Foreword

If there is one day in the year 2001 that will be remembered for a long time, then it is the 11th of September. The terrorist attacks in the United States brought it home to us that no country on earth is invulnerable. On that day the horror and tragedy did not happen in one of the crisis areas of the world, but where no one would have thought it possible: in a country at peace, and apparently in safety. The victims were people who were going about their normal daily business.

After September 11 we must finally rid ourselves of an illusion, if indeed it ever existed: namely, that no country is in a position to offer its citizens the best possible protection on its own. That can be achieved only within a larger group, and in solidarity with the international community. One of the most important tasks of foreign policy is, therefore, to contribute to an international environment that is capable of guaranteeing our citizens the highest possible degree of human security. Foreign policy must pursue its aims with circumspection and determination irrespective of the day -to-day political situation.

The fight against terrorism has presented Austria and the international community with formidable challenges. It is fortunate that, in this international crisis situation, Austrian foreign policy is grounded in clear concepts and stable values. During those difficult months after the terrorist attacks Austria has proved to be a responsible and reliable partner with a forward-looking policy of solidarity.

For Austria as a member of the European Union, security, foreign and peace policy means in the first instance European policy. No other model has assured peace, stability and prosperity as successfully as European integration. Now the European Union is about to take the historic step of extending this area of peace, stability and prosperity to include the candidates for membership. Who could have more interest in this process than Austria? The enlargement of the EU is a historic opportunity and an economic necessity, and is therefore the first priority for Austria’s foreign policy.

A project of this magnitude demands meticulous planning as well as a clear conception of how Austrian interests can best be protected. There are numerous difficulties to be overcome if that is to be achieved. My approach to the accession negotiations is therefore: thoroughness, a fair balance of interests, openness, working out the best possible common advantage, clearing up open bilateral questions before entry, inclusion of the public in the dialogue, promptness, but above all quality. The year 2001 showed clearly that, with this fundamental attitude, even difficult problems can be resolved. I would point in particular to Austria’s negotiating successes on the free movement of persons and cross-border services. We also achieved the best possible protection for Austrian interests in the transit road traffic issue when, at the European Council in Laeken, the European Commission produced a proposal for an extension of the ecopoints system for a further three years. There will nonetheless have to be further discussions with the member states on this issue. As far as the energy chapter is concerned, we succeeded in obtaining agreement with the Czech Republic on the “Conclusions of the Melk Process and Follow-up” in relation to the Temelin nuclear power station near the border with Austria. The Czech government assented to making the agreed safety and environmental standards legally binding by including them in the Czech Republic’s treaty of accession to the European Union. There is already a consensus on the closure of the dangerous nuclear power stations at Ignalina (Lithuania), Kosloduj (Bulgaria) and Bohunice (Slovakia). 2001 was also the first year in which it was possible to initiate an EU-wide discussion on guaranteeing common standards of nuclear safety, an issue that eventually found a place in the conclusions of the European Council in Laeken. This was the first milestone on the way towards building a European- wide awareness leading to the goal of a general abandonment of nuclear energy production.

As enlargement of the European Union is approaching, Austria’s traditionally good relations with our neighbours in Central and Eastern Europe, as well as with our cultural “neighbour” Poland, are proving particularly important. These attained a new dimension in 2001 with the foundation of the Regional Partnership. Within this framework we intend to make optimum preparations for enlargement in cooperation with our regional partners.

Common interests are to be identified so that they can be more efficiently represented on a common basis after the accession of Austria’s partners to the Union. This Regional Partnership already includes a security partnership of ministers for home affairs as well as cooperation between ministers for economic affairs, agriculture and infrastructure. Common cultural projects have been inaugurated. The intensive cooperation with our Central and Eastern European partners takes account of the fact that the Austrian economy is already very closely interwoven with those of the candidate countries, that this region has become one of our most important economic partners, and that in the border regions there is now widespread and intensive local cooperation.

Enlargement will change the European Union. In order to maintain its dynamism and the functioning of its institutions it is essential to continue with the process of internal reform until this culminates in the Intergovernmental Conference in 2004. In order to prepare for that event a Constitutional Convention has been set up to consider the essential challenges and issues involved in the future development of the Union. It is composed of representatives from the European Parliament and the Commission as well as the national governments and parliaments of the member states and the candidate countries.

The European citizens will also be more intensively involved than hitherto, in order to ensure that the reform process is carried out more democratically and closer to the people. The open internal borders, the common currency, safety standards for consumer goods and foodstuffs, educational initiatives, student exchanges and more render Europe a tangible and visible reality for the individual. The prompt measures against terrorism and crime that were taken after the terrorist attacks on 11 September rendered service to the citizen’s need for more security. Nevertheless, the people of Europe should not be given the impression that decisions are being taken over their heads behind closed doors.

Closer attention will have to be paid to strengthening the Union’s democratic legitimacy and enhancing its transparency.

Our foreign policy in 2001 was quite naturally dominated by the events of September 11, the formation of the resulting anti-terror coalition, and the war in Afghanistan. Austria was able to build on the good relations and confidence we established with the countries of Central Asia, for example, during our chairmanship of the OSCE. At that time we drew attention to the importance of Central Asia as well as the Caucasus, when we pointed to the latent conflicts and security risks inherent in the region, including migration, illegal trafficking in drugs and persons, as well as to possible counter-measures. Now events in Afghanistan have cast the entire region into the spotlight. Our preparatory work is now proving very helpful in the efforts to stabilise the region. This is the reason why I – on this basis and in coordination with the EU - travelled to Central Asia just a few days after the terrorist attacks to discuss the possibility of cooperation to counter terror as well as its causes.

Austria’s long-standing trustworthy image in the Middle East as well as personal contacts were of eminent use in the endeavours to enlist support for the anti-terror coalition – something that was by no means self-evident in the region. Austria provided an individual accent with her engagement in the “Dialogue of the Civilisations” as a means of preventing the fight against terror developing into a conflict between cultures. This is a concept that Austrian foreign policy has pursued for many years and that has now attained fresh relevance in the light of recent events. We therefore have every incentive to intensify these endeavours.

It is also an expression of solidarity and a fundamental humanitarian approach that Austria participated in the humanitarian and refugee aid in Afghanistan, and in cooperation with the UN is now playing a role in the reconstruction of that country that has been devastated by decades of war. Austria’s aid for Afghanistan encompasses three vital areas that for many years have been central foreign policy issues: the rights of women, especially as regards education and occupational opportunities; the elimination of anti-personnel land mines; and the campaign against illicit drugs. As early as 1996 Austria pointed out the hazardous position of women in Afghanistan. More recently, in partnership with the women foreign ministers attending the UN General Assembly, I have been able to impress on the United Nations the necessity of integrating women into the process of reconstructing Afghanistan. It is gratifying to be able to record that this has been done through the appointment of women to ministerial posts in the interim Afghan government.

There remains no doubt, however, that a great deal remains to be done for the rights of women in Afghanistan – and in not a few other countries also. It should also be mentioned that the Austrian soldiers who are on security duties in Kabul as members of the international ISAF have a significant role to play in restoring peace and stability as a precondition and basis for the reconstruction of the country.

One of Austria’s most important foreign policy priorities is and remains South-Eastern Europe. In spite of a number of positive developments the problems in the Balkans have not yet been overcome, as the crisis in Macedonia demonstrated. Austrian foreign policy has– bilaterally, and within the EU, the OSCE and the UN – continued its endeavours to contribute to a more peaceful development, and to support the efforts being made by the countries of the region on their road to Europe. The commitment by Austrian foreign policy in this respect has been publicly recognised, inter alia by the appointment of former Austrian Vice Chancellor Erhard Busek as coordinator of the Stability Pact for South Eastern Europe.

If we are seriously aiming for peace, security and stability, then we must combat not only the symptoms, but also the underlying causes of many of the evils that exist in our world. I refer here to poverty, injustice and the lack of any perspectives for life. These are the seed-beds for terrorism and the source of innumerable conflicts. The United Nations will have a special role and responsibility in this fight. The reading of this Yearbook will make clear what an invaluable and irreplaceable role the UN plays, not merely in efforts to resolve acute or potential regional conflicts, but also as regards development cooperation, human rights, humanitarian aid, prevention of international crime, disarmament and the protection of the environment. These are all decisive aspects of a long-term strategy for the maintenance of peace, and are therefore areas of primary importance for Austria’s foreign policy. In 2001 Austria was entrusted with the chairmanship of the Human Security Network for 2002-2003, in which time I intend to place the emphasis on education for tolerance, women’s rights, and the situation of children in areas of conflict. The new Austrian development cooperation legislation to be adopted in 2002 will lay the foundation for a unified development policy with its goals of combating poverty, assuring peace and protection of the environment, with a commitment to the principles of ownership, adapted technologies and gender equality.

In 2001 Austria again proved its readiness to act in solidarity with the international community and to undertake international responsibilities. We contributed to the reconstruction of Afghanistan, we made financial contributions to international organisations, and we provided personnel for numerous missions under the auspices of the United Nations, the OSCE, the EU, and the operations of the NATO -led partnership for Peace. In this connection I must single out the magnificent personal commitment of the Austrians who were involved in these missions, which were mostly carried out under difficult conditions with considerable danger to life, in order to provide help in crisis areas, to succour need, and to assist reconstruction. In the daily negotiations, too, the constructive participation, competence and expertise of the Austrian representatives have been widely appreciated. The appointment of Austrians to important functions in numerous international organisations, and the re-election of Austria to the UN Commission on Human Rights, all represent recognition of our work. And, not least, the events of September 11 brought the issue of international crime prevention into the forefront of global awareness and have led to the strengthening of the Vienna-based units of the United Nations – a development that has the full support of Austria’s foreign policy.

Another of Austria’s strengths is its cultural presence on the international scene. Culture dominates Austria’s image abroad, and for many people in other countries it is the most important point of contact with our land. It is therefore self-evident that cultural activities abroad are and will remain one of the central pillars of Austria’s foreign policy. As a means of strengthening this pillar, and adapting it to contemporary demands, it was subjected to a comprehensive process of reform in 2001. One of the core elements of this reformed policy is the focussing of its activities on 28 newly created Austrian Cultural Forums. Another important development, which also directly benefits the culturally creative community, is the reduction of administrative costs to the advantage of the operational budgets. The enhanced local autonomy of the Cultural Forums will increase efficiency and adaptability of Austria’s cultural presence abroad. A new common logo will also enhance its identity and public effectiveness. The regional focus on our neighbours in Central and Eastern Europe and the Balkans as well as our development cooperation partners, in addition to the most important cultural centres in the world, will also contribute to more efficiency.

Austrians who reside temporarily or permanently in other countries are acquainted with the work of my ministry and its representatives abroad in the first instance as a reliable service centre. This service extends from up-to-date information - now also available on the Internet – in the interests of the safety of Austrian travellers, to assistance in cases of emergency. The Citizens’ Service in the Ministry is available 24 hours a day, including weekends and holidays. The Austrian government has declared 2002 to be the Year of Austrians Abroad as a means of increasing awareness of the importance and the interests of the numerous Austrian citizens who live in other countries.

I must not fail to point out that the enormous spectrum of political, economic, development, legal, humanitarian, cultural, consular and administrative tasks that are subsumed under the name of foreign policy could not be carried out without the wholehearted commitment and energy of the staff of the Federal Ministry for Foreign Affairs. The diplomatic service – something that is often overlooked - is burdened with numerous disadvantages for individual members and their families, including postings to regions with significant security risks. Despite this, the personnel of my Ministry are characterised by their high degree of motivation, professionalism, and enthusiasm for their service to Austria and its citizens. This is impressively reflected in the balance of activities for the year 2001.

To conclude, I hope that the Austrian Foreign Policy Yearbook will prove to be a useful handbook and reference source that provides a succinct review of Austria’s foreign policy in all its aspects. Austria’s role as a small but self-confident state, which views its task as that of an advocate of peace, human rights and dignity, and which stands for the principles of solidarity, responsibility and reliability, runs like a red thread throughout the labyrinth of international relations in our complex world. I believe that the foregoing report convincingly documents that this concept has stood us in good stead, and that it has enhanced Austria’s position amidst a difficult world political situation.

Dr. Benita Ferrero-Waldner
Federal Minister for Foreign Affairs