Leslie Massey
Austria and Switzerland are two of only a handful of European countries that are not members of NATO. Both countries have a long history of neutrality, which is enshrined in the constitution for Austria and has been a defining feature of Swiss foreign policy for centuries. While there have been recent debates in both countries about joining NATO, particularly in light of the 2022 Russian invasion of Ukraine, neither Austria nor Switzerland are currently considering NATO membership, with both countries' governments affirming their commitment to neutrality.
| Characteristics | Values |
|---|---|
| Austria's relationship with NATO | Close relationship with NATO |
| Austria's participation in NATO's Partnership for Peace | Participated since 1995 |
| Austria's participation in NATO's Euro-Atlantic Partnership Council | Participated since 1995 |
| Austria's commitment to neutrality | Committed to neutrality |
| Austria's position on joining NATO | Not considering joining NATO |
| Switzerland's relationship with NATO | Not a member of NATO |
| Switzerland's participation in NATO's Partnership for Peace | Participated since 1996 |
| Switzerland's participation in NATO's peacekeeping mission in Kosovo | Participated since 1999 |
| Switzerland's commitment to neutrality | Committed to neutrality |
| Switzerland's position on joining NATO | Not interested in joining NATO |
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What You'll Learn
Austria and Switzerland are neutral countries
Austria and Switzerland are two of only a few European countries that are not members of NATO. Austria, along with Ireland, Cyprus, and Malta, is one of the only members of the European Union that is not a member of NATO. Switzerland, meanwhile, is not even a member of the EU and thus does not participate in EU foreign or security policy. Both countries have a long history of neutrality.
Austria's neutrality is particularly tenacious as it has been enshrined in the country's constitution since 1955. The Austrian State Treaty, signed in 1955, prohibits the country from joining military alliances, hosting foreign military bases, and participating in wars. This was a result of the Soviet Union's insistence on Austrian neutrality during negotiations to end the occupation of Austria by the Allies after World War II. Despite debates and pressure to abandon neutrality and join NATO, especially after Russia's invasion of Ukraine, Austria has maintained its stance. In a 2022 government-sponsored poll, 91% of Austrians stated that neutrality was important to them personally. Austrian Chancellor Karl Nehammer has repeatedly affirmed the country's commitment to neutrality, stating, "Austria was neutral, Austria is neutral, and Austria will remain neutral."
Switzerland also maintains a strong stance on neutrality, with political scientist Heinz Gärtner stating that "not even Switzerland's neutrality is as thoroughly based in law." Switzerland traditionally avoids signing onto economic sanctions and refrains from participating in foreign conflicts. While there is a perception that Switzerland is warming up to the idea of joining NATO, it continues to uphold its neutrality.
Both countries contribute to international peacekeeping efforts. Austria actively mediates in international conflicts and contributes troops to UN peacekeeping missions, with deployments in several countries, including Kosovo, Lebanon, and Bosnia and Herzegovina. Switzerland, on the other hand, maintains a more passive form of neutrality, providing smaller contingents of soldiers to UN missions.
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Both countries are surrounded by NATO countries
Austria and Switzerland are surrounded by NATO countries. Austria is bordered by Germany and Italy, both of which are NATO members. Switzerland shares a border with Germany, Italy, France, and Austria, all of which are part of NATO except for Austria. This unique geographic position may influence their decision to remain neutral and not join NATO.
Austria and Switzerland have historically maintained a neutral stance in international relations. Austria's neutrality is enshrined in its constitution, prohibiting it from joining military alliances, hosting foreign bases, and participating in foreign conflicts. Switzerland, on the other hand, maintains a more passive form of neutrality, typically avoiding involvement in economic sanctions and refraining from membership in the European Union.
Despite their neutral positions, both countries have close relationships with NATO. Austria has formal relations with NATO through its participation in the Partnership for Peace programme and the Euro-Atlantic Partnership Council. It also contributes to United Nations peacekeeping operations and has deployments in various countries. Switzerland, while not a member of the EU, engages with NATO countries through other means.
In recent years, there have been debates in Austria about abandoning neutrality and joining NATO, especially after Russia's invasion of Ukraine. However, Austria's Chancellor, Karl Nehammer, has reaffirmed the country's commitment to neutrality. Similarly, Switzerland has not indicated any intention to depart from its neutral stance.
The decision to remain neutral or join NATO is complex for both Austria and Switzerland. Their geographic position, surrounded by NATO countries, may influence their calculations, but ultimately, each country must weigh its historical commitments, domestic public opinion, and strategic interests when determining their foreign policy stance.
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Austria has a history of armed neutrality
Austria has a long history of armed neutrality, which has been a key element of Austrian identity since 1955. The country's Declaration of Neutrality, enacted in October 1955, states that Austria will not join any military alliances or host foreign military bases. This declaration was a direct result of the country's occupation by the Soviet Union, the United States, the United Kingdom, and France between 1945 and 1955. During this time, Austria was under the control of the Allied Control Council, similar to Germany.
The Soviet Union insisted on Austrian neutrality as a condition for ending the occupation and reunifying the country. The Austrian State Treaty of May 1955, which ended the occupation, was largely based on the Moscow Memorandum signed between Austria and the Soviet Union the previous month. The treaty did not explicitly commit Austria to neutrality, but the country's parliament voluntarily enacted the Declaration of Neutrality shortly thereafter.
Austria's commitment to neutrality has been a point of contention in its relations with NATO and the European Union. Austria joined the Partnership for Peace program in 1995 and participates in NATO's Euro-Atlantic Partnership Council. However, its membership in the European Union was controversial due to its neutrality, and it only joined in 1995 along with Finland and Sweden, which had also declared their neutrality during the Cold War.
Despite recent events such as the Russian invasion of Ukraine, Austria has maintained its commitment to neutrality. In 2022, a group of politicians, diplomats, artists, and business people wrote an open letter to the Austrian government requesting a review of the country's neutrality stance. However, Austrian Chancellor Karl Nehammer affirmed the country's neutrality policy, and in 2024, Austrian Foreign Minister Alexander Schallenberg stated that Austria was not considering NATO membership.
Austria's neutrality has been criticised as self-serving and detrimental to European security, especially in the context of Russia's influence. However, it remains a deeply ingrained aspect of Austrian identity, with an opinion poll from March 2022 showing that 76% favoured neutrality compared to 18% who supported joining NATO.
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Switzerland has the world's oldest policy of military neutrality
Switzerland has the oldest policy of military neutrality in the world. The country has not participated in a foreign war since its neutrality was established by the Treaty of Paris in 1815. The Swiss have maintained their neutrality fiercely, and occasionally with force.
Switzerland's neutrality can be traced back to the defeat of the Old Swiss Confederacy at the Battle of Marignano in September 1515 or the peace treaty the Confederacy signed with France in November 1516. Prior to this, the Swiss had an expansionist foreign policy. The Napoleonic Wars, however, truly sealed Switzerland's place as a neutral nation. Switzerland was invaded by France in 1798 and later became a satellite of Napoleon Bonaparte's empire, compromising its neutrality. But after Napoleon's defeat at Waterloo, the major European powers concluded that a neutral Switzerland would serve as a valuable buffer zone between France and Austria, contributing to regional stability. During the 1815 Congress of Vienna, they signed a declaration affirming Switzerland's "perpetual neutrality" within the international community.
Switzerland maintained its impartial stance through World War I, mobilizing its army and accepting refugees but refusing to take sides militarily. The League of Nations formally recognized Swiss neutrality on February 13, 1920, and chose Geneva as its headquarters as a tribute. Switzerland joined the United Nations much later, in 2002.
Switzerland's neutrality has been questioned at times, especially regarding its role during World War II, its economic ties to the apartheid regime in South Africa, and the Crypto AG espionage case. Despite its longstanding neutrality, Switzerland maintains an army for defense purposes and requires part-time military service from males between 18 and 34. In 2018, 95% of Swiss citizens were in favor of maintaining neutrality.
Switzerland's neutrality is based on The Hague agreement principles, which include "no participation in wars, international cooperation but no membership in any military alliance, no provision of troops or weapons to warring parties, and no granting of transition rights." While Switzerland has not participated in foreign wars, it has been involved in peace-building processes worldwide and has granted asylum to political refugees, including 300,000 people during the Nazi era.
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Austria and Switzerland are members of NATO's Partnership for Peace
Austria and Switzerland are not members of NATO due to their neutrality. However, they are members of NATO's Partnership for Peace programme, which allows them to cooperate with the Alliance without becoming members. Austria has had formal relations with NATO since 1995 when it joined the Partnership for Peace programme and participates in NATO's Euro-Atlantic Partnership Council. Switzerland joined the Partnership for Peace programme even before becoming a member of the United Nations.
Austria, along with Ireland, Cyprus, and Malta, are the only members of the European Union that are not members of NATO. Austria's commitment to neutrality is enshrined in its constitution and prohibits the country from joining a military alliance, hosting foreign military bases, or participating in wars. Despite this, Austria has a close relationship with NATO and participates in United Nations peacekeeping operations, with deployments in several countries, including Kosovo, Lebanon, and Bosnia and Herzegovina.
Switzerland also has a long history of military and political neutrality, dating back to 1815 when its neutrality was granted by the Congress of Vienna. Switzerland's neutrality has given the country a special role in international relations, and it is unlikely to abandon this status. While there have been debates in Austria about joining NATO, particularly after the 2022 Russian invasion of Ukraine, Austrian chancellors have reaffirmed their commitment to neutrality, and the idea of joining NATO is not widely popular with the Austrian public.
The Partnership for Peace programme allows Austria and Switzerland to cooperate with NATO and contribute to international security while maintaining their neutrality. This partnership can be seen as a successful hedging strategy for both countries, allowing them to have a close relationship with NATO without becoming full members.
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Frequently asked questions
Austria and Switzerland are not members of NATO because they are both historically neutral countries.
Austria has had formal relations with NATO since 1995 when it joined the Partnership for Peace programme. Austria is also a member of the EU, which it joined in 1995.
Switzerland has participated in NATO's Partnership for Peace programme since 1996 and has been involved in the peacekeeping mission in Kosovo under NATO command since 1999. Switzerland is not a member of the EU but is associated with it through a series of bilateral treaties.
There has been some debate in Austria about joining NATO, particularly after the 2022 Russian invasion of Ukraine. However, Austrian Chancellor Karl Nehammer stated that the country would continue its policy of neutrality. Austrian Foreign Minister Alexander Schallenberg also said in 2024 that Austria was not considering joining NATO.
There has been some debate in Switzerland about joining NATO, especially after the war in Ukraine. While some Swiss politicians and members of the public have expressed support for increased cooperation with NATO, Switzerland's defence ministry has stated that NATO membership is not compatible with Swiss neutrality.
