Austria's Immigration Policy: Progressive Or Restrictive?

Austria's stance on immigration is a complex and evolving issue. While the country has a long history of international migration, mobility, and ethno-cultural diversity, there are also concerns and debates surrounding immigration, particularly in recent years. According to a 2023 survey, Austria is the most anti-immigration country in the world, with 34% of respondents ranking reducing migration as a top issue for the government. This sentiment has been reflected in the rise of far-right parties, such as the Freedom Party of Austria (FPÖ), which has fueled concerns about the integration of migrants, especially Muslims. Austria's immigration policies have become more restrictive over time, with the government implementing legislative reforms and tightening asylum laws. However, the country continues to receive a significant number of immigrants and asylum seekers, and integration remains a key focus, with various measures in place to facilitate the inclusion of migrants into Austrian society.

Austria's ambivalent immigration policies

Austria has a complex and often ambivalent approach to immigration, with policies that both welcome and restrict migrants. While the country has a long history of international migration, its immigration policies have become increasingly polarised in recent years, reflecting a rightward shift in politics and widespread public concern over immigration levels.

A Country of Immigration?

Austria has been characterised by international migration, mobility and ethno-cultural diversity throughout its history. The capital, Vienna, is home to around 180 nationalities, with almost half of its residents having a foreign background. Migration is a key factor in the country's demographic makeup, and without it, Austria's population is predicted to shrink significantly in the coming decades.

However, the official stance is that Austria is not a traditional country of immigration, and recent policies reflect this ambivalence. Traditional labour migration and family reunification programs have been curtailed following public discontent over immigration levels in the early 1990s. At the same time, new integration measures have been introduced, and the country's accession to the European Union has resulted in more open borders.

Political Polarisation

Austria's immigration policies have become a highly politicised issue, with the far-right Freedom Party (FPO) and the conservative Austrian People's Party (OVP) both running on pledges to tighten asylum laws and crack down on illegal immigration. This has added to concerns about the rise of the far-right in Europe, with critics arguing that the FPO's rhetoric echoes pre-World War Two antisemitism.

In contrast, the Green Party has used the issue of immigration to sharpen its profile and mobilise potential voters, advocating for more open and inclusive policies. The country's centre parties, the Austrian People's Party (OVP) and the Social Democratic Party of Austria (SPO), have also increasingly used immigration as a campaign topic, although the SPO has been more reactive in its approach.

Impact of European Union Membership

Austria's membership of the European Union (EU) has had a significant impact on its immigration policies and demographics. Since joining the EU in 1995, immigration from other member states has increased, with citizens of neighbouring Germany forming the largest immigrant group as of 2023. EU countries have been the main source of immigration since the mid-2000s, and the free movement of people within the EU has contributed to the diversification of Austria's population.

However, Austria has also been active in the development of immigration control policies at the EU level. In response to the 2015 migration crisis, Austria, along with Germany and Sweden, was one of the main receiving countries of asylum applications in the EU. This has led to the implementation of more restrictive regulations and the introduction of measures such as quotas and caps on the number of immigrants.

Integration Measures

Despite the polarisation and restrictive policies, Austria has also introduced measures to facilitate the integration of immigrants. The National Action Plan for Integration, implemented in 2010, focuses on labour market inclusion and the acquisition of German language skills. The plan is mandatory for third-country nationals (TCNs) and includes vocational training, language courses, and values and orientation courses.

In addition, the Austrian Integration Fund (ÖIF) offers integration services and information to beneficiaries of asylum and subsidiary protection. While Austria's naturalisation process is generally restrictive, the country has also introduced provisions to facilitate the naturalisation of descendants of Nazi victims.

In conclusion, Austria's immigration policies are characterised by ambivalence, with some measures welcoming immigration and others seeking to restrict it. The country's demographic and economic needs often conflict with political and public concerns, resulting in a complex and evolving landscape of immigration policies.

The rise of the far-right in Austria

Austria's far-right has been on the rise since the 1980s, with the Freedom Party of Austria (FPÖ) gaining prominence and shaping the country's political landscape. The party's roots can be traced back to the post-World War II era, but it has evolved and adapted over time, normalising far-right ideologies and making them acceptable in Austrian society and politics.

Post-World War II Origins:

The FPÖ emerged in 1956 as the successor to the Verband der Unabhängigen (VdU), a party founded by former Nazi functionaries and SS officers in 1949 when ex-Nazis regained their right to vote. Despite its Nazi roots, the FPÖ initially presented itself as a centrist party, with its first leader, Anton Reinthaller, a former Nazi official. Over time, the party moved away from its extreme past and, under the leadership of Norbert Steger in the early 1980s, sought to establish itself as a moderate centrist liberal party.

The Rise of Jörg Haider:

In 1986, Jörg Haider became the leader of the FPÖ, marking a significant ideological shift towards right-wing populism. This change resulted in a surge of electoral support for the party. Haider's radical right-wing politics made extreme-right ideologies socially acceptable again in Austria. In the 1999 elections, the FPÖ came in second, ahead of the centre-right Austrian People's Party (ÖVP). This led to the formation of a coalition government between the FPÖ and the ÖVP, marking the first time since World War II that a western democratic government included an explicitly extreme-right party.

International Outcry and Normalisation:

The inclusion of the FPÖ in the Austrian government sparked international outcry and led to European Union sanctions politically isolating the country. However, despite this diplomatic quarantine, the far-right continued to gain traction in Austria. Over time, the mainstreaming of the far-right became less surprising, and the FPÖ was repeatedly included in governing coalitions with the centre-right. This normalisation of far-right politics and rhetoric was aided by the ÖVP, which elevated the FPÖ to governing positions and adopted some of its ideas, particularly on immigration.

Recent Developments:

In recent years, the FPÖ has continued to gain support, with Herbert Kickl becoming the leader in 2021 and further pushing the party towards the far-right. In the 2024 Austrian legislative elections, the FPÖ's support increased significantly, placing first with 29.2% of the vote. This surge in popularity has raised concerns about the direction of the country, as the FPÖ has a record of racism, anti-Semitism, and xenophobia. The party combines tough talk on immigration with criticism of Islam, promoting the idea of "remigration" and the establishment of Austria as a white ethnostate.

Austria's history of migration

Austria has a long history of migration, both emigration and immigration. In the 19th and early 20th centuries, migration within the Habsburg Empire was common, with people moving from east to west, settling in urban and industrial centres. This internal migration was driven by social changes such as industrialization, proletarianization, and urbanization.

During the same period, Austria was also a country of emigrants, with many leaving for Germany, Switzerland, Italy, and the Americas. This emigration was due in part to the depressed economic situation in Austria and political repression under the "Austro-fascist" regime. Between 1919 and 1937, over 80,000 Austrians emigrated overseas, and many more left for countries like Palestine, the Soviet Union, and Germany.

After World War II, Austria became a major receiving and transit country for refugees fleeing communist regimes in Eastern and Central Europe. About two million people found temporary shelter in Austria between 1945 and 1989, with many being granted asylum and integrating into Austrian society. During the 1950s and 1960s, Austria also began recruiting temporary workers from countries like Turkey and Yugoslavia, which led to significant numbers of these workers and their families settling in the country.

In the 1990s, Austria experienced a wave of asylum seekers and refugees from the former Yugoslavia, as well as a rising number of immigrants from Eastern Europe. In response, the Austrian government introduced a series of legislative reforms to restrict immigration and tighten asylum laws.

Today, Austria continues to receive immigrants and asylum seekers, but public sentiment towards immigration is mixed. While the country has implemented integration measures and opened its borders through EU membership, it has also curtailed traditional labour migration and family reunification programs.

The impact of migration on Austria's demographics

Austria has experienced strong immigration from other parts of Europe over the last four decades, significantly altering the composition of its population. As of 2024, there were 1,801,184 foreign citizens in Austria, making up 19.6% of the total population. In 2023, an average of 2.4 million people with a migration background lived in Austria, accounting for 26.7% of the entire population.

Historical Context

Austria was once a homogeneous country, but this has changed due to immigration trends over the past four decades. In 2001, 88.6% of Austrians were native German speakers, while the remaining 11.4% spoke various minority languages. The non-German speakers could be divided into two groups: traditional minorities with ties to territories formerly part of the Habsburg monarchy, and new minorities resulting from recent immigration.

Recent Trends

In 2023, Austria experienced a wave of migrants from Ukraine, accompanied by a spike in asylum applications from Afghanistan, India, Tunisia, and Morocco. This recent migration wave is similar to previous influxes, such as the Gastarbeiter (guest worker) policy in the 1970s, which led to migration from Turkey and Yugoslavia, and the fall of the Iron Curtain, which increased migration from Central European countries and Yugoslavia.

Economic Impact

Migration has had a positive impact on Austria's economy and labour market. It has resulted in increased aggregate consumption and investment, leading to a positive impact on GDP. However, the labour market has experienced increased unemployment rates among natives and previous migrants, particularly in specific industries, indicating competition among different groups of migrants.

Social Impact

The number of people in Austria born abroad or with foreign-born parents increased by over a third between 2015 and 2024, now accounting for around 27% of the population. This rapid change has led to concerns about the country's ability to integrate migrants, especially Muslims, with some Austrians of Muslim origin sharing these concerns.

Political Impact

The far-right Freedom Party (FPO) has capitalized on these worries, winning the 2024 election with a pledge to tighten asylum laws and crack down on illegal immigration. The FPO's rhetoric has drawn criticism for echoing pre-World War Two antisemitism, and many worry that their policies will demonise foreigners. However, supporters of the FPO argue that Muslims are free to do as they like in Austria and that the focus is on addressing the strain on state resources caused by asylum seekers.

Austria's integration measures for immigrants

National Action Plan for Integration

Austria established a National Action Plan for Integration in 2010, which continues to guide its efforts. The plan was designed by the Federal Ministry of the Interior in cooperation with relevant ministries, local authorities, researchers, and civil society organisations. It covers various topics, including language and education, employment, cultural values, health, housing, and intercultural dialogue. The plan focuses on labour market inclusion and acquiring German language skills, with mandatory participation in values and orientation courses.

Integration Agreement

The National Action Plan is implemented through a mandatory programme called the Integration Agreement. All third-country nationals (TCNs) must sign this agreement, which includes vocational training and a language course with a test on an A2 level, as well as participation in values and orientation courses. Successful completion of the first module within the first two years of residence usually results in a three-year extension of their residence permit. Completing the second module, which requires a B1 language level, allows migrants to apply for permanent residence.

Austrian Integration Fund (ÖIF)

The Austrian Integration Fund (ÖIF) is a state-run fund responsible for integration. It has nine integration centres based in provincial capitals, offering integration services and information to beneficiaries of asylum, subsidiary protection, and migrants. The ÖIF also conducts standardised integration tests to evaluate migrants' language skills, knowledge of rights and obligations, and understanding of Austrian social values.

Recognition and Assessment Act

The Recognition and Assessment Act of 2016 regulates the recognition of qualifications obtained abroad. It aims to promote labour market integration through a simplified recognition procedure, including for those without qualification documents. An online portal and counselling centres throughout Austria provide information and assistance.

Advisory Committee on Integration

Austria has a consultative body, the Advisory Committee on Integration, established in October 2010. It serves as a platform for cross-competence networking, coordination, and knowledge transfer among stakeholders involved in implementing the National Action Plan for Integration. The committee includes representatives from federal ministries, provincial governments, local authorities, UNHCR, social partners, and NGOs.

Funding for Integration Projects

Austria provides funding for migrant integration projects through EU funds such as the Asylum, Migration and Integration Fund (AMIF) and the European Social Fund Plus (ESF+). Additionally, national funds are available for service providers and stakeholders to carry out projects that enhance the integration of the migrant population.

These measures demonstrate Austria's efforts to integrate immigrants into society, promote equal opportunities, and address the challenges associated with immigration. However, critics argue that Austria's immigration policies remain restrictive and that more needs to be done to facilitate long-term integration.

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