A Service of Leibniz-Informationszentrum econstor Wirtschaft Leibniz Information Centre Make Your Publications Visible. zbw for Economics Ankenman, Kristine Sue Working Paper Austrian Neutrality: Setting the Agenda Wismarer Diskussionspapiere, No. 13/2006 Provided in Cooperation with: Hochschule Wismar, Wismar Business School Suggested Citation: Ankenman, Kristine Sue (2006) : Austrian Neutrality: Setting the Agenda, Wismarer Diskussionspapiere, No. 13/2006, Hochschule Wismar, Fachbereich Wirtschaft, Wismar This Version is available at: http://hdl.handle.net/10419/23345 Standard-Nutzungsbedingungen: Terms of use: Die Dokumente auf EconStor dürfen zu eigenen wissenschaftlichen Documents in EconStor may be saved and copied for your Zwecken und zum Privatgebrauch gespeichert und kopiert werden. personal and scholarly purposes. 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Sofern die Verfasser die Dokumente unter Open-Content-Lizenzen (insbesondere CC-Lizenzen) zur Verfügung gestellt haben sollten, If the documents have been made available under an Open gelten abweichend von diesen Nutzungsbedingungen die in der dort Content Licence (especially Creative Commons Licences), you genannten Lizenz gewährten Nutzungsrechte. may exercise further usage rights as specified in the indicated licence. www.econstor.eu Fachbereich Wirtschaft Faculty of Business Kristine Sue Ankenman Austrian Neutrality: Setting the Agenda Heft 13 / 2006 W DP Wismarer Diskussionspapiere / Wismar Discussion Papers Der Fachbereich Wirtschaft der Hochschule Wismar, University of Technology, Busi- ness and Design bietet die Präsenzstudiengänge Betriebswirtschaft, Management so- zialer Dienstleistungen, Wirtschaftsinformatik und Wirtschaftsrecht sowie die Fernstu- diengänge Betriebswirtschaft, International Management, Krankenhaus-Management und Wirtschaftsinformatik an. Gegenstand der Ausbildung sind die verschiedenen As- pekte des Wirtschaftens in der Unternehmung, der modernen Verwaltungstätigkeit im sozialen Bereich, der Verbindung von angewandter Informatik und Wirtschaftswissen- schaften sowie des Rechts im Bereich der Wirtschaft. Nähere Informationen zu Studienangebot, Forschung und Ansprechpartnern finden Sie auf unserer Homepage im World Wide Web (WWW): http://www.wi.hs-wismar.de/. Die Wismarer Diskussionspapiere/Wismar Discussion Papers sind urheberrechtlich geschützt. Eine Vervielfältigung ganz oder in Teilen, ihre Speicherung sowie jede Form der Weiterverbreitung bedürfen der vorherigen Genehmigung durch den Herausgeber. Herausgeber: Prof. Dr. Jost W. Kramer Fachbereich Wirtschaft Hochschule Wismar University of Technology, Business and Design Philipp-Müller-Straße Postfach 12 10 D – 23966 Wismar Telefon: ++49/(0)3841/753 441 Fax: ++49/(0)3841/753 131 e-mail: [email protected] Vertrieb: HWS-Hochschule Wismar Service GmbH Phillipp-Müller-Straße Postfach 12 10 23952 Wismar Telefon:++49/(0)3841/753-574 Fax: ++49/(0) 3841/753-575 e-mail: [email protected] Homepage: http://www.hws-wismar.de/11.html ISSN 1612-0884 ISBN 3-939159-03-4 JEL-Klassifikation N44, Z00, Z13 Alle Rechte vorbehalten. © Hochschule Wismar, Fachbereich Wirtschaft, 2006. Printed in Germany Inhaltsverzeichnis Preface 5 Dedication 6 Acknowledgements 7 I. Abstract 8 II. Introduction 8 III. Modeling Kingdon 11 A. Why Kingdon? 11 B. Explaining Kingdon 13 1. The Problem Stream 15 2. The Policy Stream 17 3. The Political Stream 19 4. Coupling and Windows 21 IV. Historical Context of Austrian Neutrality 23 A. Why Austria? 23 B. Explaining Austria 25 1. Historical Context of Neutrality Policy & Law 25 a) Cold War (1945-1989) 25 (1) Constructing Identity 26 (2) Kreisky Era (1970-1983) 33 b) “Re-contextualization” 37 (1) EU Membership: A Window of Opportunity 38 (2) The “Fallout” & “Spillover” 41 2. Changes to the Security Environment: Setting the Agenda 44 V. Neutrality and the Governmental Agenda 52 A. The Problem Stream: Identifying the Problem 54 1. Focusing Events, Crises, and Symbols 56 2. Feedback 59 B. The Policy Stream: Policy, Alternatives & Entrepreneurs 61 1. Policy Community & Proposals 61 2. Viable Alternatives 63 C. The Political Stream: Political Events 65 4 1. National Mood 66 2. Pressure Groups 70 3. Election Results 74 D. Coupling & the Policy Window 78 VI. Summary & Conclusion 83 Works Cited 86 On the Author 96 5 Preface Broadening one’s horizon is probably the most fascinating opportunity offered by universities to their students. Therefore, lectures, seminars, and projects should not only focus on transfer of knowledge, but also offer incentives for (self-)education. If this comes to happen, “broadening one’s horizon” may well be taken literally: A political science and economics major from the Northwest of Germany being shipped to the University of Nebraska in Lincoln or a postgraduate student of German studies from Grand Island, Nebraska be- ing transferred from the University of New Mexico in Albuquerque being transferred to Graz University in Austria. Such experiences will not only have a lasting effect on the individual in question, but can also lead them to choose a research topic, where interdisci- plinary methods and intercultural perspectives can be brought together. At its worst, such an attempt ends as a dubious mixture, neither flesh nor bone. At its best, a new perspective is applied and new insights are to be gained – as is shown in this paper. During her studies in Austria, Kristine Sue Ankenman became interested in the strongly disputed concept of Austrian neutrality and as a researcher with a broad background in political science as well as in German studies she started to wonder, why there was so much discussion going on and so little formal change seemed to happen. Looking for an explanation for such a non- development, she became familiar with Kingdon’s model of policy windows. Using Kingdon’s concept as an analytical instrument, Ankenman, a former colleague from the University of Nebraska, was able to explain, why neutrality has been discussed for a long time, how it has been changed and re- contextualized, and why it will continue to exist. In the fall of 2005, her research has been accepted as a master thesis in German Studies at the University of Mexico. I am honoured to accept this pa- per from Kristine Sue Ankenman for publication in this series – an American researcher’s explanation for Austrian political issues. Wismar, June 2006 Jost W. Kramer 6 Dedication I wish to dedicate this to a very special group of people: To Michaela Kollman und Günther Sammer. They are two of Austria’s great- est Ambassadors. Ihr habt mir nicht nur eure Wohnung gezeigt sondern auch eure Herzen geöffnet, um mir ein unglaubliches Jahr in Österreich zu ermögli- chen. Prosit! To my twin ‘miracles’, Missy and Lambchop, who ‘interrupted’ my academic journey in a very good way. May their lives be full of happiness, health, love and intellectual stimulation. “We do not stop learning because we grow old, we grow old because we stop learning.” – Unknown. But most of all, I wish to dedicate this to Glen, the farm boy from Nebraska, who has stuck with me through thick and thin, who has always known what I am capable of and who challenges me to finish what I start. 7 Acknowledgements I wish to thank my very good friend, Professor Jost Kramer, for starting me off on this incredible journey all those years ago and having the courage to check in on me every now and then with more encouragement and all those wonderful books! Recht herzlichen Dank! I would also like to thank my “professorial triumvirate” at the University of New Mexico’s German Studies program. Professor Peter Pabisch, Austrian and Renaissance man, who like a good geologist is able to see the gem inside the plain, rough rock. Professor Susanne Baachmann, who has always been gracious and helpful. My understanding of ‘paradigms’ will never be the same. And most of all, to my committee chair, Professor Katrin Schröter, who is as kind, caring, and generous as she is stubborn. Her meticulous attention to detail and insistence on “discussing it” made this all possible. She has helped me to accomplish the impossible. I also wish to gratefully acknowledge the faculty of the German Summer School in Taos, New Mexico, especially, Professor Bea Müller-Kampel, who inspired me to look beyond the classroom. The Österreichische Austauschdi- enst for the award of “Bewerber aus aller Welt” and those incredible avoursors at Karl-Franzens-Universität in Graz. They have opened up a life-long love of all that is Austrian. 8 I. Abstract By the time Austria prepared to join the European Union on Jan. 1, 1995, neu- trality law and policy had been adapted, modified, and “re-contextualized” to the point where many policy experts maintained, that it existed only as a law on paper. Yet public opinion is still overwhelming in avour of continued neutrality. This dissonance between public perceptions and governmental avourtives came to a head in 2005, when amidst constitutional reform; the Austrian constitutional convention uncovered a conflict between the Neu- tralitätsgesetz and BV-G BGBl Art. 23f. While conditions in 2005 initially appeared to avour change to constitu- tional neutrality, this did not happen.