The federal ministers of Bavaria and North-Rhine Westphalia, among the economically strongest states with the highest population. Both are ruled by moderate conservatives (european standard = liberal cucktards for you US people), both want to succeed Merkel as the chancellor. This dynamic alone caused so many unnecessary discussions and wasted time during summer, simply because this guy here:
took on the role of the hardliner very early in the pandemic, which forced his competitor...
to take the opposite stance (= undermining most measures against the pandemic, blaming rising infections on Bulgarian & Romanian migrants etc). Just because it was the only way to distinguish himself in the media. Well, and probably because his one-vote majority in his parliament wouldn't let him act differently anyway, since he's in a coalition with neo-liberals.
Then we have the FMs of the densely populated city-states, like Berlin & Hamburg. They're ruled by the moderate left (literal communism for you US people). One is a doctor himself, the other won his election just before the pandemic (next election is in 4 years) and the third will step down soon.
So they're all in a comfortable position to make rather unpopular decisions.
But while the left-wing bubble is generally pro-measures, the city-states have to deal with a incredibly diverse population. Not US-level diverse, but diverse. They suffer from areas with severe poverty and have to deal with various other challenges, like a high amount of young people, migrants and/or generally "free spirited" folk. You can get your majority for closing schools, but those hit the hardest by it won't be few and they lack the resources to compensate for it. Thus even they are reluctant to act appropriately.
And just to quote someone I know personally:
"I didn't decide to study in Berlin to lock myself up...".
Now coordinating the discrepancies between the above examples is already a huge task, but it doesn't even end here!
Let me introduce the eastern federal states, with their own rather unique challenges:
Two of the FMs are moderate conservatives, the third is FAR left (I don't know if there is a US-equivalent to this...).
The common problem is not that they're left or right though, but that our version of the european populist/nazi party (AFD) is incredibly strong in those states. Up to 25% of all voters strong. Which naturally influences the other parties regardless of political compass. And just to get an idea of our homegrown populists: they are not just literal Nazis at this point, they're all out Bolsonaro/Trump level - spreading misinformation just for the sake of it. The topic doesn't even matter as long as it's anti government.
And then we have outliers in the far north of Germany, with a relatively low population density (comparable to sweden).
The pandemic was obviously a lot easier to manage due to their location and lack of neighbors with crazy infection rates, but this also meant that they always raised an eyebrow when it came to measures affecting all 16 states. They had low infection numbers, so why should they "suffer" like the others?
And while there is some truth in that, the seemingly endless discussions and bargaining lead to what Riddler described as Covid fatique. It felt a bit like children arguing on a grand stage, meanwhile people lost view of what's allowed and what isn't.
Like even with the coming lockdown (that applies to every state), I was asked by a friend how the curfew is supposed to work if her parents come to visit during christmas. Are they supposed to sleep at my friend's 2-room flat because they aren't allowed to leave for the hotel past 9PM? Should they be "done" with the festivities before nightfall?
It's shit like this that grinds people down, even if they're behind the measures in general.