Austria's Nato Absence: A Question Of Neutrality And Security

Austria is not part of NATO because of its commitment to neutrality, which is enshrined in its constitution. This neutrality was established in the 1955 Austrian State Treaty, which ended the occupation of Austria by the four victorious Allied powers following World War II. The Soviet Union demanded Austrian neutrality on the model of Switzerland, and all countries with which Austria had diplomatic relations ratified the treaty. Austrian neutrality was further reinforced by its history and contemporary interests during the Cold War, when the country served as a bridge between East and West. While Austria has participated in NATO's Partnership for Peace program and Euro-Atlantic Partnership Council, public opinion and political will in the country remain firmly opposed to joining NATO, with only a small minority of political parties expressing support for NATO membership.

Austria's neutrality is enshrined in its constitution

Austria's neutrality was a key condition for the withdrawal of the four occupying powers that had ruled the country since the end of World War II. The Soviet Union, in particular, demanded Austrian neutrality, modelled on Switzerland's neutrality, as a price for their agreement to withdraw their troops. All countries with which Austria had diplomatic relations ratified the Austrian State Treaty, recognising and enforcing its neutrality.

The Declaration of Neutrality has had a significant impact on Austria's foreign policy decisions. For instance, Austria's membership in the European Union was controversial due to its commitment to neutrality. Austria eventually joined the EU in 1995, but only after the end of the Cold War and alongside two other neutral countries, Sweden and Finland. Similarly, Austria has participated in NATO's Partnership for Peace programme and the Euro-Atlantic Partnership Council, but has not sought full NATO membership.

Austrian neutrality has been a fundamental aspect of the country's self-perception and identity. For many Austrians, neutrality is associated with positive values such as sovereignty and independence. During the Cold War, Austria served as a bridge between East and West, taking in refugees from the uprisings in Hungary and Czechoslovakia. This role contributed to Vienna becoming a hub for international organisations, including the United Nations.

Despite debates and changing geopolitical landscapes, Austria has firmly upheld its neutrality. In recent years, following Russia's invasion of Ukraine, there have been renewed discussions about Austria's position, with some arguing for NATO membership. However, Austria's neutrality remains a non-starter in Austrian politics, with strong support across the political spectrum. The current chancellor, Karl Nehammer, has reaffirmed the country's commitment to neutrality, stating, "Austria was neutral, Austria is neutral, and Austria will also remain neutral."

Austrians associate neutrality with sovereignty and independence

Austria's neutrality has been a consistent feature of its foreign policy and is deeply rooted in its national identity. The concept of neutrality became integral to Austria's self-perception as an "island of bliss," a term used by Pope Paul VI to describe the country in 1971. This perception of neutrality as a positive force in international relations has persisted, even as Austria joined the European Union in 1995. While Austria has participated in NATO's Partnership for Peace programme and contributed to peacekeeping missions, it has not sought full NATO membership.

Despite debates and changing geopolitical landscapes, Austria has firmly upheld its neutrality. Austrian Chancellor Karl Nehammer emphasised this stance by stating, "Austria was neutral, Austria is neutral, and Austria will also remain neutral." This commitment to neutrality is reflected in the Austrian Constitution, which includes the Declaration of Neutrality, prohibiting the country from engaging in military alliances.

However, it is important to note that Austria's neutrality has evolved over time. While initially serving as a bridge between East and West during the Cold War, Austria's neutrality has shifted towards a more passive stance in recent years. This evolution has led to criticisms that Austria is "hiding behind the EU" and has abandoned its "active politics of neutrality." Nonetheless, Austrians continue to associate neutrality with sovereignty and independence, viewing it as a way to maintain their security and avoid being drawn into conflicts between major powers.

Austria's military is weak

Austria's neutrality is a result of its struggle to regain sovereignty after World War II, which was granted in 1955 by the Austrian State Treaty. This treaty was the outcome of years of negotiations with the Soviet Union, which had occupied the country since the end of World War II. As such, neutrality became a fundamental aspect of Austrian foreign policy, and joining NATO would violate this neutrality.

Austria's military weakness can be attributed to several factors, including:

• Lack of Cohesion: The Austrian Empire, and later the Austro-Hungarian Empire, was a multi-ethnic entity comprising various regions with differing rules and interests. This diversity made it challenging to unite towards a common military goal, especially when that goal conflicted with the interests of certain ethnic groups within the empire.
• Communication Issues: With multiple languages spoken across the empire, effective communication within the military was difficult, even at the officer level. This hindered the ability to coordinate complex military operations and respond to rapidly changing battlefield situations.
• Ineffective Leadership: While Austria did have some brilliant military leaders, such as Eugene of Savoy, nepotism often resulted in incompetent Habsburg relatives being placed in positions of power. This diluted the overall effectiveness of the military leadership and likely contributed to strategic and tactical errors.
• Technological Deficits: In the case of the Austro-Prussian War, Prussia's state-of-the-art weaponry and reloading techniques gave them a significant advantage over the Austrian army, which was using outdated equipment.
• Geopolitical Factors: Austria's proximity to powerful adversaries, such as Prussia and Napoleon's France, placed it in a challenging geopolitical position. This proximity made it difficult for Austria to avoid conflicts or gain diplomatic and territorial advantages following victories.
• Structural Dysfunction: The Austro-Hungarian Empire retained medieval structural legacies that became increasingly dysfunctional in the modern era. For example, customs barriers and a disjointed railway system hindered the efficient movement of troops and supplies, impacting their ability to project military power effectively.

In summary, while Austria did have some military successes, its overall track record was weakened by internal structural issues, ineffective leadership, and challenging geopolitical circumstances. These factors contributed to a perception of military weakness, particularly when compared to more centralized and cohesive nations like Prussia and, later, Germany.

Austria's political spectrum is divided on NATO membership

Austria's political spectrum is divided on the issue of NATO membership. The country's largest parties have historically ruled together in a "grand coalition", despite differing on more divisive issues than neutrality. The Social Democrats (SPÖ) are largely in favour of retaining Austrian neutrality, while the conservative People's Party (ÖVP) is pushing for NATO membership.

Support for NATO membership in Austria has increased due to Russia's invasion of Ukraine. Andreas Khol, a grandee of the conservative People's Party and its presidential candidate in 2016, argued in a recent op-ed that the Ukrainian case showed how “a neutral or non-aligned state stands alone when it is attacked. Only those who are part of a military alliance would be protected in the end”. Austria “must choose between NATO membership or cooperation with an EU army”, he added.

However, even in a changing Europe, Khol’s support for NATO membership remains a niche opinion. Three-quarters of Austrians support neutrality, and over 80 per cent are opposed to NATO membership. Austria's chancellor, Karl Nehammer of the People's Party, has rejected the idea of reopening Austria's neutrality, and membership is not widely popular with the Austrian public. According to a survey in May 2022, only 14% of Austrians supported joining NATO, while 75% were opposed. Another survey in March 2023 found that 21% were in favour, with 61% against.

Support for neutrality spans the political spectrum. “Neutrality has no expiration date,” Pamela Rendi-Wagner, leader of the Social Democratic Party, wrote in response to Khol, “and it has offered Austria security for 67 years.” Challenging Khol’s view that staying out of NATO leaves neutral states exposed, Rendi-Wagner argued that neutrality prevented countries like Austria from being sucked into conflicts between military alliances as the United States, Russia and China compete to preserve or expand their spheres of influence. “Neutral states do not represent a threat to great powers,” she concluded, “and that strengthens our security.”

Austria is part of NATO's Partnership for Peace

Austria has a close relationship with the North Atlantic Treaty Organization (NATO). It is one of four members of the European Union that is not a member of NATO, alongside Ireland, Cyprus, and Malta. This is due to Austria's commitment to neutrality, which was enshrined in its constitution in 1955.

However, Austria has expanded its relations with NATO and has been participating in NATO's Partnership for Peace (PfP) programme since 1995. The PfP programme allows non-member countries to cooperate with NATO on their own terms without becoming a member. Austria also participates in NATO's Euro-Atlantic Partnership Council (EAPC) and its military takes part in United Nations peacekeeping operations.

Austria's participation in the PfP programme is considered a logical consequence of its EU membership. By taking part in the PfP, Austria can be fully involved in the military aspects of the European Security and Defence Policy (ESDP). Austria's involvement in PfP is also seen as a successful hedging strategy, allowing the country to contribute to NATO missions without the burdens of membership.

Despite Austria's close relationship with NATO, the country's commitment to neutrality remains strong. Austrian Chancellor Karl Nehammer has rejected the idea of reopening the discussion around neutrality, and membership is not widely popular with the Austrian public. According to a survey in April 2023, only 21% of Austrians supported joining NATO, while 60% were opposed.

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