From The Sleepwalkers: How Europe Went to War in 1914, by Christopher Clark (Harper, 2013), pp. 65-67:
Two military disasters defined the trajectory of the Habsburg Empire in the last half-century of its existence. At Solferino in 1859, French and Piedmontese forces prevailed over an army of 100,000 Austrian troops, opening the way to the creation of a new Italian nation-state. At Königgrätz in 1866, the Prussians destroyed an Austrian army of 240,000, ejecting the empire from the emergent German nation-state. The cumulative impact of these shocks transformed the inner life of the Austrian lands.
Shaken by military defeat, the neo-absolutist Austrian Empire metamorphosed into the Austro-Hungarian Empire. Under the Compromise hammered out in 1867, power was shared out between the two dominant nationalities, the Germans in the west and the Hungarians in the east. What emerged was a unique polity, like an egg with two yolks, in which the Kingdom of Hungary and a territory centred on the Austrian lands and often called Cisleithania (meaning ‘the lands on this side of the River Leithe’) lived side by side within the translucent envelope of a Habsburg dual monarchy. Each of the two entities had its own parliament, but there was no common prime minister and no common cabinet. Only foreign affairs, defence and defence-related aspects of finance were handled by ‘joint ministers’ who were answerable directly to the Emperor. Matters of interest to the empire as a whole could not be discussed in common parliamentary session, because to do so would have implied that the Kingdom of Hungary was merely the subordinate part of some larger imperial entity. Instead, an exchange of views had to take place between the ‘delegations’, groups of thirty deputies from each parliament, who met alternately in Vienna and Budapest.
The dualist compromise had many enemies at the time and has had many critics since. In the eyes of hardline Magyar nationalists, it was a sell-out that denied the Hungarians the full national independence that was their due. Some claimed that Austria was still exploiting the Kingdom of Hungary as an agrarian colony. Vienna’s refusal to relinquish control over the armed forces and create a separate and equal Hungarian army was especially contentious – a constitutional crisis over this question paralysed the empire’s political life in 1905. On the other hand, Austrian Germans argued that the Hungarians were freeloading on the more advanced economy of the Austrian lands, and ought to pay a higher share of the empire’s running costs. Conflict was programmed into the system, because the Compromise required that the two imperial ‘halves’ renegotiate every ten years the customs union by which revenues and taxation were shared out between them. The demands of the Hungarians became bolder with every review of the union. And there was little in the Compromise to recommend it to the political elites of the other national minorities, who had in effect been placed under the tutelage of the two ‘master races’. The first post-Compromise Hungarian prime minister, Gyula Andrássy, captured this aspect of the settlement when he commented to his Austrian counterpart: ‘You look after your Slavs and we’ll look after ours.’ The last decades before the outbreak of war were increasingly dominated by the struggle for national rights among the empire’s eleven official nationalities – Germans, Hungarians, Czechs, Slovaks, Slovenes, Croats, Serbs, Romanians, Ruthenians, Poles and Italians.
How these challenges were met varied between the two imperial halves. The Hungarians dealt with the nationalities problem mainly by behaving as if it didn’t exist. The kingdom’s electoral franchise extended to only 6 per cent of the population because it was pegged to a property qualification that favoured the Magyars, who made up the bulk of the wealthier strata of the population. The result was that Magyar deputies, though they represented only 48.1 per cent of the population, controlled over 90 per cent of the parliamentary seats. The 3 million Romanians of Transylvania, the largest of the kingdom’s national minorities, comprised 15.4 per cent of the population, but held only five of the Hungarian parliament’s 400-odd seats. From the late 1870s, moreover, the Hungarian government pursued a campaign of aggressive ‘Magyarization’. Education laws imposed the use of the Magyar language on all state and faith schools, even those catering to children of kindergarten age. Teachers were required to be fluent in Magyar and could be dismissed if they were found to be ‘hostile to the [Hungarian] state’. This degradation of language rights was underwritten by harsh measures against ethnic minority activists. Serbs from the Vojvodina in the south of the kingdom, Slovaks from the northern counties and Romanians from the Grand Duchy of Transylvania did occasionally collaborate in pursuit of minority objectives, but with little effect, since they could muster only a small number of mandates.
In Cisleithania, by contrast, successive administrations tampered endlessly with the system in order to accommodate minority demands. Franchise reforms in 1882 and 1907 (when virtually universal male suffrage was introduced) went some way towards levelling the political playing field. But these democratizing measures merely heightened the potential for national conflict, especially over the sensitive question of language use in public institutions such as schools, courts and administrative bodies.
Nowhere were the frictions generated by nationalist politics more in evidence than in the Cisleithanian parliament, which met from 1883 in a handsome neo-classical building on Vienna’s Ringstrasse. In this 516-seat legislature, the largest in Europe, the familiar spectrum of party-political ideological diversity was cross-cut by national affiliations producing a panoply of splinter groups and grouplets. Among the thirty-odd parties that held mandates after the 1907 elections, for example, were twenty-eight Czech Agrarians, eighteen Young Czechs (Radical nationalists), seventeen Czech Conservatives, seven Old Czechs (moderate nationalists), two Czech-Progressives (Realist tendency), one ‘wild’ (independent) Czech and nine Czech National Socialists. The Poles, the Germans, the Italians and even the Slovenes and the Ruthenes were similarly divided along ideological lines.
Since there was no official language in Cisleithania (by contrast with the Kingdom of Hungary), there was no single official language of parliamentary procedure. German, Czech, Polish, Ruthenian, Croat, Serbian, Slovenian, Italian, Romanian and Russian were all permitted. But no interpreters were provided, and there was no facility for recording or monitoring the content of speeches that were not in German, unless the deputy in question himself chose to supply the house with a translated text of his speech. Deputies from even the most insignificant factions could thus block unwelcome initiatives by delivering long speeches in a language that only a handful of their colleagues understood. Whether they were actually addressing the issues raised by the current motion, or simply reciting long poems in their own national idiom, was difficult to ascertain. The Czechs in particular were renowned for the baroque extravagance of their filibustering. The Cisleithanian parliament became a celebrated tourist attraction, especially in winter, when Viennese pleasure-seekers crowded into the heated visitors’ galleries. By contrast with the city’s theatres and opera houses, a Berlin journalist wrily observed, entry to parliamentary sessions was free.*
