Switzerland has long been synonymous with neutrality in international affairs, alongside its renowned banking services and picturesque mountain landscapes. The Swiss model stands as the most emblematic example of political neutrality worldwide. However, a new direction seems to be emerging, given the unconventional steps and shifts the European nation has taken recently.
For centuries, the Swiss have maintained their country's neutrality, but this age-old tradition is now under scrutiny amid heightened global polarization. Switzerland's evolving stance on Middle Eastern issues exemplifies this shift, with the latest development being the Swiss Parliament's decision on December 17, 2024, to ban the Lebanese Hezbollah party.
Emerging Positions
The Swiss Parliament's decision to ban Hezbollah on December 17, 2024, and Hamas a week earlier, has raised questions about Switzerland's sudden shift in approach to Middle Eastern conflicts, marking a clear alignment with one side of the conflict. Until recently, Switzerland had only banned al-Qaeda and ISIS, limiting itself to adopting UN-imposed sanctions on terrorist organizations. The recent decisions against Hezbollah and Hamas entail a ban on all activities related to either group on Swiss soil, along with legal measures against individuals associated with them. These measures also apply to financial assets and transactions.
The shift coincides with the growing influence of pro-Israel voices in the Swiss Parliament, particularly with the rise of the right-wing Swiss People's Party. Although the European Union classified Hezbollah's military wing as a terrorist organization in 2013, with other European countries following suit by designating the entire party as such, Switzerland remained neutral.
Germany's labeling of Hezbollah as a terrorist organization in 2020 prompted Israel to exert significant pressure on Switzerland, leading to the launch of an investigation. The final report, published in November 2022 after two years of inquiry, concluded that the Swiss government would not ban Hezbollah or classify it as a terrorist organization. According to the report, Hezbollah does not exploit Switzerland's financial sector to raise funds or launder money for its military wing. While a small number of individuals with political or familial ties to Hezbollah reside in Switzerland, no evidence of Hezbollah-directed activities was found. The report also noted that ideologically aligned religious centers are few, with fundraising activities limited to sustaining their operations and no member recruitment. These centers' activities are confined to anti-Israel rhetoric. Ultimately, the report concluded that Hezbollah poses minimal threat to Switzerland, both politically and security-wise, with no likelihood of operations being carried out on Swiss soil.
The recent decision to ban Hezbollah was spearheaded by David Zuberbühler, a member of the Swiss People's Party, with support from Marianne Binder-Keller of the Christian Democratic People's Party (now the Center Party). In the National Council (lower house), the decision passed with 126 votes in favor, 20 against, and 41 abstentions. Previously, the Council of States (upper house) had approved a similar proposal with 31 votes in favor, one against, and 10 abstentions. The decision is now binding, requiring the Federal Council (government) to draft legislation for its implementation.
Switzerland's stance on funding the United Nations Relief and Works Agency for Palestine Refugees (UNRWA) has been fluctuating. After initially suspending its contribution, Switzerland reinstated it, only to face renewed efforts to halt the funding completely. In December 2023, the National Council supported ceasing UNRWA funding, but the Council of States narrowly blocked this move. Consequently, Switzerland's 2024 contribution was halved from 20 million Swiss francs ($23 million).
The debate over UNRWA funding persists in Switzerland. On September 9, 2024, the National Council approved a proposal by the right-wing Swiss People's Party to stop funding the agency, citing alleged complicity with Hamas. While the Council of States deliberates on this decision, the Foreign Ministry opposes it, cautioning about potential consequences.
Further legislative action occurred in December 2024 when the National Council endorsed another proposal to remove UNRWA funding from Switzerland's development aid budget. The Council of States postponed their decision, prompting the Foreign Affairs Committee to conduct hearings on the matter.
Pro-Israel advocacy in Switzerland extends beyond legislative efforts. In a notable incident last year, Jean-Daniel Ruch, a candidate for the newly created State Secretary for Security Policy position, was disqualified before taking office due to alleged Hamas connections. Ruch had met Khaled Meshaal, then head of Hamas' political bureau, during an official diplomatic mission in 2012. Alfred Heer of the Swiss People's Party spearheaded the campaign against Ruch, reportedly with support from Israeli authorities, according to Swiss diplomats. The Swiss People's Party also attempted to broaden the ban on Hamas to include non-affiliated organizations with similar ideologies, but this initiative was unsuccessful.
Redefining Neutrality
Switzerland embraces one of the world's most robust forms of neutrality. Recognized by major powers following the Congress of Vienna in 1815, this enduring tradition has evolved into a cornerstone of Swiss national identity. Surviving two world wars unscathed profoundly shaped the national psyche, convincing generations of Swiss citizens that neutrality was the optimal policy to safeguard their livelihoods in a small nation. Over time, neutrality transformed into a value and identity worth preserving. While not enshrined in the constitution, the policy, later formalized as the "Bindschedler Doctrine," has guided generations of Swiss foreign policymakers and remains a respected approach.
International organizations have long favored Switzerland as their headquarters. Geneva hosted the League of Nations' headquarters, which subsequently became one of the four main offices of the United Nations. To maintain its neutrality, Switzerland has refrained from joining the European Union and only joined the UN in 2002. Public opinion polls have consistently demonstrated overwhelming support for neutrality. Since the Cold War's end, the Center for Security Studies (CSS) in Zurich has conducted annual polls on various security issues, revealing strong public backing for maintaining neutrality.
The Russian invasion of Ukraine in February 2022 destabilized Europe's security framework, prompting Switzerland to question its identity and repeatedly explain its policies to Western partners. Contradictory statements from Swiss officials drew significant criticism, with some viewing Switzerland as a "free rider" unwilling to cooperate with European nations. Arguments emerged suggesting that Switzerland should contribute if it wanted to benefit from European assistance. Recently, Swiss politicians have expressed divergent views on neutrality. The Federal Council has shown willingness to cooperate with NATO and the EU on security and defense, while the Swiss People's Party (the largest party in the country) and left-wing parties have opposed such moves.
In August 2024, a report commissioned by the Swiss Defense Minister advocated for increased cooperation with NATO, including the potential participation of Swiss soldiers in joint military exercises abroad. Such a possibility would have been unthinkable just a year earlier, marking a significant shift in Swiss policy. The report ignited widespread debate even before its publication, with opposition parties accusing Viola Amherd, the current Swiss President, of stacking the expert committee with staunch NATO and EU supporters.
Following Russia's invasion of Ukraine in 2022, the Swiss government adopted the same sanctions imposed by the EU, arguing that this action did not violate neutrality. Switzerland had previously imposed sanctions in 2014 in response to Russia's annexation of Crimea, albeit with less stringent enforcement compared to EU countries. The Swiss People's Party opposes this approach, citing U.S. President Joe Biden's 2022 remark that "even Switzerland" joined the sanctions against Russia. The party contends that neutrality is undermined when circumvented through economic sanctions.
In response to these developments, the Swiss People's Party, along with left-wing groups, has called for a referendum to redefine neutrality in the constitution. By early 2024, 100,000 signatures were collected to support the referendum, which is expected to take place by 2028. The referendum aims to determine whether economic sanctions contradict Swiss neutrality.
Since the Ukraine war's outbreak, Switzerland has taken unprecedented steps. It secured its first-ever seat on the UN Security Council for the 2023-2024 term. The government plans to increase defense spending by up to 19% over the next four years, while cutting overall government spending by 1.4% in other departments. On April 10, 2024, the Federal Council approved Switzerland's participation in the European Sky Shield Initiative, launched by Germany in response to the Ukraine war. The initiative aims to build an integrated air and missile defense system across Europe, sparking significant debate. The Swiss government insists it aligns with its neutrality and imposes no binding commitments, allowing Switzerland to decide its level of participation and retain the right to withdraw if any member becomes involved in a war.
The debate in Switzerland revolves around two main approaches. One advocates for foreign policy steps leaning more toward supporting Israel, while the other calls for stricter stances against Russia. Both sides accuse each other of violating the principle of neutrality, using it as an argument to hinder the opposing side's moves. This dynamic is part of a broader trend across Europe, marked by the rise of far-right movements skeptical of European Union cooperation. Switzerland is no exception to this trend, despite its unique position.
Impact on Mediation
Switzerland's new direction raises concerns about its continued role in mediating conflicts, especially in the Middle East and the Ukraine crisis. Swiss diplomacy has traditionally maintained an open-door policy under the motto "talking to everyone." For decades, Bern has played a crucial role in facilitating communication between nations with severed ties, such as the U.S. and Iran since 1980. Swiss diplomatic efforts have led to significant results in fostering dialogue between these two sides over four decades.
Recognizing this important role, the Federal Council opposed the ban on Hezbollah. Justice Minister Beat Jans warned that Switzerland's credibility as a neutral state capable of "building bridges" was at stake. Previously, Switzerland's neutrality allowed it to mediate in the Palestinian issue and engage with Hamas, particularly after 2006. Despite the recent ban, Justice Minister Jans suggested that dialogue with Hamas could continue.
However, Nicolas Walder of the Green Party cautioned that Switzerland would no longer be able to host negotiations between Hamas and Israel. He also noted that trust in Bern among Arab states is eroding due to its perceived bias in the Israeli-Palestinian conflict.
A Federal Council report from October 2022 cautioned that prohibiting Hezbollah could potentially undermine Switzerland's humanitarian efforts in Lebanon and jeopardize its credibility as a neutral state. Zuberbühler, spearheading the campaign to outlaw Hezbollah, contended that Switzerland's role as a trusted peace mediator is compromised if it overlooks "anti-Semitism" and terrorism, thus justifying the shift towards alignment on issues he deems consistent with Swiss identity.
The Swiss government maintains that a culture of bans is incompatible with its foreign policy. It argues that proscribing Hezbollah raises questions about where to draw boundaries, presenting unprecedented challenges for Swiss foreign policy and potentially reshaping its role in the Middle East.
Notably, the Swiss Foreign Ministry has exhibited diminishing enthusiasm for its traditional role in the Israeli-Palestinian conflict. In 2022, it resolved to withdraw financial support for the Geneva Initiative by the end of 2023. This initiative, which advocates for a two-state solution, was previously developed under Swiss academic supervision. Switzerland's involvement in this issue has faced increasing scrutiny, particularly in the wake of Hamas's Operation Al-Aqsa Flood on October 7, 2023.
In conclusion, the Russian war in Ukraine and the shifting geopolitical landscape have shaken Switzerland's worldview and its position as a neutral state in an increasingly polarized region. International divisions following Operation Al-Aqsa Flood on October 7 and the subsequent Western alignment in support of Israel have compelled Switzerland to reassess its foreign policy.
The upcoming period will likely witness intense internal debates in Switzerland regarding the interpretation of neutrality. One faction seeks to adapt it to allow closer ties with NATO in confronting Russia, while another aims to align it with pro-Israel stances in the Middle East. A third group advocates for a stricter interpretation to preserve this long-standing tradition.
Amid these discussions, Switzerland's role as an international mediator faces potential risks. The country is transitioning from a neutral party accepted by all sides to an actor with clear alignments in various conflicts. Nevertheless, fundamental changes to the concept of neutrality remain under deliberation, and no proposals suggest a radical shift or complete break from this historic tradition.
