte as prime minister was rejected along the lines of the demissionary cabinet (77 against, 72 in favour).[37][38] A motion of censure against Rutte as parliamentary leader, on the other hand, was supported by all parties except the VVD.[39]

After the debate and the vote, SP and CU ruled out cooperation with VVD as long as Rutte was in charge.[40] The youth parties of D66, CDA, PvdA, PvdD, GL and DENK encouraged their parent parties to do the same.[41] Polls immediately after the debate also showed that 60% of voters did not want their party to enter into a coalition with VVD led by Rutte.[42][43]

Scouts Van Ark and Koolmees

Scouts Tamara van Ark (VVD) and Wouter Koolmees (D66) receiving their assignment from President of the House Khadija Arib.

After Ollongren and Jorritsma resigned, the ministers Tamara van Ark (VVD) and Wouter Koolmees (D66) were appointed as scouts on 25 March.[44] At the request of House of Representatives, they delayed meetings until after the debate with the scouts who had resigned. During this debate, however, the House passed a motion to request a new independent scout.[45] A day later on 2 April, Koolmees and Van Ark officially resigned.[46]

Informateur Herman Tjeenk Willink (PvdA) receiving his assignment from President of the House Vera Bergkamp (who succeeded Arib in that role on 7 April)

Herman Tjeenk Willink was appointed informateur for three weeks on 6 April, a role he had fulfilled five times before.[47] In the first week he held talks with the parliamentary leaders, this time the smaller parties first.[48] As a period of rest, he did not invite parliamentary leaders in the second week, but among others Nationale Ombudsman Reinier van Zutphen [nl] and chair of the Social and Economic Council Mariëtte Hamer.[49] In the weekend, Segers retracted his exclusion of cooperation with Rutte, but nevertheless preferred opposition.[50] In the invitation to parliamentary leaders for meetings in the third week, Tjeenk Willink indicated that more time had to be taken for the formation, but that a recovery plan for the corona crisis had to be worked out quickly.[51] Farid Azarkan (DENK), Wilders and Eerdmans were critical of this approach, which no longer was about the (lack of) trust in Rutte.[52]

Mutual trust was again under pressure after, according to RTL Nieuws, a Council of Ministers decided at the end of 2019 to deliberately provide the House of Representatives with incomplete information about the childcare benefits scandal.[53] Parliamentary leaders Rutte, Kaag and Hoekstra had attended the Council of Ministers as ministers.[54] Rutte indicated that "nothing inappropriate" had happened and the Council of Ministers decided to release the minutes.[55] During the debate on 29 April, the demissionary cabinet survived a motion of no confidence.[56]

Tjeenk Willink had decided to wait until after this debate to present his final report, which he handed over on 30 April. In his report he indicated that the substantive formation could start.[57][58] According to Tjeenk Willink, only BIJ1, PVV and SP explicitly ruled out governing with Rutte.[59] Polls published around the time of the debate with Tjeenk Willink on 12 May also showed that fewer voters ruled out a coalition with Rutte.[60][61]

Informateur Hamer

Informateur Mariëtte Hamer (PvdA) receiving her assignment from President of the House Vera Bergkamp

Scouting

After the debate with Tjeenk Willink on 12 May, SER-chairman Mariëtte Hamer was nominated as informateur by Kaag and Rutte, which was approved by the House of Representatives.[62] Her task was to first work towards recovery and transition policy after the corona crisis. Only after that, according to the motion, did she have to look for a coalition to form a government.[63]

Like her predecessors, she invited the - after a split 18 - parliamentary leaders for a meeting on 17 and 18 May. Although the discussions were largely substantive, they were also asked about coalition preferences.[64] Kaag expressed for the first time a preference for a specific coalition, consisting of VVD, CDA, D66, PvdA and GL.[65]

Between the discussions with the group leaders, Hamer had discussions with a total of 28 representatives on specific topics. These included youth organisations, representatives of the cultural sector and mayors.[66][67][68]

In the last week of her assignment, Hamer focused on the search for a coalition.[69] That week, Hamer received the parliamentary leaders of VVD, D66, CDA, PvdA, GL and CU in varying combinations. Hoekstra reacted reluctantly to Kaag's coalition preference for VVD, D66 and CDA, supplemented by two left-wing parties PvdA and GL.[70] Voters of VVD and CDA also reacted negatively to this coalition in opinion polls.[71][72] Ploumen and Klaver, however, repeated that they would only join a cabinet together.[70] The other option discussed, continuation of the sitting coalition, was held off by Segers.[73] At the end of the week, Hamer indicated that she needed more time than the original 6 June deadline. She said there were not many substantive differences, but the parties nevertheless did not want to work together in a cabinet.[74]

The following week, Hamer brought the conflicting parties together again, but again this did not lead to a possible coalition.[75] On 10 June, an internal document was leaked in which Omtzigt criticized his party, saying he felt unsafe.[76][77] As a result of the leak, Omtzigt indicated two days later that he would leave the CDA and continue as an independent MP.[78] The coalitions of VVD, D66 and CDA, supplemented by JA21 or Volt, previously mentioned by Hoekstra, would therefore no longer have a majority.[79] At the end of that week, Hamer concluded that the formation was at an impasse. During a joint conversation with VVD, D66, CDA, PvdA, GL and CU, she urged the parties to come to a breakthrough during the weekend.[80]

When the impasse was not broken after this weekend, Hamer suggested that Kaag and Rutte write the basis of a coalition agreement together, which other parties could then join at a later stage. On 22 June she presented her final report with that recommendation.[81]

Start of coalition agreement between VVD and D66

During the debate on Hamer's report on 23 June, the House agreed to her proposal. In the following weeks, representatives of VVD and D66, led by Hamer, negotiated in silence. VVD MPs Sophie Hermans and Mark Harbers negotiated with their D66 colleagues Rob Jetten and Steven van Weyenberg.[82]

GroenLinks MPs Corinne Ellemeet en Jesse Klaver at a meeting with members, discussing the cooperation with the Labour Party.

On 17 August, the document was shared with CDA, PvdA, GL and CU. A day before the document was shared, Kaag indicated in the Algemeen Dagblad that she was still against coalition with CU.[83] On 20 August, Ploumen and Klaver announced that they wanted to join as one delegation during the cabinet negotiations.[84] At party meetings a week later, members supported this approach and governing with VVD was not ruled out either.[85] However, VVD and CDA indicated that this cooperation was insufficient reason to negotiate with the two parties.[86]

On 2 September, Hamer presented her final report.[87] In the report she recommended that a new informateur investigates a minority coalition, for which she made several proposals. The House debated the report on 7 September.

Informateur Remkes

During the last debate with Hamer, a VVD motion was passed to appoint Johan Remkes as informateur. His assignment was to explore a minority coalition, in line with the recommendation of Hamer.[88]

On 15 September, the House of Representatives held a debate on the evacuation from Afghanistan. During the debate, motions of censure were tabled against the Minister of Foreign Affairs Sigrid Kaag and the Minister of Defense Ank Bijleveld (CDA). These were supported by the entire opposition and eventually also by CU. Kaag concluded that she therefore had to resign but remained on as party leader and negotiator for the formation. After initially staying on, Bijleveld also resigned the next day under political pressure. From 18 to 19 September, the negotiators from VVD, D66 and CDA met at the De Zwaluwenberg estate in Hilversum to talk with Remkes about the formation.[89] However, this did not lead to a breakthrough, partly because of the events the week before.[90]

The formation was officially halted from 20–26 September due to Prinsjesdag. During this period, the VVD and CDA jointly wrote a draft coalition agreement, dated 26 September. The goal of this draft was to convince D66 to form a minority government with them. According to the two parties, this was at the initiative of Remkes, while Remkes said it was on their own initiative. The existence and content of this document only became known after Segers left it on a train and it ended up at de Volkskrant in November.[91] However, on September 26, Kaag said she was willing to "lift our political blockade", referring to the ChristianUnion.[92] A day later, the negotiators from VVD, CDA and D66 met with Remkes for more than ten hours. Remkes concluded from this that there was no possibility for a minority cabinet, and therefore decided to investigate the possibilities for an extraparliamentary cabinet.[93]

Sigrid Kaag, accompanied by Rob Jetten, announcing on 30 September that D66 is willing to negotiate with ChristianUnion.

On 29 September, discussions were held with VVD, D66, CDA, PvdA, GroenLinks, ChristianUnion, SGP, Volt and Liane den Haan about an extra-parliamentary cabinet. This option did not receive sufficient support. After the formation Segers learned that VVD and CDA around that time were considering entering into discussions with PvdA and GroenLinks.[94] However, D66 decided to lift the blockade against the coalition with ChristianUnion in order to prevent new elections. Remkes presented his report the following day, in which he advised starting negotiations between VVD, D66, CDA and ChristianUnion.

Informateurs Remkes and Koolmees

President of the House Vera Bergkamp (middle) receives report from informateurs Wouter Koolmees (left) and Johan Remkes (right).

On 5 October, the House of Representatives held a debate on Remkes' report. During the debate, a motion was passed to appoint Johan Remkes and Wouter Koolmees as informateurs. For the duration of the formation, Koolmees relinquished his duties as Minister of Social Affairs and Employment, but did not resign.[95] The substantive negotiations between the parties mainly took place between Sophie Hermans (VVD), Rob Jetten (D66), Pieter Heerma (CDA) and Carola Schouten (CU).

Presentation of agreement by Gert-Jan Segers (CU), Sigrid Kaag (D66), Mark Rutte (VVD) and Wopke Hoekstra (CDA).

On 13 December, the spokesman for the cabinet formation announced that they had reached a negotiator's agreement. That document was then sent to the four parliamentary groups.[96] After their approval, the agreement was presented on 15 December.[97]

Formateur Rutte

Formateur Mark Rutte (VVD) receives assignment from President of the House Vera Berkamp

After the debate about the coalition agreement and the report of informateurs Koolmees and Remkes, a motion was passed to appoint Rutte as formateur.[98] The cabinet posts and portfolio distribution were determined with the other party leaders. The party leaders then nominated cabinet members. These were checked by, among others, the General Intelligence and Security Service and the Tax and Customs Administration. According to De Telegraaf, none of the nominated cabinet members were dropped after the checks. From January 3, Rutte held talks with the candidate ministers.

During the search for cabinet members, the parties aimed for fifty percent women.[99] In the end, ten of the twenty ministers were women, the highest proportion until then, and four of the nine State Secretaries. A cabinet has also never had so many ministers with a migration background.[c] Franc Weerwind was also the first black minister since 1905.[100]

Following the talks, the nominated cabinet members met on 8 January 2022 for the constitutive deliberation (Template:Lang-nl). Afterwards, Rutte presented his final report to the President of the House. On January 10, 2022, Fourth Rutte cabinet was sworn in.[101]

Aftermath

The government policy statement was made in the House of Representatives on 18 January. A vote of no confidence, tabled during the ensuing debate, was supported only by PVV and FVD. A month later, the government policy statement was made in the Senate. The vote of no confidence there was only supported by the PVV and the Otten faction. The fact that the coalition did not have a majority in the Senate immediately turned out to be a problem when the opposition passed motions against parts of the coalition agreement.[102]

President of the House Vera Bergkamp had an evaluation carried out under the chairmanship of Professor Carla van Baalen [nl]. This led to eleven recommendations, including the introduction of deadlines for informateurs, observing the confidentiality of the formation interviews, keeping the exploratory phase "small" and clarifying the role of the House of Representatives in directing cabinet formations.[103]

The formation – and particularly its length – was one of the causes of declining public confidence in politics according to The Netherlands Institute for Social Research.[104]

Notes

  1. ^ Ranked sixth out of ten for D66-voters.
  2. ^ Ranked last out of ten for VVD-voters.
  3. ^ Dilan Yeşilgöz-Zegerius, Franc Weerwind and Gunay Uslu.

Sources

  • Van Baalen, Carla; Van Kessel, Alexander; Bovend'Eert, Paul; Van Twist, Mark (23 February 2023). Evaluatie kabinetsformatie 2021/22 [Evaluation cabinet formation 2021/22] (pdf) (in Dutch). Centrum voor Parlementaire Geschiedenis. Retrieved 23 February 2023.

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