Austria: A Country Study Edited by Eric Solsten Federal Research Division of the Library of Congress Research Completed December 1993 Chapter 1. Historical Setting GERMANIC TRIBES WERE not the first peoples to occupy the eastern Alpine-Danubian region, but the history and culture of these tribes, especially the Bavarians and Swabians, are the foundation of Austria's modern identity. Austria thus shares in the broader history and culture of the Germanic peoples of Europe. The territories that constitute modern Austria were, for most of their history, constituent parts of the German nation and were linked to one another only insofar as they were all feudal possessions of one of the leading dynasties in Europe, the Habsburgs. Surrounded by German, Hungarian, Slavic, Italian, and Turkish nations, the German lands of the Habsburgs became the core of their empire, reaching across German national and cultural borders. This multicultural empire was held together by the Habsburgs' dynastic claims and by the cultural and religious values of the Roman Catholic Counter-Reformation that the Habsburgs cultivated to provide a unifying identity to the region. But this cultural-religious identity was ultimately unable to compete with the rising importance of nationalism in European politics, and the nineteenth century saw growing ethnic conflict within the Habsburg Empire. The German population of the Habsburg Empire directed its nationalist aspirations toward the German nation, over which the Habsburgs had long enjoyed titular leadership. Prussia's successful bid for power in Germany in the nineteenth century--culminating in the formation in 1871 of a German empire under Prussian leadership that excluded the Habsburgs' German lands--was thus a severe political shock to the German population of the Habsburg Empire. When the Habsburg Empire collapsed in 1918 at the end of World War I, its territories that were dominated by non-German ethnic groups established their own independent nation-states. The German-speaking lands of the empire sought to become part of the new German republic, but European fears of an enlarged Germany forced them to form an independent Austrian state. The new country's economic weakness and lack of national consciousness contributed to political instability and polarization throughout the 1920s and 1930s and facilitated the annexation The Habsburgs also increased their influence and power through strategic alliances ratified by marriages. Owing to premature deaths and/or childless marriages within the Burgundian and Spanish dynasties into which his grandfather, Maximilian I (r. 1493-1519), and his father had married, Emperor Charles V (r. 1519-56) inherited not only the Hereditary Lands but also the Franche-Comtéé and the Netherlands (both of which were French fiefs) and Spain and its empire in the Americas. Challenged on his western borders by France and on his eastern borders by the Turkish Ottoman Empire, Charles V divided his realm geographically in 1522 to achieve more effective rule. Retaining the western half under his direct control, he entrusted the eastern half, the Hereditary Lands, to his brother, Ferdinand (r. 1522-64). Although Ferdinand did not become Holy Roman Emperor until 1556 when Charles V abdicated, this territorial division effectively created two branches of the Habsburg Dynasty: the Spanish Habsburgs, descended through Charles V, and the Austrian Habsburgs, descended through Ferdinand (see fig. 2). In addition to the lands he received from his brother, Ferdinand also increased his territorial reach by marrying into the Jagiellon family, the royal family of Hungary and Bohemia. When his brother-in-law, King Louis, died fighting the Turks at the Battle of Moháács in 1526, Ferdinand claimed the right of succession. Although the diets representing the nobility of Bohemia (and its dependencies of Moravia and Silesia) did not acknowledge Ferdinand's hereditary rights, they formally elected him king of Bohemia. As king of Bohemia, he also became an elector-prince of the Holy Roman Empire. In Hungary and in the subordinate Kingdom of Croatia-Slavonia-Dalmatia, however, Ferdinand faced the rival claim of a Hungarian nobleman and the reality of the Turkish conquest of the country. He was able to assert authority only over the northern and western edges of the country, which became known as Royal Hungary. His Hungarian rival became a vassal of the Turks, ruling over Transylvania in eastern Hungary. The rest of Hungary became part of the Ottoman Empire in 1603. Although Ferdinand undertook various administrative reforms in order to centralize authority and increase his power, no meaningful integration of the Hereditary Lands and the two newly acquired kingdoms occurred. In contrast to the authority of kings of Western Europe, where feudal structures were already in decline, Ferdinand's authority continued to rest on the consent of the nobles as expressed in the local diets, which successfully resisted administrative centralization. The Protestant Reformation in the Habsburg Lands From the beginning of the Protestant Reformation in the 1520s, Protestant doctrines were welcomed by the people living in the areas under Habsburg domination. By the middle of the sixteenth century, most inhabitants were Protestant. Lutherans predominated in German-speaking areas, except in Tirol, where the Anabaptists were influential. Nevertheless, the Roman Catholic Church retained the support of the Habsburg Dynasty and was able to maintain a strong presence throughout the area. Religious violence and serious persecution were rare after the 1520s, and an uneasy coexistence and external tolerance prevailed for most of the sixteenth century. Ferdinand pressed Rome for concessions that would bridge the positions of moderate reformers and Catholics, but at the Council of Trent (1545-63), the Catholic Church chose instead a vigorous restatement of Catholic doctrine combined with internal reforms. The council thus hardened lines of divisions between Catholicism and Protestantism and laid the foundation for the Counter-Reformation, which the Habsburgs would pursue aggressively in the 1600s. The Turkish Threat After the Turkish siege of Vienna in 1529, Ferdinand recognized that defense of the Habsburg lands required that Hungary form a bulwark against the Turks. Although Turkey's ultimate objective was the conquest of Europe, Western Europe did not see the Turks as a threat and was unwilling to aid Ferdinand in the defense of the continent's eastern borders. He thus signed a peace agreement with the Turks in 1562 that formalized the stalemated status quo in Hungary. Division and Rebellion Ferdinand I died in 1564, and Habsburg territories in Central Europe were divided among his three sons, with the eldest, Maximilian III (r. 1564-76), becoming Holy Roman Emperor. Although Maximilian's sympathetic policies toward the Protestants contrasted with his brothers' efforts to reestablish Catholicism as the sole religion in their lands, military policy, not religious doctrine, was to divide the dynasty in the final years of the sixteenth century and open the door to the religious wars of the seventeenth century. Maximilian's son, Rudolf II (r. 1576-1612), succeeded his father as both king of Hungary and Holy Roman Emperor. After the Turks reopened the war in Hungary in 1593, Rudolf was blamed for the rebellion among Protestant nobles in Royal Hungary caused by his brutal conduct of the war. Backed by junior members of the dynasty, Rudolf's younger brother, Matthias (r. 1612-19), confiscated Rudolf's lands, restored order, and, after Rudolf's death, became Holy Roman Emperor. But the religious and political concessions that the two brothers had made to the nobility to win their support in this dynastic feud created new dangers for the Habsburgs. The childless Matthias chose his cousin Ferdinand as his successor. To facilitate Ferdinand's eventual election as Holy Roman Emperor, Matthias secured his election as king of Bohemia in 1617. Before accepting Ferdinand as king, however, the Protestant nobility of Bohemia had required this strong proponent of the Catholic Counter-Reformation to confirm the religious charter granted them by Rudolf II. A dispute over the charter in 1618 triggered a rebellion by the Protestant nobles. Hopes for an arbitrated settlement were dashed when Matthias died in March 1619, and other areas under Habsburg control rebelled against Habsburg rule. The Thirty Years' War, 1618-48 The anti-Habsburg rebellions reflected the rising tensions between Catholics and Protestants in the early 1600s. Proponents of the Counter-Reformation, often operating under Habsburg protection, were reaping the fruits of a generation of work: monastic life was reviving, Catholic intellectual life was regaining confidence, and prominent figures were returning to the Catholic Church. As a result, Protestants were increasingly on the defensive. The German princes split into two military camps based on religious affiliation: the Evangelical Union and the Catholic League. In August 1619, a Bohemian diet elected as king the Protestant elector-prince of the Palatinate, Frederick V, and the conclave of elector-princes elected Ferdinand II (r. 1619-37) Holy Roman Emperor. On November 8, 1620, a force combining troops from the Catholic League and the imperial army decisively defeated Frederick V's largely mercenary force at the Battle of White Mountain. Throughout the 1620s, the combined imperial and Catholic forces maintained the offensive in Germany, enabling Ferdinand to establish his authority in the Hereditary Lands, Bohemia, and Hungary. Equating Protestantism with disloyalty, Ferdinand imposed religious restrictions throughout the Hereditary Lands. In 1627 he implemented a long-planned decree to make Bohemia a one-confession state: Protestants were given six months to convert or leave the country. In the face of a strong Hungarian nationalist movement headed by the Calvinist prince of Transylvania, however, Ferdinand could maintain his hold on Royal Hungary only by confirming guarantees of religious freedom. Foreign intervention by Denmark, Sweden, and France kept Ferdinand from bringing the war to a conclusion through military power and also frustrated his efforts in the mid-1630s to reach a compromise with the Protestant German princes. The subsequent military campaigns of the Thirty Years' War, however, only marginally affected those portions of the Habsburg territories that are part of modern Austria. The Peace of Westphalia The Thirty Years' War was finally ended in 1648 by the Peace of Westphalia. The treaty guaranteed the religious and political constitution of the Holy Roman Empire, giving the German princes the sovereign right to settle the religious question in their respective territories. France also achieved its main war aim because the costly war and the concessions to the princes effectively stopped the Habsburgs from transforming the Holy Roman Empire into an absolutist state under their direction. Nonetheless, in their own lands, the Habsburgs enjoyed greater political and religious control than before the war: they had gained loyal new followers from among the nobles by redistributing estates confiscated from rebels, and they were free to enforce religious conformity, which they did based on the model applied earlier in Bohemia.   THE BAROQUE ERA Political and Religious Consolidation under Leopold Reconstruction of the social, political, and economic infrastructure destroyed by the Thirty Years' War began during the reign of Ferdinand III (r. 1637-57) and continued through the reign of his son, Leopold I (r. 1658-1705). Central to the restoration of the Habsburgs' social and political base was the reestablishment of the Roman Catholic Church. But the Habsburgs did not seek to make the church an independent force within society. They found no contradiction between personal piety and use of religion as a political tool and defended and advanced their sovereign rights over and against the institutional church. The Habsburg effort to establish religious conformity was based on the model already implemented in Bohemia. Closure of Protestant churches, expulsions, and Catholic appointments to vacated positions eliminated centers of Protestant power. Reform commissions made up of clergy and representatives of local diets appointed missionaries to Protestant areas. After a period of instruction, the populace was given a choice between conversion and emigration--an estimated 40,000 people emigrated between 1647 and 1652. The reestablishment of Catholic intellectual life and religious orders and monasteries was a key component of Habsburg Counter-Reformation policies. The Jesuits led this effort, and their influence was broadly disseminated throughout Central European society, owing to their excellent schools, near monopoly over higher education, and emphasis on lay organizations, which provided a channel for popular devotional piety. Benedictine, Cistercian, and Augustinian monastic foundations were also revitalized through the careful management of their estates, and their schools rivaled those of the Jesuits. Through the court's patronage of the arts and religious orders and through public celebrations, both secular and religious, the dynasty transmitted a worldview based on the values of the Counter-Reformation. These values, rather than common governmental institutions and laws, gave the Heriditary Lands a sense of unity and identity that compensated for the continued weakness of administrative bodies at the center of Habsburg rule. The Turkish Wars and the Siege of Vienna In 1663 rivalries between the Ottomans and the Habsburgs in Transylvania triggered renewed fighting between the Ottoman Empire and the Habsburg Empire. The Turkish threat, which included a prolonged but unsuccessful siege of Vienna in 1683, prompted Poland, Venice, and Russia to join the Habsburg Empire in repelling the Turks. In 1686 Habsburg forces moved into central Hungary and captured Buda. By 1687 the Ottoman Empire had been eliminated as a power in central Hungary. In the late 1690s, command of the imperial forces was entrusted to Prince Eugene of Savoy. Under his leadership, Habsburg forces won control of all but a small portion of Hungary by 1699. The War of the Spanish Succession In 1700 the death of Charles II of Spain ended the Spanish Habsburg line. Spain's steady decline throughout the seventeenth century had already led to minor armed conflicts aimed at a realignment of power among European countries, and these rivalries blossomed into the War of the Spanish Succession (1701-14). Both Leopold I and King Louis XIV of France, Charles's two nearest relatives, hoped to establish a junior branch of his own dynasty in Spain. But neither was willing to rule out the possibility that a single heir might someday inherit the lands of both the principal line and its Spanish offshoot. The strong central government and political institutions of France made the possible union of Spain and France a far greater threat to other European countries than the possible union of Spain and the Habsburg lands in Central Europe. Thus, when the dying Spanish king named as his heir Louis's son, Philip, Britain and a number of other European countries rallied to the Habsburg cause. Despite early victories by the Austro-British alliance, the allies were unable to install the Austrian Archduke Charles on the Spanish throne. As the war dragged on, the alliance began to unravel, especially when, after the death of Leopold's elder son, Charles became Holy Roman Emperor in 1711. The actual unification of the Habsburg lines in Charles VI (r. 1711-40) posed a greater threat to other European powers than did the possible union of war-weakened France and Spain. Austria's allies made peace with France in 1713 and signed the Treaty of Utrecht. Because his former allies negotiated a treaty to protect their own interests, the settlement Charles received when he finally abandoned the war in 1714 was meager: the Spanish Netherlands (present-day Belgium) and various Italian territories. The Pragmatic Sanction and the War of the Austrian Succession, 1740-48 Although the Habsburg Empire continued to expand in the east at Turkish expense, Charles VI recognized that defense of Austria's position in Europe required greater economic and political centralization to foster the development of a stronger economic base. Because he lacked a male heir, however, the continued unity of the Habsburg Empire was jeopardized. In 1713 Charles promulgated the Pragmatic Sanction to establish the legal basis for transmission of the Habsburg lands to his daughter Maria Theresa (r. 1740-80). The price extracted by local diets and rival European powers for approval of the Pragmatic Sanction, however, was abandonment of many centralizing reforms. Nonetheless, Charles's concessions did not prevent the War of the Austrian Succession (1740-48) from breaking out on his death in 1740. Prussia occupied Bohemia's Silesian duchies that same year. Late in 1741, the elector-prince of Bavaria, Charles Albert, occupied Prague, the capital of Bohemia, with the aid of Saxon and French troops and was crowned king of Bohemia. This paved the way for his election as Holy Roman Emperor in 1742, thus breaking the Habsburgs' three-hundred-year hold on the imperial crown. The Austrians, however, retook Prague, and Maria Theresa was crowned queen of Bohemia in the spring of 1743. Aided by a British diplomatic campaign, Austria also made important military gains in Central Europe. Thus, when Charles Albert unexpectedly died in January 1745, his son made peace with Austria and agreed to support the Habsburg candidate for emperor. This enabled Maria Theresa's husband, Franz (r. 1745-65), to be elected Holy Roman emperor in October 1745. In the west, the war with France and Spain gradually settled into a military stalemate, and negotiations finally led to the Peace of Aix-la-Chapelle in 1748. Although Maria Theresa emerged with most of her empire intact--owing largely to the early support she received from Hungarian nobles--Austria was obliged to permanently cede Silesia, its most economically advanced territory, to Prussia. Recognizing that the costly war with France had done more to promote British colonial interests in North America than its own interests in Central Europe, Austria abandoned its partnership with Britain in favor of closer ties with France. This reversal of alliances was sealed by the marriage of Maria Theresa's youngest daughter, Marie Antoinette, to the future Louis XVI of France.   THE REFORMS OF MARIA THERESA AND JOSEPH II Baroque Absolutism and Enlightened Despotism Although her husband was emperor, Maria Theresa ruled the Habsburg lands. However, when her son Joseph became Holy Roman Emperor after the death of her husband in 1765, she made her son coregent. Following Maria Theresa's death in 1780, Joseph II reigned in his own right until his death in 1790. The Counter-Reformation's political and religious goals had largely been accomplished by the time Maria Theresa came to the throne, but maintaining Austria's great-power status urgently required broad internal reform and restructuring to strengthen the central authority of the monarchy and curtail the power of the nobility. Maria Theresa began administrative and economic reforms in 1749, drawing on mercantilist theory and examples provided by Prussian and French reforms. In addition, she undertook reforms in the social, legal, and religious spheres. During the coregency and after Maria Theresa's death, Joseph continued the reforms along the lines pursued by his mother. But mother and son had sharply different motivations. Maria Theresa was a pious Catholic empress working within the structure of a paternalistic, baroque absolutism and was unsympathetic to the Enlightenment. Joseph, in contrast, gave the reforms an ideological edge reflecting the utilitarian theories of the Enlightenment. Because his reforms were more ideologically driven and thus less flexible and pragmatic, they frequently were also less successful and disrupted the stability of the Habsburg Empire. Although the statist religious policy that evolved in this era became known as Josephism, Joseph's policy was largely an extension of his mother's, whose piety did not exempt the church from reforms designed to strengthen state authority and power. Joseph's utilitarianism, however, contributed to two important divergences from Maria Theresa's policy: greater religious toleration and suppression of religious institutions and customs deemed contrary to utilitarian principles. The Edict of Tolerance, issued in 1781, granted Protestants almost equal status with Catholics; other decrees lifted restrictions on Jews and opened up communities, trades, and educational opportunities previously barred to them. The utilitarian principles behind religious toleration, however, also inspired Joseph to dissolve Catholic monasteries that were dedicated solely to contemplative religious life and to suppress various traditional Jewish customs he viewed as detrimental to society and a hinderance to the Germanization of the Jewish population. The reforms created an administrative, fiscal, and judicial bureaucracy directly responsible to the monarch. As the seat of the new centralized institutions, Vienna grew from merely being the sovereign's place of residence to a true political and administrative capital. Hungary, however, was not included in these centralizing administrative reforms. In appreciation for the support Austria had received from the Hungarian nobles during the War of the Austrian Succession, Maria Theresa never extended her reforms to that kingdom. The Strategic Impact of the Reform Era Although the reforms improved Austrian military preparedness, they fell short of their original goal of enabling Austria to defend its interests in Europe. Hopes of regaining Silesia and partitioning Prussia were abandoned after only limited military success in the Austro-Prussian Seven Years' War (1756-63). Efforts to check Russian expansion yielded mixed results. Unable to prevent Russian and Prussian ambitions against Poland, Austria reluctantly joined them in the First Partition of Poland in 1772 and gained the province of Galicia. Five years later, Austria intervened between Russia and Turkey to prevent Russian gains at Turkish expense and in the process acquired Bukovina, a territory adjacent to Galicia and Transylvania. Because the new territories were economically backward, their acquisition served mainly to shift the ethnic balance of the Habsburg Empire through the addition of a large Slavic population (Poles and Ruthenians), a sizable Jewish minority (which accounted for 60 percent of the empire's total Jewish population), and a lesser number of Romanians. The ideological rigidity with which Joseph II carried out his reforms also weakened the Habsburg Dynasty by provoking social unrest and, in Hungary and Belgium, rebellion. When Joseph died in 1790, his brother, Leopold II (r. 1790-92), had to reverse many of the reforms and offer new concessions to restore order. To get Prussian support for the military action that reestablished Habsburg authority in Belgium in 1790, Leopold foreswore further Austrian territorial gains at Turkish expense. He also confirmed Hungary's right not to be absorbed into a centralized empire, but to be ruled by him as king of Hungary according to its own administration and laws. In exchange, the Hungarian nobility ended their rebellion. The Napoleonic Wars What began as a retrenchment in Austria's reform program ground to a complete halt when the international crisis caused by the French Revolution engulfed Europe in a generation of war. Meeting in Potsdam in 1791, Leopold II and the king of Prussia jointly declared that the revolutionary situation in France was a common concern of all sovereigns. Although the declaration did not become the framework for European military intervention in France as its authors had hoped, it set Austria and the French Revolution on an ideological collision course. In April 1792, revolutionary France declared war on Austria. The first war lasted for five years until Austria, abandoned by its allies, was forced to make peace on unfavorable terms. Austria renewed the war against France in 1799 and again in 1805 but was swiftly defeated both times. In the otherwise unfavorable settlement after the defeat in 1805, however, Austria did receive Salzburg, a territory formerly ruled by an archbishop, in compensation for the loss of various Italian and German possessions. Because French domination of Germany raised the possibility that Napoleon Bonaparte or one of his subordinates could be elected Holy Roman Emperor, Leopold's son, Franz II (r. 1792- 1835), took two steps to protect Habsburg interests. First, to guarantee his family's continued imperial status, he adopted a new, hereditary title, Emperor of Austria, in 1804, thus becoming Franz I of Austria. Second, to preclude completely the possibility of Napoleon's election, in 1806 he renounced the title of Holy Roman Emperor and dissolved the Holy Roman Empire. In the final years of the decade, the German Habsburg area was swept with anti-French nationalist fervor. Erroneously believing that similar nationalist fervor throughout Germany would produce a victory, Austria declared war on France in April 1809. In the Tirol, then under Bavarian rule, the peasants, led by Andreas Hofer, rebelled and scored surprising victories before being subdued by Napoleon's forces. Elsewhere in Germany, however, nationalist feeling had little effect. Austria's defeat was swift, and significant territorial losses followed. In the wake of this defeat, Franz appointed a new foreign minister, Clemens von Metternich, who sought reconciliation with France. He accomplished this by arranging a marriage between Franz's daughter, Marie Louise, and Napoleon, who was eager for the prestige of marriage into one of the principal dynasties of Europe and the creation of an heir. The marriage took place in the spring of 1810 but yielded little immediate return for Austria. In 1813 Napoleon's position began to weaken. His invasion of Russia had failed, and Britain was scoring victories in the Iberian Peninsula. Both sides of the conflict began bidding for Austria's support. In August of that year, Austria broke its alliance with France and declared war. Despite generous subsidies from Britain, the final campaigns against Napoleon in 1814 and 1815 strained Austria's financial and human resources. Thus, Austria emerged as a victor from the war but in a severely weakened state. The Congress of Vienna From September 1814 to June 1815, representatives of the European powers met in Vienna. Guided by Metternich, the Congress of Vienna redrew the map of Europe and laid the foundation for a long period of European peace. The Habsburg Empire emerged with boundaries both more extensive and compact than it had had for several centuries. Belgium and the Habsburg lands in southwest Germany were lost, but Austria regained all other possessions that it had held in 1792 and virtually all of those it had obtained during the long years of war, including Salzburg (see fig. 3). The Holy Roman Empire was not resurrected but was replaced with a German Confederation composed of thirty-five sovereign princes and four free cities. Austria held the permanent presidency of the confederation and probably had more real influence in Germany than it had had under the Holy Roman Empire. Austria also enjoyed the dominant position on the Italian peninsula, where it possessed the northern territories of Lombardy and Venetia. The wartime allies--Austria, Britain, Russia, and Prussia-- concluded the Congress of Vienna by signing the Quadruple Alliance, which pledged them to uphold the peace settlement. In a secondary document, the European monarchs agreed to conduct their policies in accordance with the Christian principles of charity, peace, and love. This "Holy Alliance," proposed by the Russian tsar, was of little practical import, but it gave its name to the cooperative efforts of Austria, Russia, and Prussia to maintain conservative governments in Europe. Although Austria emerged from the Congress of Vienna as one of the great powers in Europe, throughout the nineteenth century its status and territorial integrity depended on the support of at least one of the other great powers. As long as the allies were willing to cooperate in the "Congress System" to maintain the peace, order, and stability of Europe, Austrian interests were protected. But the other great powers, which were better able to defend their interests by force, did not always share Austria's devotion to Metternich's creation.   AUSTRIA IN THE AGE OF METTERNICH Clemens von Metternich was initially successful in maintaining a European consensus favorable to Austrian interests. He used the example of liberal revolutions in Spain and Naples and revolutionary activity in Germany to demonstrate the universal menace posed by liberalism and thus won Austria the support of Prussia and Russia. Britain also supported Austria because the two countries had common interests favoring a strong Austrian presence in Germany, limited French influence in Italy, and the maintenance of the Ottoman Empire to prevent Russian advances in the Balkans. The support from the other great powers dissipated, however, in the mid- and late-1820s. Russia became more assertive in the Balkans, and British policy increasingly reflected that nation's liberal popular opinion. But Metternich was able to regain Russian and Prussian support in the early 1830s, following another round of liberal uprisings in Europe. Even Britain returned to close cooperation with the other powers to block French interests in Egypt. Nevertheless, Metternich failed to respond effectively to Prussia's formation of a German customs union in 1834. The customs union excluded Austria and promoted the economic integration of the other German states, thus facilitating German political unification under Prussian leadership later in the century. Domestic Policies Despite Metternich's high profile, it was the emperor's conservative outlook and hostility toward the values and ideas of the French Revolution that set the parameters for Austrian policy. This was especially true of domestic policy, which Franz I retained under his direct personal control until his death in 1835. The composition of the state council that Franz selected to rule in the name of his mentally incompetent son Ferdinand I ensured the continuance of his policies until revolution shook the foundations of Habsburg rule in 1848. Franz's aim was to provide his subjects with good laws and material well-being. To accomplish the first, he issued a new penal code in 1803 and a new civil code in 1811. He expected that the second--material well-being--would evolve naturally with the reestablishment of peace, and he considered additional measures unnecessary. Political and cultural life was kept under careful scrutiny, however, to prevent the spread of nationalism and liberalism. These two movements were a common threat to Franz's conservative regime because his political opponents looked to the establishment of a unified German nation-state incorporating Austria as a means for realizing the liberal reforms impossible in the framework of the Habsburg state. Political stagnation, however, did not prevent broader socioeconomic changes in Austria. By 1843 the population had risen to 37.5 million, an increase of 40 percent from 1792. The urban population was rising quickly, and Vienna counted nearly 400,000 inhabitants. Economically, a degree of stability was reached, and the massive wartime deficits gave way to almost balanced budgets. This was made possible by cutting state expenditures to a level near actual revenues, and not by instituting fiscal reforms to increase tax revenues. Austria's ability to protect its interests abroad or carry out domestic programs thus continued to be severely restrained by lack of revenue.   THE REVOLUTION OF 1848 AND NEOABSOLUTISM Revolutionary Rise and Fall In 1848 liberal and nationalist ideologies sparked revolutions across Europe. In late February, the proclamation of the revolutionary Second Republic in France shook conservative Austria. Popular expectations of war caused a financial panic in the Habsburg Empire that worked to the advantage of the revolutionaries. By early March, events throughout the empire were accelerating faster than the government could control them. As a symbol of conservative government, Metternich was an early casualty of the revolution. His resignation and flight in mid-March only led to greater demands. By mid-April the court had sanctioned sweeping liberal reforms passed by the Hungarian diet. In May the government was forced to announce plans for a popularly elected constituent assembly for the Habsburg lands. This assembly, the first parliament in Austrian history, opened in July 1848. As part of the German Confederation, the German-speaking Habsburg lands were also caught up in the revolutionary events in Germany. German nationalists and liberals convened an assembly in Frankfurt in May 1848 that suspended the diet of the German Confederation and took tentative steps toward German unification. However, the close association of nationalism and liberalism in Germany belied the growing conflict between these two ideologies. Although ethnic Germans from Bohemia were participating in the Frankfurt assembly, Czech nationalists and liberals rejected Bohemian participation in the German nation being born in Frankfurt. They envisioned a reconstituted Habsburg Empire in which the Slavic nations of central and southern Europe would assume equality with the German and Hungarian components of the empire and avoid absorption by either Germany or Russia. The government gave concessions that appeared to endorse this plan, and the Czechs convened an Austro-Slavic congress in Prague in June as a counterpart to the Frankfurt assembly. As conservative political authority gave way before the revolutionary forces, two bold military commanders began to reassert control over the situation, often ignoring or contravening timid orders from the court. General Alfred Windischgräätz routed the revolutionaries from Prague and Vienna and reestablished order by military force. South of the Alps, General Joseph Radetzky reestablished Austrian control of Lombardy-Venetia by August. Although only Hungary remained in the hands of the revolutionaries, the Austrian government began to reorganize in the fall of 1848. A team of ministers associated with constitutionalism was presented to the constituent assembly in November. The minister-president not only committed the government to popular liberties and constitutional institutions but also to the unity of the empire. To cap the reorganization, the mentally incompetent Ferdinand formally abdicated on December 2, 1848, and his eighteen-year-old nephew was crowned Emperor Franz Joseph I (r. 1848-1916). The young emperor faced three pressing tasks: establishing effective political authority in the empire, crushing the rebellion in Hungary, and reasserting Austrian leadership in Germany. To accomplish the first, the government promulgated a secretly prepared constitution in March 1849, thus undercutting the constituent assembly. This constitution contained guarantees of individual liberties and equality under the law, but its greatest significance lay in provisions that established a centralized government based on unitary political, legal, and economic institutions for the entire empire. The new constitution exacerbated the revolutionary situation in Hungary. The Hungarian diet deposed the Habsburg Dynasty and declared Hungarian independence. Although Austria could have eventually restored order on its own, the need to deal simultaneously with events in Germany prompted Emperor Franz Joseph to ask for and get Russian military assistance, thus accomplishing his second objective. The rebellion was effectively, if brutally, ended by September 1849. Austria's decision to organize itself as a unitary state also set the terms for dealing with the German nationalists and liberals sitting in Frankfurt: Austria would enter a unified Germany with all of its territories, not merely the German and Bohemian portions. This contradicted an earlier decision of the assembly, so the assembly turned from the grossdeutsch (large German) model of a united Germany that included Austria to the kleindeutsch (small German) model that excluded Austria. The assembly offered a hereditary crown of a united Germany to the Prussian king. The conditions under which the offer was made, however, caused the Prussian king to decline in early April 1849. Combined with the withdrawal of the Austrian representatives, his rejection effectively ended the Frankfurt assembly. The German Confederation was restored, and Franz Joseph's tasks were completed. However, Austria and Prussia continued to jockey for influence and leadership in Germany. The Failure of Neoabsolutism Initially, the new Austrian government apparently intended to implement the constitutional political structures promised in March 1849. But on December 31, 1851, Franz Joseph formally revoked the constitution, leaving in place only those provisions that established the equality of citizens before the law and the emancipation of the peasants. Popular representation was eliminated from all government institutions. In order to solidify a political base supporting neoabsolutist rule, the government also eliminated the Josephist religious regulations that had been the source of continuing conflict with the church. In 1855 the government signed a concordat with the Vatican that recognized the institutional church as an autonomous and active participant in public life. The agreement signaled a new era of cooperation between throne and altar. Neoabsolutism, with its aim of creating a unified, supranational state, however, ran counter to the prevailing European trend. The empire's peoples could not be isolated from the larger nationalist struggles of the German, Italian, and Slavic peoples. In Hungary active resistance to the Austrian government declined, but passive resistance grew. During the Crimean War (1853-56), the situation in Hungary made Austria vulnerable to economic and political pressure from Britain and France, the allies of Turkey against Russia. Thus, when Russia asked for Austria's support, Austria initially sought to mediate the conflict but then joined the western allies against Russia. By failing to repay Russia for its help in Hungary in 1849, Austria lost critical Russian support for its position in Germany and Italy. France took advantage of the estrangement between Austria and Russia to set up a military confrontation between Austrian and Italian nationalist forces. This opened the door to French military intervention in support of the Italians in 1859. Because Franz Joseph was unwilling to make the concessions that were Prussia's price for assistance from the German Confederation and because he feared the French might stir up trouble in Hungary, Franz Joseph surrendered Lombardy in July 1859. These failures did not bode well for the anticipated conflict with Prussia over German unification, so the emperor began to abandon absolutism and create a more viable political base. He experimented with various arrangements designed to attract the support of the military, the Roman Catholic Church, German liberals, Hungarians, Slavs, and Jews, who were assuming a strong presence in the economic and political life of the empire. Urgently needing to resolve the tensions with the Hungarians, the government opened secret negotiations with them in 1862. The outline of a dual monarchy was already taking shape by 1865, but negotiations were deadlocked on the eve of the war with Prussia. Loss of Leadership in Germany Through the early 1860s, Austria maintained hope of retaining leadership in Germany because the smaller states preferred weak Austrian leadership to Prussian domination. Nonetheless, by mid-1864 Franz Joseph realized that war was inevitable if Austrian leadership was to be preserved. The immediate cause of the Seven Weeks' War between Austria and Prussia in 1866 was Prussia's desire to annex the Duchy of Holstein. Austria and Prussia had together fought a brief war against Denmark in 1864 to secure the predominantly German duchies of Schleswig and Holstein for Germany. Pending final decision on their future, Prussia took control of Schleswig, and Austria took control of Holstein. In April 1866, however, Prussia plotted with Italy to wage a two-front war against Austria that would enable Prussia to gain Holstein and Italy to gain Venetia. Although Austria tried to keep Italy out of the war through a last-minute offer to surrender Venetia to it, Italy joined the war with Prussia. Austria won key victories over Italy but lost the decisive Battle of Kööniggräätz (Hradec Kráálovéé in the presentday Czech Republic) to Prussia in July 1866 (see The Habsburg Military , ch. 5). Defeated, Austria agreed to the dissolution of the German Confederation and accepted the formation of a Prussian-dominated North German Confederation, which became the basis of the German Empire in 1871. The south German states--Bavaria, Baden, Wüürttemberg, and Hesse-Darmstadt--were accorded an "independent international existence" and, in theory, could have gravitated toward Austria. Nevertheless, their military and commercial ties to Prussia militated against such an outcome. The province of Venetia, Austria's last Italian possession, was transferred to Italy.   AUSTRIA-HUNGARY TO THE EARLY 1900s The Founding of the Dual Monarchy Defeat in the Seven Weeks' War demonstrated that Austria was no longer a great power. Looking to the future, Franz Joseph set three foreign policy objectives designed to restore Austrian leadership in Germany: regain great-power status; counter Prussian moves in southern Germany; and avoid going to war for the foreseeable future. Because reconciliation with Hungary was a precondition for regaining great-power status, the new foreign minister, Friedrich Ferdinand von Beust, became a strong advocate of bringing the stalemated negotiations with the Hungarians to a successful conclusion. By the spring of 1867, a compromise had been reached and was enacted into law by the Hungarian Diet. The Compromise Ausgleich of 1867 divided the Habsburg Empire into two separate states with equal rights under a common ruler, hence the term "Dual Monarchy." Officially, these states were Hungary and the "Kingdoms and Lands represented in the Parliament," the latter being an awkward designation necessitated by the lack of a historical name encompassing all non-Hungarian lands (see fig. 4). Unofficially, the western half was called either Austria or Cis-Leithania, after the Leitha River, which separated the two states. The officially accepted name of the Dual Monarchy was Austria-Hungary, also seen as the AustroHungarian Empire. The two national governments and their legislatures in Vienna and Budapest shared a common government consisting of a monarch with almost unlimited powers in the conduct of foreign and military affairs, a ministry of foreign affairs, a ministry of defense, and a finance ministry for diplomatic and military establishments. In the absence of a shared parliament, discussion of the empire's common affairs was conducted by parallel meetings of delegates from the two national legislatures communicating with each other through written notes. A key topic of these meetings was the common commercial policy and customs union that had to be renegotiated every ten years. The Austrian parliament passed legislation implementing the Ausgleich in late 1867. This "December Constitution" was the product of German-speaking Liberals, who were able to dominate parliament because of a boycott by Czech delegates. The December Constitution closely followed the constitution of 1849 and placed no significant restrictions on the emperor with regard to foreign and military affairs but did add a list of fundamental rights enjoyed by Austrians. The lower house of the Austrian parliament was elected through a highly restricted franchise (about 6 percent of the male population). Seats were apportioned both by province and by curiae, that is, four socioeconomic groups representing the great landowners, towns, chambers of commerce, and peasant communities. By building on the two dominant nationalities in the empire, German and Hungarian, dualism enabled Austria-Hungary to achieve relative financial and political stability. It did not, however, provide a framework for other nationalities, in particular the Slavs, to achieve equivalent political stature. Indeed, the Hungarian state used its power to preclude such an outcome. Hungary interpreted provisions in the Ausgleich as requiring Austria to retain its basic constitutional structure as a unitary state, so that any federalist accommodation with the Czechs would invalidate the Ausgleich and dissolve the Dual Monarchy. Final Defeat in Germany and Reconciliation with Prussia Because Russia was aligned with Prussia and because Britain had retreated into isolationism, Austria-Hungary turned to France as an ally in its bid to regain leadership in Germany. France wanted gains in Germany at Prussia's expense and was receptive to an alliance. Open cooperation with French expansionist ambitions, however, was inconsistent with Austria-Hungary's efforts to be the leader and defender of the German nation. The success of the alliance thus depended on France's position as the defender of the south German states against Prussia--which France failed to do. France declared war on Prussia and invaded German territory in July 1870. The south German states rallied to Prussia's side in the Franco-Prussian War, and Beust's patient effort to detach those states from Prussia lay in ruins. Austria watched helplessly as Prussia, the presumed underdog, quickly and soundly defeated France. In January 1871, Prussia founded the Second German Empire, uniting the German states without Austria. Unable to undo what Prussian military prowess had wrought in Germany, Austria-Hungary trimmed its sails accordingly. Count Gyula Andráássy, a Hungarian, replaced Beust as foreign minister, and the empire's foreign policy began to reflect the anti-Russian mentality of the Hungarians. Before 1871 ended, Austria-Hungary and Germany were working toward a united foreign policy. This diplomatic cooperation with Prussian-dominated Germany contributed to the internal political stability of Austria-Hungary. Exclusion from a united Germany was a psychological shock for German Austrians because their claim to leadership in the Habsburg Empire had rested in part on their leadership of the German nation. Cut off from Germany, they became just one of many national groups in the Habsburg Empire and constituted only slightly more than one-third of Austria's population. Had Prussia remained hostile, Austria-Hungary's German population might have been the excuse for Prussian territorial ambitions similar to those harbored by the other nation-states that surrounded Austria-Hungary. Aligned with Austria-Hungary, however, Prussia distanced itself from German nationalists in Austria-Hungary, and the annexation movement remained politically insignificant. But, because German Austrians no longer had their majority status guaranteed by participation in the larger German nation, many felt increasingly vulnerable and threatened. German Austrians thus became open to a nationalism based on ethnic fear and hostility that contrasted with the self-confident Liberal nationalism of earlier decades. The Eastern Question Having reconciled itself to exclusion from Germany and Italy, Austria-Hungary turned to the east, where declining Turkish power made the Balkans the focus of international rivalries. Foreign Minister Andráássy was opposed to any annexation of Balkan territories because that would have increased the empire's Slavic population. Ideally, he favored maintenance of Turkish authority in order to check the expansion of Russian influence. This option, however, was not viable. To prevent either Russia from replacing Turkey as the dominant power in the region or the already independent Balkan states (Serbia, Montenegro, Greece, and Romania) from dividing up the remaining Turkish territory, Austria-Hungary was forced to seek a partition of the Balkans with Russia. Because Germany was aligned with both Russia and Austria-Hungary, it acted as a moderating force on Russia to prevent war between its partners in the 1870s. So successful was Germany at limiting Russian gains after the costly Russo-Turkish War (1877-78), that Russia's relations with Germany cooled considerably. With Germany's support, Austria-Hungary acquired Bosnia and Hercegovina as part of the settlement to that war. Andráássy, however, did not directly annex Bosnia and Hercegovina but obtained the right of an Austro-Hungarian occupation, while Turkey retained sovereignty. With relations strained between Russia and Germany, Austria-Hungary exploited Germany's need to strengthen its position against France and obtained an anti-Russian alliance. Under the resulting Dual Alliance, Austria-Hungary and Germany pledged to help defend the other against an attack by Russia. In the event of war between Germany and France, however, Austria-Hungary promised nothing more than neutrality unless Russia were also involved. As favorable as the Dual Alliance appeared, it drew Austria-Hungary into Otto von Bismarck's web of alliances and diplomatic maneuverings. Austria-Hungary thus became party to conflicts with France and Britain, countries with which it had no directly conflicting interests. The Triple Alliance signed by Germany, Italy, and Austria-Hungary in 1882, for example, mainly protected Italian and German interests against France and did nothing to resolve outstanding issues between Austria-Hungary and Italy. Great-power tensions in the Balkans eased in the 1890s, as Africa and the colonial territories in the Far East became the focus of competition among European powers. Although Austria-Hungary was not involved in this colonial competition, Russia was. Its interests in the Far East paved the way for an accommodation with Austria-Hungary to maintain the status quo in the Balkans. In 1903, however, Serbia, a Balkan country that European powers had assigned to the Austro-Hungarian sphere of influence, launched an expansionistic program directed against Austria-Hungary. Without Russian support, however, Serbia's threat was not a major concern. Internal Developments in Austria The Czech boycott of the Austrian parliament enabled the German Austrian Liberals to dominate the government of Austria until the late 1870s. They used their position to block concessions to Czechs and Poles in the early days of the Dual Monarchy, and they further protected their interests in 1873 by altering the franchise law to increase the representation in parliament of their constituency--the urban, ethnically German population and assimilated Jews. The Liberals' legislative program focused on anticlerical measures, but conflict over foreign policy issues, not religious ones, caused the Liberals' fall from power in 1879. The Liberals opposed the annexation of Bosnia and Hercegovina--which was favored by the emperor--and claimed certain powers in the conduct of foreign policy that Franz Joseph saw as an infringement on his sovereign authority. After the fall of the Liberals, a nonparty government known as the Iron Ring was formed under Eduard Taaffe. Intended to encircle and limit the influence of the Liberals, the Iron Ring represented court interests and enjoyed broad support from clerical parties, German Austrian conservatives, Poles, and Czech representatives, who had decided to end their boycott. Backed by this comfortable parliamentary majority, the executive branch was able to operate smoothly. Although the concessions given the Czechs in return for their support were linguistic and cultural rather than political, the concessions raised sensitive issues because the expanded use of the Czech language in Bohemian public life weighed heavily on the ethnic German minority. The major legislative initiative of the Taaffe government was the 1883 franchise reform. This measure broadened the ocioeconomic base of the electorate and thus weakened the support of the Liberals while strengthening the conservatives. An even broader franchise reform was proposed in 1893 after the election of 1891, which had been conducted in an atmosphere of heightened ethnic tensions in Bohemia. The proposed reform would have given the vote to all male citizens over the age of twenty-five and thus diluted still further the middle-class urban vote that the court associated with fervid nationalism. The bill, however, was widely rejected by the conservative backers of the Iron Ring, and Taaffe resigned. Ethnic tensions, however, did not subside, even though a modified version of the franchise legislation proposed in 1893 was ultimately enacted. With the parliament highly fragmented both nationally and politically, Minister-President Count Kasimir Badeni offered new concessions to the Czechs in 1897 to forge the majority coalition he needed to conduct customs and trade policy negotiations with the Hungarians. These concessions, which dealt with the use of the Czech language by the bureaucracy, inflamed German-speaking Austrians. Violent rioting on a nearrevolutionary scale erupted not only in Bohemia but also in Vienna and Graz. The Badeni government fell. Because no effective majority could be assembled in the polarized parliament, the government increasingly used emergency provisions that allowed the emperor to enact laws when parliament was not in session. The political stalemate in parliament was a reflection of socioeconomic changes in the empire that were heightening tensions among social classes and nationalities. Although the economic and psychological impact of the economic crash of 1873 endured for some time, Austria experienced steady industrialization and urbanization in the late nineteenth century. By 1890 Austria stood midway between the rural societies that bordered it on the east and south and the industrially advanced societies of Western Europe. The German-speaking middle class, including assimilated Jews, had been the first group to translate growing numerical and economic power into political leverage. Even after the 1879 fall of the Liberal government, which had represented this group's interests, the government had to consider the concerns of the German-speaking middle class in order to maintain political stability. In contrast to that of the middle class, the positions of the aristocracy and the Roman Catholic Church weakened. Individual aristocrats played prominent roles in the government, but the bureaucracy was assuming many functions once played by the aristocracy as a whole. For the church, the 1855 concordat between the empire and the Vatican had been a high-water mark for its formal role in political life. The Liberals' anticlerical legislation and abrogation of the concordat in 1870 curtailed the church's public presence and influence. Nonetheless, popular support for the church remained strong, and a new form of Catholic political participation was beginning to take shape based on a socially progressive platform endorsed by the 1891 papal encycylical Rerum Novarum. This largely urban movement coalesced into the Christian Social Party (Christlichsoziale Partei--CSP). Papal support was not sufficient to win the new party the approval of the conservative Austrian bishops, who continued to work through the older clerical-oriented parties. Initially, the CSP found strong support in Vienna and controlled the city administration at the turn of the century. Nonetheless, the party was unable to hold its desired base among industrial workers in the face of competition from the Social Democratic Workers' Party (Sozialdemokratische Arbeiterpartei-- SDAP). Founded in 1889 at a unity conference of moderate and radical socialists, the SDAP adhered to a revisionist Marxist program. The SDAP became a political home for many Austrian Jews uncomfortable with the growing anti-Semitism of the German nationalist movement, the other major political current of the time. Rising ethnic tensions made it difficult for political parties to ignore the influence of German nationalism in the closing decades of the nineteenth century. The Liberal movement faded, largely because of its resistance to becoming a specifically German party, and dissatisfied Liberals were key figures in the formation of new nationalist movements and parties. Even though the CSP and SDAP were based on political ideologies that transcended national identity, they too were obliged to make concessions in their program to German nationalism. In the late 1890s, all German-oriented parties, with the exceptions of the SDAP and the Catholic People's Party, united in the German Front. The specific demands of the German Front were modest, but by calling for recognition of a special position for Germans in light of their historic role in the empire, German Austrians were on a collision course with other national groups.   THE FINAL YEARS OF THE EMPIRE AND WORLD WAR I The Crisis over Bosnia and Hercegovina Around 1906 the Balkans again became the focus of great-power rivalry, as Russia renewed its interest in the Balkans and became Serbia's great-power patron. A crisis erupted in 1908, when Turkey began to be reorganized as a constitutional state. Bosnia and Hercegovina, which was Turkish territory under Austro-Hungarian administration, was invited to send delegates to the new Turkish parliament. Austria-Hungary responded by formally annexing Bosnia and Hercegovina in violation of various international agreements. It quelled Turkey's objections with financial compensation. But by alienating Russia and Italy, the annexation was a costly diplomatic victory for Austria-Hungary at a time when the military alliance system of Europe was moving against it. Britain had resolved colonial rivalries with both France and Russia, paving the way for the cooperation of the three countries in the Triple Entente. Following the crisis over Bosnia and Hercegovina, Russia encouraged the independent Balkan states to form what was intended to be an anti-Austro-Hungarian coalition. But the new coalition, called the Balkan League, was more interested in partitioning the remaining Turkish territories in the Balkans, and it defeated Turkey in the First Balkan War in 1912. The Balkan allies turned on each other in 1913 in a war over the division of the former Turkish territories. In this Second Balkan War, Serbia doubled both its territory and its population. World War I Austria-Hungary considered the newly enlarged and Russian-backed Serbia to be the principal threat to its security because Serbian military intelligence supported anti-Habsburg groups and activities in Bosnia and Hercegovina. Thus, when the heir to the Habsburg crown, Franz Ferdinand, and his wife were assassinated in Sarajevo by Bosnian nationalists on June 28, 1914, the presumption of Serbian complicity was strong. The idea of a preemptive war against Serbia was not new in Vienna, and, despite the weak pretext, Germany indicated a willingness to back its ally. On July 23, Austria-Hungary presented Serbia with an ultimatum designed to be rejected. The key demands were that Serbia suppress anti-Habsburg activities, organizations, and propaganda and that Habsburg officials be permitted to join in the Serbian investigation of the assassination. Serbia responded negatively but appeared conciliatory. Nonetheless, Austria-Hungary declared war on Serbia on July 28 without further consultations with Germany. Russia's decision to mobilize on July 30 escalated the war beyond a regional conflict by bringing into play the system of European alliances. Because German war strategy depended on avoiding a two-front war, Germany had to defeat France before Russia could fully mobilize. Thus, Germany responded to Russia's mobilization by immediately declaring war on France and Russia. On August 4, Britain declared war on Germany. On August 6, Austria-Hungary declared war on Russia. Finally, on August 12, France and Britain declared war on Austria-Hungary. Once the major powers were engaged, they sought to enlist the support of the smaller powers. Despite its partnership with Austria-Hungary and Germany in the Triple Alliance, Italy was not bound by that treaty to join the war, and it declared its neutrality. Germany pressed Austria-Hungary unsuccessfully to cede to Italy Austrian territories it desired, in order to win Italian support. Because the Triple Entente powers readily promised transfer of the territories in the event of victory, Italy entered the war on their side in April 1915. Although German and Austro-Hungarian military victories in the east during the spring of 1915 overcame the military disasters that Austria-Hungary experienced early in the war, the empire's internal economic situation steadily grew more precarious. Austria-Hungary was not prepared for a long and costly war. The death of Emperor Franz Joseph on November 21, 1916, deprived Austria-Hungary of his symbolic unifying presence. His twenty-nine-year-old grand-nephew Karl (r. 1916-18) was unprepared for his role as emperor. But by this time, the future of the monarchy no longer depended on what the emperor did; rather, its fate hinged on the outcome of the war. Despite revolutionary Russia's withdrawal from the war, military success in the east could not counter events in the west. The United States had entered the war on the side of the Allies in April 1917, and with the failure of its military offensive in the spring of 1918, Germany was no longer capable of continuing the war. The End of the Habsburg Empire and the Birth of the Austrian Republic The dismantling of the Habsburg Empire had not been an objective of the Allies. Following the collapse of the tsarist government in Russia, however, the Allies increasingly portrayed the war as pitting freedom and democracy against oppression and autocracy. This strategy benefited the representatives of Czech, Slovak, Hungarian, and other nationalist committees-in-exile, which skillfully played on the theme of self-determination expressed in United States president Woodrow Wilson's Fourteen Points. Austria-Hungary was unable to put forward a meaningful program of reform while still preserving the monarchy and so could not successfully resist the centrifugal forces pulling it apart. By mid-1918 the Allies began recognizing the national committees-in-exile and made plans for an independent Poland and Czechoslovakia. By October 1918, when the Austro-Hungarian government was seeking an armistice, control of the empire's constituent lands was passing to national committees, including one representing German Austrians. On October 21, German Austrian delegates to the Austrian parliament voted to establish an Austrian state incorporating all districts inhabited by ethnic Germans. At the end of the month, the delegates established a coalition provisional government. On November 3, imperial authorities signed an armistice, bringing Austro-Hungarian participation in World War I to an official end. On November 11, Karl renounced any role in the new Austrian state, and the next day the provisional government issued a constitution for the German Austrian Republic.