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The Unloved Democracy of the Inter-War Period |
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Page 1 of 11 Constituting a State
In 1918, during the last days of the war, when it was clear that defeat was imminent, the statement made by the American President Woodrow Wilson on the right of nations to determine their own fate acted as a lifebelt. While the manifesto issued by Emperor Karl was well-meant, it came too late. The peoples of the Austro-Hungarian monarchy had already opted for the creation of independent national states.
On 21 October 1918, 232 German-speaking delegates (102 German Nationalists, 72 Christian Socialists, 42 Social Democrats, 16 from other parties) from the Imperial Council assembled in the Niederösterreichisches Landhaus in Vienna to decide the future fate of the German-Austrian state. On 30 October this Provisional National Assembly elected a State Council (Staatsrat) consisting of 22 representatives. The Social Democrat Karl Renner, who headed the government, presented a draft constitution for this transitional period. There was widespread consensus between the parties as to the future form of government: the German Nationalists and Social Democrats had always been in favour of a republic, while the Christian Socialists were swayed in this direction by a series of articles brought out by the theologiancum-politician Ignaz Seipel.
On 12 November the Provisional National Assembly gathered in the Houses of Parliament on Vienna's Ringstrasse and proclaimed "German-Austria" a democratic republic. However, since in their opinion this newly-formed state would not be able to survive on its own, German-Austria was at the same time declared part of the democratic Weimar Republic of Germany.
The newly-elected State Council found itself confronted with an almost insurmountable array of tasks: to draw up a democratic constitution, to foster relations with the neighboring countries, to prepare the peace conference, to reorganize the social structure and, on a priority basis, to supply the population with provisions for the coming winter.
A situation of great political unrest prevailed in Austria, with soldiers streaming back from the front and being unable to find jobs. For the purpose of maintaining public security, in rural areas Heimatwehren (Home Defense Forces) were established, while workers' and soldiers' councils were set up in factories and barracks. The borders of the new state were unsafe: to the south, the SHS State (State of the Serbs, Croats and Slovenes) was staking its claim to areas of Carinthia, while to the north protection of the German-speaking territories of Bohemia and Moravia could not be guaranteed without the use of armed force.
On 16 February 1919 elections to the Constitutional Assembly were held, in which, for the first time, women were permitted to vote. The Social Democrats emerged as the strongest party, with 40.76 % of the votes (72 seats), followed by the Christian Socialists, who won 35.93 % of the votes (69 seats). The German Nationalists gained 26 seats, and 3 seats went to the remaining parties.
Supplying the starving population with provisions was one of the biggest problems facing the new government. The agrarian areas of the former monarchy were located in the successor states, which at first closed their doors to the new republic. It was only with the help of large loans, which had a devastating effect on the state budget, that Austria was able to survive the first years of hunger.
Considerable progress was achieved in the social sector. Both the provisional and the constitutional National Assembly enacted legislation to secure an eight-hour working day, works councils, unemployment benefits, paid holidays for employees and the reform of the health service.
The outcome of the Paris Peace Conference in 1919 was extremely disappointing for Austria. South Tyrol was lost to Italy, and large parts of Carinthia could only be retained through a referendum. German-speaking western Hungary (with the exception of Sopron) was ceded to Austria. Since Anschluss, or union with Germany, which had been agreed in 1918, was now forbidden by the terms of the Treaty of St. Germain drawn up at this conference, the name of the new state had to be changed from "German-Austria" to the "Republic of Austria." The young republic responded to this measure by naming the treaty a "state treaty," arguing that the Republic of Austria had never waged war and could therefore not conclude peace.
The Federal Constitution, which was formulated in 1920 and which, together with its important amendments of 1925 and 1929, is still in force today, is the result of a compromise. Representatives of the parties and the federal provinces presented their opinions, while the legal foundation and the conceptual structure were provided by the lawyer Hans Kelsen, who was later to achieve international renown.
After the First World War, Austria's scope for foreign policy was at first greatly restricted. Despite the circumstances, however, she succeeded in developing positive relations with her new neighbors. A favorable trading agreement was concluded with Hungary and the Republic of Czechoslovakia again began to supply Austria with raw materials, also granting it a vital loan. Particularly after the fascists had seized power in the country, Italy became very protective of the new Republic of Austria-provided that the issue of South Tyrol was not discussed. Relations with the Weimar Republic were correct and agreeable, with the State Chancellors placing the troublesome question of the Anschluss in the hands of private operators.
In view of the disastrous inflation, the long-term economic reconstruction of Austria could only be managed with the help of a loan from the League of Nations. Only a credit amounting to 650 million gold crowns saved the new republic from bankruptcy. The mere announcement of the loan led to an immediate improvement in currency rates.
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