Austria has maintained permanent neutrality since 1955 and is not a member of NATO (North Atlantic Treaty Organization). There are several historical, political, and economic reasons why Austria chose neutrality and remains outside of NATO today.
NATO was established in 1949 as a collective defense alliance aimed at deterring Soviet expansion during the Cold War. Founding members included the United States, Canada, and several Western European nations. Over time, NATO membership expanded to include many Central and Eastern European countries.
Austria, which was under Allied occupation after World War II, did not join NATO. In 1955, the Austrian State Treaty was signed declaring Austria a permanently neutral country. Austria has maintained this neutral stance throughout the Cold War and post-Cold War era despite close cooperation with NATO members.
There are several key reasons why Austria remains outside of NATO:
- Historic commitment to permanent neutrality
- Desire to maintain independence in foreign policy
- Close ties with neutral Switzerland and non-aligned states
- Economic cooperation with Russia and former Eastern Bloc
- Domestic political factors and public opinion
- Secure position without NATO membership
This article will explore Austria’s neutrality policy and analyze the major factors that have kept the country from joining NATO over the past seven decades.
Austria’s Permanent Neutrality
Austria declared permanent neutrality in 1955 as part of the Austrian State Treaty negotiated with the Allied powers of the Soviet Union, United States, United Kingdom, and France. This treaty ended the Allied occupation of Austria after World War II.
Austria had been annexed by Nazi Germany in 1938 prior to the outbreak of WWII. After the war, Austria was occupied by Allied troops and effectively divided into American, British, French, and Soviet zones of occupation similar to the partition of Germany.
To regain sovereignty and independence, Austria agreed to permanent neutrality. This Cold War compromise allowed Soviet troops to withdraw in exchange for Austria declaring neutrality and not joining NATO. The Austrian State Treaty declared:
Austria shall not enter into any union with Germany nor into any alliance with Germany or with any other State, nor shall Austria permit the conclusion with her of any such alliance by any third State.
This established Austria’s neutrality, barring it from membership in NATO or any military alliance. The treaty took effect in 1955 and Austrian neutrality was recognized internationally. Austria soon passed a constitutional law declaring its permanent neutrality.
Since 1955, Austria has stuck to this policy of neutrality through the remainder of the Cold War and after the fall of the Soviet Union. No major political faction has seriously challenged neutrality. It enjoys broad public support as representing Austria’s independence and freedom from entanglement in military conflicts.
Desire for Independent Foreign Policy
Austria fiercely guards its independence and wants maximum flexibility in crafting foreign policy. Joining NATO would compromise this independence to some degree. Within NATO, members are expected to follow decisions of the majority even if they disagree with a particular policy or military intervention.
As a neutral state, Austria can voice objections to interventions like the Iraq War and take foreign policy stances independent of the NATO alliance. Austria was able to avoid participation in Vietnam and Iraq, conflicts that were very unpopular domestically.
NATO members are also expected to support mutual defense spending goals and host foreign troops on their soil during military operations. As a non-member, Austria is not bound by any alliance obligations and can steer an independent course.
Freedom of Maneuver
Permanent neutrality gives Austria greater freedom to engage diplomatically with nations like Russia that would otherwise be off limits within NATO. During the Cold War, Austria could serve as a bridge between East and West. Post-Cold War, they maintain closer economic ties with Russia than many Western states.
NATO membership would curtail Austria’s perceived maneuverability and flexibly to engage diverse partners. Neutrality is seen as better serving Austria’s independent interests and role as a potential mediator.
Ties to Other Neutral States
Austria has close connections to other neutral European states, especially Switzerland and Sweden. Collaboration with these nations reinforces Austria’s own neutral orientation.
Switzerland
Neighboring Switzerland is perhaps the most famous neutral state in Europe. Switzerland has maintained neutrality since 1815 and did not join the UN until 2002. Austria has long followed the Swiss model of neutrality and the two nations share a similar outlook.
Austria and Switzerland have argued that small states with no major military power can best preserve their security through neutrality. They have mutually reaffirmed each other’s neutral status. Switzerland’s strong commitment to neutrality over centuries has encouraged Austria to maintain this tradition.
Sweden
Sweden is another important neutral state in Europe. During the Cold War era, Sweden did not join NATO and pursued an independent security policy based on neutrality coupled with a strong military and economic ties with the West.
Cold War Sweden represented an alternative neutral path that Austria identified with more than a strict non-alignment movement. Collaboration with like-minded neutral Sweden enabled Austria to withstand political pressure to enter NATO during the 1950s-1980s.
Non-Aligned Movement Connections
Austria has participated in the Non-Aligned Movement (NAM) as an observer state for decades. The Non-Aligned Movement centered on newly independent states that did not align with either NATO or the Warsaw Pact during the Cold War.
Leader states of NAM included Yugoslavia, India, Egypt, and Indonesia. While not a full member, Austria found common ground with non-aligned states seeking neutrality and independence amid Cold War tensions.
These longstanding ties to NAM states reinforce Austria’s internationally recognized neutral status even after the Cold War’s end. Strong connections with the developing world provide economic opportunities and give Austria a voice in world affairs beyond its small size.
Economic Ties with Russia and Eastern Europe
Austria has pursued considerable business, trade, and investment relationships with Russia and other former Eastern Bloc states after the Cold War. Austria’s economic footprint in these countries exceeds that of many NATO member states.
For example, Austria is one of the largest foreign investors in Ukraine. It also has billions invested in Russia and strong energy ties. Joining NATO could jeopardize Austria’s economic interests in the region as tensions heighten.
Many argue it is smart for Austria to keep a foot in both the Western and Eastern camps for maximum economic advantage. Its neutral status facilitates continued business dealings with Moscow and regional capitals that may otherwise view NATO membership as a threat.
Major Investments and Trade Partners
| Country | Austrian Foreign Direct Investment | Total Bilateral Trade |
|---|---|---|
| Russia | $6.3 billion | $5.5 billion |
| Ukraine | $5.1 billion | $900 million |
| Kazakhstan | $3.8 billion | $900 million |
* Investment and trade data is from 2017
This economic integration with Eastern states provides incentives for Austria to remain neutral and not join NATO. It can balance Western integration via the EU with extensive Eastern business activities.
Domestic Political Factors
Within Austria, permanent neutrality and staying out of military alliances enjoys broad cross-party political support and public legitimacy. All major Austrian parties accept neutrality as beneficial for the national interest.
The two dominant center-right and center-left parties both officially support neutrality. The far-right Freedom Party, the third largest bloc, is outright anti-NATO. Neutrality thus represents a domestic political consensus rather than a divisive issue tearing at the fabric of Austria politics.
Referendum on NATO
In a 1994 referendum on NATO membership, over 65% of Austrian voters rejected joining NATO and affirmed neutrality. Politicians could only ignore such an emphatic referendum result with great difficulty.
The resounding vote for neutrality realigned Austrian foreign policy after a brief post-Cold War flirtation with closer NATO ties in the early 1990s. No major party has since advocated NATO accession against the will of the people.
Public Opinion Trends
Public opinion polls in recent decades consistently show a majority of Austrians support permanent neutrality:
- 1993 poll: 79% support neutrality
- 2001 poll: 73% reject NATO membership
- 2013 poll: 64% oppose joining NATO
- 2017 poll: 61% want to maintain neutrality
With such high approval for neutrality among Austrian citizens, no government can casually disregard neutrality without imperiling its own popularity. The Austrian people do not wish to be drawn into military blocs.
Secure Position Outside NATO
Pragmatic assessments suggest Austria does not face major security threats necessitating NATO membership. Austria borders only friendly nations and is insulated from territorial dangers by surrounding NATO states.
Austria relies on Switzerland to the west, NATO member Italy to the south, and former Warsaw Pact states like Slovakia, Hungary, and Slovenia to the east that now have cooperative relations with the West. This environment gives Austria latitude to pursue neutrality with relatively modest military spending and no foreign troops on its soil.
Within the European Union, Austria receives economic security and integration with Western institutions it needs without the defense commitments of NATO. Mandatory EU mutual defense clauses have also reduced Austria’s vulnerability and disincentives for NATO accession.
With good relations all around, many view NATO as unnecessary for Austrian security. The risks of joining are seen as outweighing any modest protection gains.
Conclusion
Austria remains outside NATO today due to its longstanding permanent neutrality policy dating from 1955. This Cold War compromise brought independence and helped unite the country. Austria values neutrality for its autonomy in foreign affairs and ability to steer a middle path between East and West.
Strong public support for neutrality makes any change in course difficult politically. Austria also has economic motivations to maintain ties with Russia and Eastern states that could be threatened by NATO accession. While Austria cooperates closely with NATO partners, it will likely preserve its neutral status into the future based on these historical, political, and economic considerations.