Austrian Foreign Policy 1995–2015
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Discussion (special issue) Austrian foreign policy 1995–2015 Helmut Kramer1, * 1 Institut für Politikwissenschaft, Universität Wien, Austria * E-Mail: [email protected] Abstract During the past 20 years, Austria’s foreign policy has undergone far-reaching changes as a consequence of Austria’s mem- bership in the European Union. Austria’s entry into the European Union broadened its foreign policy agenda: it became involved in a wide range of international issues and in the economic and political positions and bargaining processes of the EU in the international system. On the other hand, EU membership placed considerable constraints on Austria’s formerly independent national foreign policy, especially on Austria’s neutrality. This article gives an overview of the development of Austrian foreign policy since 1995, analyzing the developments leading from an active foreign policy profile in the 1970s and 1980s to a more passive, reactive foreign policy after entry into the EU. The main factors responsible for this development are a general weakening of the pro-active political approach in Austria’s EU policy and in international affairs, continued cuts in the Austrian foreign service budget, and the growing impact of the trend towards renationalization and provincialisation in domestic politics. Keywords Austria, foreign policy, EU membership, renationalization, provincialisation Österreichs Außenpolitik 1995–2015 Zusammenfassung Die österreichische Außenpolitik wurde durch den EU-Beitritt Österreichs im Jahre 1995 wesentlich umgestaltet: Auf der ei- nen Seite wurde die außenpolitische Agenda Österreichs durch die Involvierung in die Positionen und Verhandlungsprozes- se der EU wesentlich ausgeweitet. Auf der anderen Seite wurde durch die Mitgliedschaft in der EU die frühere unabhängige Außenpolitik des neutralen Österreichs wesentlich eingeschränkt. In dem Aufsatz wird ein Überblick über die Entwicklung der österreichischen Außenpolitik seit 1995 gegeben, in der die Tendenz zu einer Abschwächung der früheren pro-aktiven Außen- und Vermittlungspolitik auf eine ambivalente Politik in der EU, auf die einschneidenden finanziellen Kürzungen im Bereich des diplomatischen Dienstes und der internationalen Solidarleistungen Österreichs sowie auf den gesamtgesell- schaftlichen Trend zur Renationalisierung und Provinzialisierung zurückgeführt wird. Schlüsselwörter Österreich, Außenpolitik, EU Mitgliedschaft, Renationalisierung, Provinzialisierung The author has declared that no competing interests exist. September 12, 2016 I innsbruck university press, Innsbruck OZP – Austrian Journal of Political Science I ISSN 2313-5433 I http://oezp.at/ Vol. 45, issue 2 I DOI 10.15203/ozp.1372.vol45iss2 OPEN ACCESS 50 H. Kramer: Austrian foreign policy 1995-2015 I OZP Vol. 45, Issue 2 1. Introduction its strong position in the economic sphere, together with the diplomatic skills of Austrian diplomats In this essay on the development and the changes in such as Wolfgang Petritsch and Albert Rohan in Austrian foreign policy in the period 1995-2015 Part 1 representing the EU in important functions, and the discusses the overall impact of Austria’s membership active military participation in the EU and UN peace- in the European Union (EU) in the field of Austria’s making missions in Kosovo and Bosnia-Herzegovina foreign and international policy. Part 2 gives an overview enabled Austria to play an important and respected of Austria’s difficulties in finding a steady pace and a role in EU attempts to reduce and put an end to the constructive attitude in its general foreign policy approach conflicts in this region and to initiate a process of to the EU, as well as its failure to fulfill the expectations to EU enlargement through the former communist act as mediator in the EU enlargement process in Eastern countries in Southeast Europe. Europe. Part 3 analyzes the stagnation and reduction in Austria’s entry into the EU also had a positive and the funds necessary for an effective foreign policy role, the helpful influence in enhancing Austria’s traditionally organizational crisis of the Foreign Ministry – which in active role in the UN and the opportunity to host one 2007 changed its name from Federal Ministry for Foreign of the four UN headquarters in Vienna. There were Affairs to Federal Ministry for European and International distinct advantages to participation in UN affairs as Affairs (BMEA) and then, in 2014, to Federal Ministry for a member of a political bloc which represented the Europe, Integration and International Affairs (BMEIA) – most loyal partner of the UN in matters of UN-fund- and of Austria’s diplomatic representation system as well ing as well as in the international initiatives of the UN as Austria’s dismal record in the field of development in the field of worldwide peacemaking and social and cooperation and international solidarity contributions. economic development. Part 4 discusses the Austrian government’s role in and Furthermore, Austria was supported by its EU responsibility for the general tendency to de-activate partners when it sought to obtain (against strong Austrian foreign policy as well as the impact of domestic competition from Turkey and Iceland) a seat as a non- policy on Austria’s foreign policy in a societal process of permanent member of the UN Security Council (SC) increasing provincialization and renationalization. In the in 2009 and 2010, in which role it initiated SC resolu- Conclusion (Part 5), we refer to recent attempts to reactivate tions in the field of human rights and in the defence Austrian foreign policy within the context of the structural of civilians in military conflicts. Austria was also problems posed by political and financial impediments on quite active in the field of disarmament (see Kmentt an active foreign policy profile. 2016) and in May 2011 was elected to the Human Rights Council by the UN General Assembly. That same year, Austrian diplomat Thomas Mayr-Harting 2. Austria’s foreign policy in the process of was appointed Head of the EU delegation to the UN in transformation from a nation to a member state New York (Troy 2013; BMEIA 2011). At the same time, membership in the EU placed During the past 20 years, Austria’s foreign policy (Gehler considerable constraints on Austria’s formerly in- 2005; Kramer 2006; Alecu de Flers 2012) has undergone dependent and largely autonomous national foreign far-reaching changes due to Austria’s entry into the policy. Important foreign policy and security issues European Union (EU) and its transformation from a now had to be interpreted and handled as questions nation state to a member state. This enabled Austria to and matters of “European internal policy”. Austria considerably widen its foreign policy agenda, becoming had to adapt its foreign policy, both in terms of spe- involved in a broad range of international issues and cific issues and in accordance with the obligation to participating in external economic relations and the increase coordination and consultation in diplomatic international bargaining processes of the EU on pressing relations within the framework of the EU’s Common global questions such as climate change and development Foreign and Security Policy (CFSP), a political pro- aid. As a member of the EU, Austria gained political weight cess which – it must be added – is still mainly of an in its international standing, both in Europe and in its intergovernmental nature and dominated by the par- role in global affairs and in the United Nations. Through ticular interests of the big EU member states: France, its membership of the EU, Austria gained “additional Germany and Great Britain (Alecu de Flers 2012, 1f.; opportunities to become an active international political Lehne 2015). player in the Balkan states” (Jandl 2015, 236, translation One of the most significant consequences of EU by the author), a region in which it had already been much membership affecting and constraining Austria’s involved in the early 1990s in the context of the breakdown formerly independent national foreign policy posi- and dismemberment of Yugoslavia. Austria’s geographical tions was the weakening of the political relevance proximity, intensive historical and cultural connections, and the narrowing of the scope of application of H. Kramer: Austrian foreign policy 1995-2015 I OZP Vol. 45, Issue 2 51 Austria’ s neutrality. This process of adapting Austria’s During the past 20 years, Austria’s foreign policy foreign policy and security policy to the foreign policy profile was shaped and influenced not only by Austria’s positions of the EU had already set in during the pe- EU membership and the impact of “Europeanisation”, riod before 1995, when the Austrian government began i.e., the process by which the national foreign policy of to intensify formal contacts with Brussels and with the individual EU member states is affected by a common foreign ministries of the EC/EU countries, and to adapt European foreign policy - although in some cases, in- its foreign policy positions to those of the EU. This can dividual member states can also initiate and influence be shown in the convergence of positions when Austria EU policy (Alecu de Flers/Müller 2012). Austrian for- was faced with the demands of Slovenia and Croatia for eign policy also found itself having to adapt to systemic national independence in the context of the breakup and changes in the international system, an increase of dismemberment of Ex-Yugoslavia in 1991 and 1992 and the number of international actors, and new responsi- in the United Nations, where “Austria’s voting behavior bilities for international organizations. Austria and the approximated the EC/EU majority line from the early member states of the European Union were faced with 1990s onwards” (Alecu de Flers 2012, 104f.; also Luif an increasingly crisis-ridden international system, in- 1995). cluding climate change, serious financial and economic The basis and foundation of Austria’s neutral status disturbances and the growing number of refugees from – which had since 1955 constituted the conceptual and war-torn and poor countries.