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UKRAINE

‘No country is an island’: Is it time Austria abandoned neutrality?

As the war in Ukraine continues, questions are starting to surface about Austria’s defence capabilities - especially regarding Austria’s permanently neutral status. Does neutrality protect Austria - or are things in need of a shakeup?

'No country is an island': Is it time Austria abandoned neutrality?
A restaurant owner in Carinthia has controversially refused service to foreigners. Photo: Creative Commons/Mikekilo74

As a neutral country, Austria is not a member of a global military alliance and is committed to a stance of engaged neutrality. 

But Austria’s position is now being called into question following the recent publication of an open letter to Austria’s Federal President, Federal Government and National Council. 

READ MORE: Majority of Austrians reject joining NATO

The letter was initiated by co-founder of the New Austria and Liberal Forum (NEOS) and publishing manager Veit Dengler, and former Supreme Court President and ex-NEOS politician Irmgard Griss. Supporters include military and economic experts, as well as Austrian authors and former ambassadors.

Since the start of the war in Ukraine, Austria’s politicians have held the line that Austria is a neutral country and always will be.

But it remains to be seen how that will look amid changing security concerns across Europe.

Here’s what you need to know.

What was in the open letter?

The open letter called for “a serious, nationwide discussion about Austria’s future security and defence policy in light of the war in Ukraine and the adoption of a new security doctrine”.

The letter, which was published in German and English, said: “Our neutrality – interpreted very flexibly in practice – was never checked for its current expediency, but raised to the supposedly untouchable myth. 

“As an EU member and participant in the EU’s common security and defence policy, Austria is already obliged to show solidarity. Given the current threat, there needs to be a debate without blinkers.”

READ MORE: EXPLAINED: Why isn’t Austria in NATO?

Martin Senn, Professor of International relations at the University of Innsbruck and Lecturer at the Vienna School of International Studies, told The Local that he approves of the letter and that it’s time for Austria to have a discussion about defence.
 
Senn said: “It makes a very important point that the government should think hard about how Austria’s security can be maintained in the long term.
 
“Security and defence has always been a marginal issue in Austria, and it should change. In my view, it’s important for Austria to come to terms with the tensions between neutrality and solidarity in Europe. 
 
“For example, what would Austria do in the case that another EU country was attacked? This then leads to the question of what type of armed forces do we need.”

The authors of the letter called for the creation of an independent group of experts to lead a debate on the future of Austria’s security and defence policy, adding that the discussion should be open to all Austrians.

Could Austria’s neutrality be changed?

The short answer is yes, it’s possible for Austria to become a non-neutral country. But the reality is more complex.

From a Federal Government perspective, Chancellor Karl Nehammer, Foreign Minister Alexander Schallenberg (ÖVP) and Defence Minister Klaudia Tanner (ÖVP) have all recently reiterated Austria’s commitment to neutrality.

Senn is also sceptical about Austria abandoning its neutral stance any time soon, despite concerns about security in Europe.

He said: “The threshold for abandoning neutrality is high – it would need a two thirds majority in parliament and the population is in favour of neutrality.

“Politicians are in a quagmire because the population has high esteem of neutrality and so political parties won’t invest political capital to change it.” 

READ ALSO: What would an embargo on Russian oil mean for Austria?

However, if a decision was ever made to change Austria’s neutral status, it would involve a similar process to adopting neutrality.

Senn said: “The current legal interpretation holds that other countries would have to be notified but they wouldn’t have any veto power.

“Our neutrality is not an international treaty, it was installed through a national legal act and other countries were notified. Abolishing neutrality would work in the same way.”

But altering Austria’s neutrality would come down to political and public support, of which there is very little right now.

A recent survey for Austria’s APA press agency revealed only 14 percent of Austrians were in favour of joining NATO and 52 percent believe neutrality protects Austria.

What is the current situation regarding military defence in Austria?

According to the defence policy of the Austrian Armed Forces, the primary objective of the military is the defence of Austria, its people and their livelihoods on the principles of a militia system (a reserve of militarily trained people). 

Austria is also a member of the EU which is covered by Article 42.7 of the Lisbon Treaty – a clause that states all members must provide each other with aid and assistance in the event of armed aggression towards another member. 

Senn said: “Austria could participate in a mutual defence scenario, for example Austria could legally support Poland militarily if it was attacked.

“There is an article in the constitution that says Austria can participate in the common security and defence policy of Europe, which includes militarily.”

There is an exception to the Lisbon Treaty though (known as the Irish Clause) to allow neutral countries like Austria to opt out of providing military support in such a situation. 

Senn said: “Austria can remain neutral if it wants to, but it doesn’t have to. It’s a matter of political determination.”

Another aspect of Austria’s defence strategy is the country’s geographical location in Central Europe – surrounded by NATO member countries and neutral Switzerland.

Senn said: “There is no immediate conventional threat to Austria, but no country is an island and therefore we should think more about what we need to defend Austria and Europe as a whole.”

Austria’s current defence policy, which was published in 2014, states 55,000 soldiers are required to complete the objectives of the Armed Forces. This includes 12,500 soldiers listed in the ÖSS for disaster relief operations in Germany, 100 security experts and 1,100 soldiers posted on overseas missions.

A recent article in Der Standard by Veit Dengler about Austria’s neutrality said: “It is not clear what the mission and the tasks of the army are. 

“It is completely inadequately equipped for a serious defence situation like that in Ukraine. We are not mentally prepared either: we have no consensus that we are part of the alliance called the EU.”

Why is Austria not a member of NATO?

Austria’s long-standing neutrality goes back to the post-World War II years.

In 1955, when the last foreign troops left Austria, parliament adopted the constitutional law on the Neutrality of Austria, committing the country to permanent neutral status.

READ MORE: Why is Austria not a member of NATO?

The law cemented certain provisions from the Austria State Treaty signed by the government and representatives of the allied forces, which paved the way for the foreign armies to leave the country.

As per the Treaty, Austria can’t join a military alliance, allow the establishment of foreign military bases within its borders or participate in a war. However, Austria’s neutrality status was adapted after joining the EU to align with the country’s commitments to the bloc.

Austria has also actively participated in peacekeeping operations in war torn countries, particularly in the Balkans, as part of its commitment to engaged neutrality and cooperation with NATO through the Partnership for Peace (PfP) programme.

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POLITICS

EXPLAINED: Austria wants to define its fundamental culture but what is it?

Politicians from Austria's centre-right ÖVP are putting together a definition of Austria's 'guiding culture', known in German as 'Leitkultur'. What is that and why are they doing it?

EXPLAINED: Austria wants to define its fundamental culture but what is it?

When you think of Austria, your first thoughts might be of Alpine hills, Schnitzel and traditional folk music. 

Is this what politicians are referring to when they talk about Austrian ‘Leitkultur’ or ‘leading or guiding culture’? 

Many in Austria are considering this question because the coalition government is honing in on this concept. 

Austria’s Integration Minister Susanne Raab, of the centre-right Austrian People’s Party (ÖVP), has been tasked by chancellor Karl Nehammer (ÖVP) to develop a legal definition of ‘Austrian guiding culture’.

It’s part of the “Austria Plan” that Nehammer presented earlier this year when he called for a “guiding Austrian culture by 2030, which should also be reflected in law as a national cultural asset”.

READ ALSO: ‘Austria Plan’ – What are the chancellor’s new plans for the country?

Raab said it should ensure “that symbols and behaviours that contradict our fundamental values can be treated in a legally differentiated manner”.

However, this topic has been the subject of heated debate with critics accusing politicians of using it to alienate immigrants, particularly asylum seekers and refugees.There is a fear that the ‘Leitkultur’ concept goes against multiculturalism and calls on people to conform to one ‘guiding culture’ without an acceptance of other ways of life outside western culture. 

The concept is not just a talking point in Austria – it’s also been discussed heavily in neighbouring Germany for years, particularly by centre-right and far-right parties. 

How is Austria planning to define Leitkultur?

The Austrian government says it wants to define a concept of national cultural heritage in law over the next six years. 

As a first step, the Integration Minister has brought together a panel of experts who will meet on Thursday.

Under the banner “Austrian identity and guiding culture: values of coexistence”, the first meeting will be an introductory exchange, according to Raab’s office. The minister will outline her approach to the topic before the discussion, Austrian newspaper Der Standard reported.

The panel includes Katharina Pabel, a lawyer from Linz, Rainer Münz, who worked for Erste Bank and advised Jean-Claude Juncker as President of the EU Commission and Wolfgang Mazal, a professor at the Institute for Labour and Social Law at the University of Vienna.

What is Austrian ‘guiding culture’?

In an interview with Der Standard before the meeting, Mazal said the initial discussion “should serve to find a consensus in society about what is important to us and what form of coexistence we should cultivate”. He added that the ‘Leitkultur’ debate should be a “process of reflection”.

Mazal does not share the criticism of the term – in his view, it is not about placing one culture above others. Similar to the mission statement of a company, a “guiding culture” should define the “fundamental direction” of a society, he said. 

But the ÖVP’s communication has been more rigid. Secretary General Christian Stocker, for instance, recently explained in a Facebook video that Austrian identity is “what defines us”. This goes “from A to Z”, for example from brass band music to the Vienna Philharmonic Orchestra. “How we celebrate our festivals and holidays” is also part of our identity, he said. And “anyone who doesn’t want to accept all that is welcome to leave”, he made clear.

Overall, the People’s Party is focussing the debate very strongly on the topic of migration. Stocker says, for example, in the context of his comments on identity, that those “who have come to us” have done so voluntarily. “They have chosen this country and therefore they must also accept how we live in this country, what tradition and identity we have.”

In social media posts, Der Standard notes that the party states things like: “Anyone who believes that they should not shake a woman’s hand because she is ‘unclean’ must leave.” Or: “Anyone who rejects our way of life must leave!” 

Integration a key component 

Integration Minister Susanne Raab (ÖVP) told the Kronen Zeitung earlier this year that the concept was centred on integration. 

“Integration means learning the language, going to work and also accepting the values of our coexistence,” she said.

“And that is relevant because many people come to us who have been socialised completely differently. Where the culture is completely different, where women are worth less than men, where girls have no access to education and are forced into marriage or where the police are not your friend and helper, but highly corrupt. All of this is important to convey. And this is where immigrants also have to adapt.”

Raab added that it was possible for someone who did not adapt to face sanctions. 

“Yes, there will be measures that can be implemented in law, Raab told the newspaper, suggesting that could include cuts to social benefits, for example, or negative influences in the citizenship procedure or to asylum status.

The minister gave the example of when refugees come to Austria they have to take a German and values course as well as sign a declaration of integration otherwise there is a risk of having social benefits cut. The ÖVP is also currently considering further sanctions. 

Whatever the case, it is clear that the ÖVP is pushing for more integration measures in Austria, which is something they have been doing consistently. 

READ ALSO: Austrian minister wants foreigners to improve German levels to keep social benefits

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