The 19th-century Habsburg monarchy took as its raison d’etre acting to stabilize Mitteleuropa but failed to keep pace with either liberalism or nationalism. After the tumult of 1848, the dynasty’s repeated pursuit its own interests – the army and financial administration (i.e., taxation) – led to constitutional muddle which could not reconcile emergent peoples to German-flavored federalization. Surrendering the possibility of greater Germany after 1866, the empire turned away from liberalism following the crash of 1873, thereafter stumbling into the train of Magyar Hungary and Prussian Germany. The empire fell not because it was unworkable but since the national elites envied sovereignty without exercising responsibility. Her successors also struggled to convert the peasantry to liberalism, instead becoming agrarian democracies ill-equipped to manage power, as Metternich predicted.
The empire’s ‘missions’ had included defending Europe from Ottoman Turks in the 16th century, promoting the Counterrevolution in the 17th, and promoting Enlightenment in the 18th, as a means to the permanent, paramount cause of the dynasty’s honor and glory. In the 19th, it unsuccessfully sought to block Greater Germany, too late in seeking to enter the Zollverein and then the Confederation.
1620’s Battle of White Mountain determined the empire’s character: the Czech nation and Protestant religion was submerged, Germanic Austria extended to Bohemia. Hungary, reconquered after a final Turkish assault in 1683, sidestepped the same outcome in 1707 and 1711, latterly by the Peace of Szatmar in which the Magyars gained recognition for the county gentry’s managing judicial and fiscal matters (the comitat) in exchange for recognizing Charles VI as sovereign. The bargain was reinforced by 1740’s Pragmatic Sanction, intended to secure Maria Theresa’s succession, which swapped the indivisibility of Habsburg lands in illogical exchange for Magyar privileges. The pact foreshadowed 19th-century efforts to position the master-nation peoples (Germany, Hungary, Italy, and Poland) against one another.
Habsburg lands were entailed estates, not a nation, a collection of ‘Irelands’ whose nobility were loyal to Vienna (save those in Galicia and Italy). Imperial bureaucrats were town dwellers in Prague, Budapest, Zagreb, Brno, promoting the Enlightenment.
Joseph II (reigned 1765 as co-regent to 1780, then as monarch to 1790) saw the empire as Germanic, breaking with the Hungarian settlement and also the Catholic Church in the interest of a centralized state. Land reforms were intended to increase property subject to tax, but restricted sales among social classes, meaning the social (i.e., formative national) character of peasant communities was strengthened and not subsumed in German ways. Simultaneously, magnates amalgamated the lands of petty nobles, creating incipient capital. (Freeing Jews from restrictions typical of Russia created a class grateful to the dynasty.)
Following the Congress of Vienna, Francis II (Holy Roman Emperor from 1792-1806, then Emperor of Austria 1804-36) upheld Metternich’s system borne of 1819’s Carlsbad Decrees (imposing censorship and control of national university groups) as well as the Holy Alliance with Prussia and Russia, these the two pillars of the empire’s contribution to the Concert of Europe.
Metternich sought to arrange regional diets in support of the dynasty; but regional bodies in 1825 and 1830 had demanded the use of popular languages. He wrongly supposed the Magyars would be content with the post-Napoleonic settlement, but winning the Hungarian gentry to federalism would have meant ending comitat privileges and otherwise making liberal concessions. His rival, Kolovrat, standing as an independently wealthy Bohemian to a Rhinelander in need of dynastic employ, won control of domestic policy after balancing the crown’s accounts in 1831; Metternich regained sole control on Ferdinand’s 1835 succession. Louis Kossuth’s Magyar nationalism both made the running of awakening Diets and, like the Habsburgs, pursued pseudo-liberal policies, for instance in replacing Latin with Magyar but not Romanian (in Transylvania), Croatian, etc. Before 1848, this was mainly the handiwork of intellectuals in towns of more than 100,000 – Milan and Venice, Prague, Budapest – where a Rights of Man worldview was contending to supersede Germanic bourgeois liberalism. Italian nationalists sought not Magyar privilege but outright independence for Lombardy and Venetia, and so threatened Metternich’s entire domestic system as well as the policy of deterring French aggression.
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1848 commenced with February riots in Paris, then followed Budapest, where Kossuth perceived that unless the gentry acted radical intellectuals would capture the peasantry. The March laws, established in Bratislava’s diet (subsequently removed to the Hungarian capital), converted the constitution to recognizing solely Francis Joseph’s personal rule; abolished the Hungarian chancellery and set up a viceroy without reference to Vienna; incorporated Transylvania and Croatia; abolished the robot, established the Magyar language and enlarged suffrage; and established a separate army, budget, and foreign policy. Ferdinand acceded.
Bohemia simultaneously overreached, demanding unification of Bohemia, Moravia, and Silesia despite lack of historical precedent; Silesia was predominantly German, as were Moravian elites. In the Slav congress of June, Palacky launched Austroslavism, neither Russian nor German, as an alternate to Slav nationalism. The Prague meeting produced both a revolutionary manifesto, for instance seeking the reunion of Poland, and an address to the emperor calling for improved treatment of subject peoples. The bifurcation identified the substance of the empire’s final mission, its ‘decisive question’. Street fighting broke out, to be crushed by the imperial army; but the empire was not uniformly strong-willed.
In Lombardy, also in March, locals called for aid from the King of Sardinia, which invasion Radetzky was initially ordered not to resist, leading to claims on all Habsburg Italian lands; however, Germanic students in the Tyrol and Trieste remained loyal and so checked the momentum. The army in Lombardy-Venetia, having withdrawn to the Quadrilateral (Verona, Peschiera del Garda, Mantua, and Legnago between the Mincio and Adige rivers), recovered with Lombard victories in July and, following siege, Venetian surrender in August 1849.
In Vienna, Archduchess Sophia led the engineering of Metternich’s resignation; but Viennese middle and working classes went further – in April Windischgratz’s army narrowly kept order. The dynastic court fled to Innsbruck; ministers remaining in Vienna promulgated an imperial constitution styled on Belgium’s, and the following month, conceded a constituent assembly.
September’s Act of Emancipation was the most consequential legislation of Ferdinand’s reign, abolishing without compensation the hereditary (comitat) rights of landlords and the robot, while establishing peasant security of tenure. Subsequently, landowners were no longer interested to retain peasants, some of whom sold and moved to the towns, providing labor for industrialists and support for the swamping of German elites. Soon they wished for schooling in the vernacular, especially in Bohemia and Slovenia, and switched from opposing aristocrats to contending among one another as subject (i.e., incipient) nationalities. The abolition of hereditary jurisdiction ceded power to imperial officials, but only in Hungary did the decline of petty gentry matter – elsewhere it was too small – and remaining peasants lost their revolutionary fervor.
Broadly, the court and revolutionaries each came to accepted remodeling along the lines of the master nations; the dynasty preserved but was never serious about working the subject peoples. Habsburg policy acknowledged Croatia but not Transylvania, which was left to the Magyars. Bohemia exposed its dilemma, for the regional elite’s Germanic character had given way. The bourgeois retreated from these views as the revolutionary tide receded, but had indicated a fundamental preference for German confederation.
Insurrection had not ended: in October, Viennese radicals rose, but were unsupported by peasants in lower or upper Austria and suppressed by Windischgratz. At the same time the restored Croat leader Jellacic invaded Hungary, effectively rescinding Habsburg acceptance of the March Laws while also indicating the Magyars would not be free of popular discontent. Jellacic, after helping suppress Vienna, was defeated. Ferdinand abdicated in December; in March 1849 Francis Joseph issued the centralizing March constitution. Kossuth declared independence, which went unrecognized and prompted Russia’s May invasion, restoring matters to status quo ante. Hence both greater Germany and national Austria failed in 1848, and national Hungary in 1849.
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Afterward, the already dwindling German elites hoped for revived imperialism, while fissiparous peoples such as the Bohemian Czechs wished for federalism. The dynasty thus reasserted itself as ruling subject peoples – the ‘empire of 70 millions’ – whom Francis Joseph trusted no more than liberalism. The Bach system launched with 1850’s abolishment of Hungarian tariffs, persisting until 1859. The decade saw great capital investment especially in railroads, but 1857’s crisis shook liberal faith. Foreign affairs predominated: as in Metternich’s time policy sought to deter French interest in Italy and check Russia’s pursuit of Danubian principalities as a route to Turkey. The Crimean war’s outcome blocked the latter, yet the empire lost. Russia blamed her for threatening to join the allies, while the allies thought the war could have been prevented had she done so earlier. Worse, the allies had stopped Russia alone, and the Peace of Paris stopped Austria herself advancing to the mouth of the Danube. The empire’s Mitteleuropa mission was compromised.
Martial law was lifted form Lombardy-Venetia in 1857; the following year Napoleon III agreed to help Cavour expel the Austrians. Sardinia was given an ultimatum to disarm, but the Habsburg army mobilized more slowly than the French. Radetzky lost at Magenta and then Solferino. Peace, struck directly between France and the empire, surrendered Lombardy but not Venetia or the Quadrilateral, and demonstrated the dynasty must share power with the master nations. The prestige of the army, vital to survival in 1848, suffered.
The October Diploma of 1860 was intended as a federalist document, with legislation to derive from the diets and a Reichsrat. The countervailing February Patent of 1861 made the Vienna parliament imperial, the diets reduced to acting as regional electoral colleges. Voting was weighted for urban Germans and landlords. Neither addressed the erstwhile Hungarian concessions of 1848. Francis Joseph insisted the Reichsrat must never interfere with foreign policy or the army, never to relent.
Then followed constitutional absolutism under Schmerling. In 1863 the minister persuaded Francis Joseph to bid for leadership of the German confederation; Prussia declined to attend a Frankfurt convention, and subsequently thwarted the empire’s application to the Zollverein. Austrian bourgeois and intellectuals, mistakenly thinking the Habsburgs to be turning to German rationalism, wholly went over to the Habsburgs (as German liberals would the Hohenzollerns in 1866).
Francis Deak, repudiating the scope of Kossuth’s ambitions, thought the Magyars could not oppose both the Habsburgs and Hungary’s own subject peoples, and so chose to ally with the empire, to reassert as a historic Habsburg nation. Publishing Magyar demands in the summer of 1865, he drew Francis Joseph to Budapest to recognize the grants of 1848. Schmerling fell. Hungary’s gains came at the expense of the Reichsrat: Deak demanded a ministry responsible to the emperor, Belcredi – appointed to resolve Hungarian matters so as to prepare for Prussian war – countered with a comitat and ‘national’ diet. Andrassy, returned from exile with Kossuth, suggested a compromise of delegations of Hungarians and Austrians that would be responsible for internal matters and work together on imperial matters (i.e., the nationalities), essentially the basis of 1867’s dualism.
After 1863, war with Prussia was inevitable: Italy allied with the Hohenzollerns, refusing the empire’s belated offer to cede Venetia (which was then offered to France). Routing Austria at Sadowa in July 1866, Bismarck opened negotiations promptly, to block French or Russian participation, which resulted in Austria’s final exclusion from unified Germany.
Beust, a Saxon, succeeded to the mission of pacifying subject peoples, so as to restore the anti-Prussian possibility of empire. And again Hungary was to be mollified. He revived the February Patent, narrowing the Reichsrat to ‘constitutional Austria’, the emperor retaining sole control of foreign policy and the military. Under the Dualist settlement, each delegation had 60 members, the Austrian side imperial in scope, the Hungarian strictly national. Economic policy was shared between the two delegations, tariffs among the empire were to be settled very 10 years, generally creating leverage for the Hungarian magnates’ agrarian demands at the expense of imperial industrial interests in cheap food. The empire’s declining aristocracy acceded because of its unwillingness to rule; the liberals did not understand they had no real role; the dynasty was content with maneuvering to retain power; Dualism was a return to Bach.
Francis Joseph resented the liberals’ interference with Dualism over 1867-79, and so doubled down on the Magyars. Hungary after 1867 had seen the disappearance of 100,000 landowners, resulting in one-third of the country being owned by magnates, one-fifth by some 300 families. Agrarian protection turned the magnates into nationalists, much as the Junkers became German patriots. Land reform having killed Austria’s regional nobles, capitalist successors concentrated in Vienna, weakening any would-be federalism. But the economic crisis of 1873 shook industrialist and bourgeois faith in liberalism: they turned for protection to the Habsburg state, simultaneously making way for nationalism. In the succeeding era of 1879-93, Taafe balanced the subject peoples. The Czechs, able to compete for jobs, turned loyal to constitutional Austria; but this produced Germanic backlash. Proposals to extend the franchise raised more fears. He was dismissed in favor of a nationalities coalition of ministers, another Habsburg reverse of course, again government disrupted while administration persisted.
Austria in her final years was a vast body of state servants, amid three competing constitutional frameworks – the October Diploma, the February Patent, and Dualism. Every year the provinces gained responsibility, yet could not contain nationalist discontent, but only relay it to the Reichsrat. There being very little power in the private sector, every small matter of railway, schools, or postal appointment was politically fraught. In the 1890s the price of defeating liberalism emerged as the diversion of emergent middle-class aspirations to national autonomy, which redounded to claims that eventually reached further than parliamentary purview of foreign policy and the army. Loyalty to the emperor no longer sufficed for intellectuals or urban classes, as it had for the military and bureaucracy. Indeed, Christian socialism (more populist than Germany’s Center) and Social democracy presented more alternatives; while these acted to deny nationalist claims, they sought for the same distributive socioeconomic functions.
The dynasty achieved liberty to manage constitutional Austria by following a foreign policy sympathetic to Germany. When the latter abandoned Bismarck’s pacificism for Weltpolitik, the empire and its peoples became beholden to Germany’s bid for mastery of Europe – no liberty after all. Austria-Hungary was neutral in the 1877-78 Russo-Turkish war but consequently gained responsibility for Bosnia-Herzegovina, adding Slavs to the empire, which reinforced the Bismarckian intention of Germanic predominance in the Balkans. But the chancellor’s dismissal led to Wilhem II committing Germany to follow Austrian lead in the Balkans in 1889. 1905’s Moroccan crisis, Germany’s first attempt to subdue France and Russia, was the dynasty’s last independent effort.
The Austro-Russian entente of 1897, which swapped Russian non-interference in the Balkans for recognition of her interests in the Straits, was intended to promote domestic stability. Instead it enabled subject peoples to make claims of the dynasty, e.g., fuller use of the Czech language in Bohemia. These prompted German demonstrations in Austria, unprecedented since 1848, and thence Badeni’s dismissal. The same year, Hungarian tariff negotiations, eventually postponed to 1903, opened new attacks on Dualism (e.g., against the common army), prompting further protest from the German ‘people of state’.
The final dynasty’s insurmountable challenge would come from the South Slav idea. Strosmajer (not Tito) was the real creator of the South Slav idea, but his conception didn’t reconcile the Serbs (who’d fought Turks) and Croats (who’s opposed Magyars and sometimes Habsburgs); the Serbs took their culture from Paris, the Croats from Germany; Slovenia, isolated from both by the Hungarian frontier, naturally allied with the Czechs. All the missteps of 1907-14 sprang from mistaking Serbia, totem of the South Slavs, for Piedmont. The Magyar proposal to make Hungarian the sole language of local rails, even in Croatia, aggravated Serbo-Croat intellectuals. More significant, Bosnia-Herzegovina was annexed in 1908, in exchange for Austria’s supporting Russian warships passing through the Dardanelles. Supervision was justified, annexation was not. In the late days of the empire, military spending lagged behind the other Great Powers.
Magyar support for Germany in World War I was Hungary’s foremost concession to greater Germany. Kossuth had expected that for Mitteleuropa’s nationalities to emerge, the empire must fall. Tisza supposed Hungary could remain independent of Germany too because the Prussians were reliably anti-Slav. He checked Germany attempts to win over Romania via Transylvanian concession. Most nationalities had 2-3 natural opponents, the Czechs only the Germans, fearing victory as fatal to an independent Bohemia. Francis Joseph passed in 1916, succeeded by Charles, who sought Magyar mollification and independent negotiation with the allies. Tisza threatened to withhold food. The Czechs demanded to add Hungarian Slovakia. The Poles finally broke with the empire over the Treaty of Brest-Litovsk’s recognizing a Ukraine which included parts of historic Poland. In 1848 the threat of social revolution rallied the upper classes to the dynasty. In the war’s dying stages, they sought strength in nationalism. Masaryk won Wilson away from the ‘Austrian mission’ of federalism to self-determination, aided by American Slovaks willing to support to the new Czech state.
The empire’s successors faced problems in establishing domestic authority and security against revanchist Germany. They were little better than the Habsburgs. Czechoslovakia and Yugoslavia, borne of nationalist expression, became new versions of the Austrian idea.
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Rather than narrate events and draw conclusions, Taylor deduces ineluctable logic, a technique dependent on construction or interpretation. Further, his is often discursive, constantly renewed with addition, subtraction, refinement.