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Nullmeier, Frank

Working Paper Out of the public eye: The International Labour Organisation in the media

ZeS-Arbeitspapier, No. 01/2014

Provided in Cooperation with: University of Bremen, Centre for Social Policy Research (ZeS)

Suggested Citation: Nullmeier, Frank (2014) : Out of the public eye: The International Labour Organisation in the media, ZeS-Arbeitspapier, No. 01/2014, Universität Bremen, Zentrum für Sozialpolitik (ZeS), Bremen

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Out of the Public Eye – The International Labour Organisation in the Media

ZeS-Working Paper No. 01/2014 WORKING PAPERS

Zentrum für Sozialpolitik Universität Bremen Postfach 33 04 40 28334 Bremen Phone: 0421 / 218-58500 Fax: 0421 / 218-58622 E-mail: [email protected] Editor: Kristin Bothur http://www.zes.uni-bremen.de Design: cappovision, Frau Wild ZeS-Arbeitspapiere ISSN 1436-7203

2 Frank Nullmeier

Out of the Public Eye – The International Labour Organisation in the Media

ZeS-Working Paper No. 01/2014

Prof. Dr. Frank Nullmeier University of Bremen, Centre for Social Policy Research (ZeS) [email protected]

3 Politics takes place in public communication and is part of public communication. Today, public communication is substantially determined by the media. This is also the case for the field of global social policy. The following study address-

summary es the question of how global social policy and, in particular, the International Labour Organization (ILO) as the key player in global social policy, is discussed in the media. Are global social policy and the ILO visible at all in the media? To what extent is the organisation visible? How do the media report about the ILO and on what exactly does media coverage of the ILO focus?

4 WORKING PAPERS 01/ 2014 g

Politik vollzieht sich in öffentlicher Kommunikation. Und diese wird wesentlich durch mediale Angebote bestimmt. Das trifft auch auf die globale Sozialpolitik zu. Die vorlieg- n assu ende Studie beschäftigt sich mit der Frage, wie globale So- zialpolitik — und insbesondere die Internationale Arbeitsor- nf ganisation (ILO) als deren zentraler Akteur — in den Medien dargestellt werden. Wie hoch ist die mediale Aufmerksam- keit für das Thema globale Sozialpolitik? Zu welchen Anläs- sen wird die Presse auf die ILO aufmerksam? Wie sichtbar ist die ILO als Organisation, als politischer Akteur und als Informationsgeber? Wie berichten die Medien über die ILO und welches Bild dieser internationalen Organisation entste- ht dadurch? zusamme

5 6 WORKING PAPERS 01/ 2014 n t

1. Global Social Policy and the Media 8 n te

co 2. The ILO in the Media 9

3. The ILO as Data Supplier and Norm Setter 13

4. Organisational Events, Political Programmes, and Leadership 16

5. Issues 20

6. The ILO – A Legitimate International Organisation 22

7. Summary 26

8. References 27

7 1. Global Social Policy and the Media

Politics is not only played out in commit- ferent world regions occasionally reaches tees, at international conferences, and in the public on a global, national, and local negotiations between parties, diplomats, level. However, only very rarely are these heads of state and government. Civic pro- acts of selective attention accompanied by tests and social movement campaigns a debate that succeeds in putting the issue also do not complete the picture. Poli- on the political agenda for a longer time tics is inconceivable without the public or for that matter succeeds in shaping sphere. Politics takes place in public com- the options of core political institutions munication and is part of public commu- relevant in the field. What is more, the nication. Today, public communication is term global social policy is not present in substantially determined by the media. the media, global social policy is not per- This is also the case for the field of 'global ceived and labelled as a policy field, and it social policy'. The following study ad- only arouses public attention in the form dresses the question of how global social of single manifestations. There is a lack policy and, in particular, the International of an independent and delineable policy Labour Organization (ILO) as the key play- field that connects national social policy, er in global social policy (Deacon 2007; development policy, and the worldwide Hughes/Haworth 2011; Kott/Droux 2013), fight against poverty. is discussed in the media. Are global so- That global policies can have a com- cial policy and the ILO visible at all in the pletely different media effect can be illus- media? To what extent is the organisation trated by considering the example of cli- visible? How do the media report about mate policy. This policy field significantly the ILO and on what exactly does media arouses media attention; international coverage of the ILO focus? conferences are intensively observed A first preliminary response to the events worldwide (Couldry et al. 2010). questions is negative. Global social policy This is especially true for the UN Cli- has not yet become a political issue that mate Change Conference that took place manages to arouse broader public atten- in Copenhagen in 2009. The outstanding tion beyond the expert field of interna- public perception of this policy field is tional organisations (IOs). The financial connected to a framing that presents the market crisis and the subsequent Great latter as a compellingly global political Recession have not changed matters. issue. According to this framing, climate The issue of social regulation, worldwide problems are only to be solved through trade, global poverty, child and forced la- international cooperation or transnational bour, the suppression of trade unions, the interactions of citizens all over the world. non-compliance with health and safety at Social policy, on the other hand, is pre- work standards, and the development of dominantly identified to be a national is- youth unemployment and salaries in dif- sue. The notion that solutions can only be

8 WORKING PAPERS 01/ 2014 found globally or internationally does not governmental agreement on the baseline exist. Questions related to social security of these policies – as is the case in the are perceived to be dependent on national eurozone. Thus, the difference between economic performance and the interna- climate policy and global social policy tional competitiveness of national econo- could hardly be greater. While there is a mies. The global financial crisis and the high level of public attention for climate eurozone crisis have, indeed, deepened policy framed as a problem that can only the understanding of the functioning of be solved globally, global social policy is global economies. Yet, the task to cope lacking both media reception and a fram- with the social consequences of global ing that constructs social problems as a economic crises is attributed to national predominantly global issue. policies, even if there has been an inter-

2. The ILO in the Media

This first summary approach towards the national is shaped by the global or how the role of global social policy in the media national political agenda opens itself to is- will be further examined by conducting a sues dealing with global policies, here be- detailed empirical investigation of the me- ing social policy, can be scrutinized. Ac- dia presence of the ILO, which is rich in cordingly, even if national public spheres tradition and politically still the most sig- are taken as a starting point, the study nificant organisation of global social poli- will have to focus on particular types of cy (Rodgers et al. 2009; Hughes/Haworth media, putting up with a certain degree 2011; Maul 2012; Kott/Droux 2013). As a of selectivity. In international communica- global actor, the ILO acts on a worldwide tion studies and in political sociology, it scale as far as its self-presentation and its has become common to select at least two press policy is concerned. The following quality newspapers of diverging political study takes national public spheres as a orientation for the study of national public starting point (Esser/Pfetsch 2004; Hal- spheres. Following this general standard, lin/Mancini 2004; Hardy 2008; de Vreese the present study analyses how often and 2013). This approach makes it possible to in the context of which issues the ILO is examine to what extent global social poli- mentioned in national public spheres (two cy and the ILO are present in the media on quality newspapers were chosen for each a national level – this is exactly the level country). The study conducts an analysis on which social policy has hitherto been of all articles that mention the ILO for a dealt with. Thus, the extent to which the time span of seven years (2006 to 2012).

9 It comprises articles dealing with the ILO the task of examining the media presence before and after the world financial crisis. of the ILO, this study will conduct a more Thus, possible effects of the changed eco- encompassing analysis of newspaper ar- nomic situation can be captured. It was ticles. Such an approach was facilitated necessary and feasible to include all arti- practically and methodologically by the cles mentioning the ILO into the analysis, low level of public attention for the ILO given that the total number is rather low. and its policies. For the present study, all If the study chose to introduce a further forms of evaluative statements are coded restriction with respect to the period of following the approach of valuation analy- analysis – on the basis of so-called 'con- sis (Schmidtke/Nullmeier 2011). Addi- structed weeks' or by focusing on cer- tionally, descriptive, explanatory and pre- tain recurring events – the number of re- scriptive statements are also analysed in trieved articles would not have been high the retrieved newspaper articles. enough. Given that the period of analysis The abundance of different methods comprising seven years is rather long, of analysis, however, makes it necessary it was necessary to limit the number of to stick to a theoretical concept in order analysed national public spheres. Three to choose an analytical focus. In Inter- countries (Great Britain, Germany, and national Relations (Zürn/Ecker-Ehrhardt Switzerland) were chosen to study the 2013) and European Integration Studies media presence of the ILO: With the ex- (Koopmans/Statham 2010; Statham/Trenz ception of the country in which the ILO 2013) the term 'politicisation' has gained is located (Switzerland), two further Eu- ground in order to describe the turn from ropean countries that represent diverg- an 'international' world of states and di- ing social-political traditions were chosen plomats to a transnational world of non- (according to the differentiation between governmental organisations, international 'Beveridge' and 'Bismarck' which is com- organisations, transnational corporations, monly applied to social security systems). states, and a range of further actors who In contrast to studies that deal with populate the world of global governance. other international organisations (UN), su- The transnational world of politics is, pranational organisations (EU), and club however, exposed to mechanisms that are governance regimes (G8) with a similar also valid on the national political level. data basis and methodology (Nullmeier et The objective of the term 'politicisation' al. 2010), this study will not only concen- is to illustrate these processes. Research- trate on legitimation statements in order ers draw on media communication and to analyse the media presence of the ILO. the resonance of international politics in Legitimation statements are statements public spheres relying on text analysis that positively or negatively evaluate an of quality newspapers. Especially for the organisation as a whole (as a political re- EU there are detailed empirical results gime). Thus, legitimation statements only (Statham/Trenz 2013; Wessler et al. 2008; constitute a small part of all statements Risse 2010). The EU gains a considerable dealing with an IO in the media. Given amount of attention in national public

10 WORKING PAPERS 01/ 2014 spheres, which is a vital precondition for ber of articles mentioning the ILO in na- dealing with the question of politicisation. tional public spheres indicates that there The number of retrieved articles deal- exists a type of problem that is situated ing with the ILO in quality newspapers is 'below the level' of what is commonly de- considerably lower than the number of ar- scribed as politicisation. The ILO is hardly ticles retrieved for the EU in a random sta- visible in the mass media; it is far away tistical sample. This does not only entail a from being politicised according to the practical research problem. The low num- standards employed in the EU context.

Table 1: Number of articles mentioning the ILO in six quality newspapers (own data)

Number of articles Newspaper Year per newspaper 2006 2007 2008 2009 2010 2011 2012 FAZ 12 13 11 17 16 14 15 98 SZ 15 25 18 16 11 6 27 118 TA 9 13 12 16 7 3 11 71 NZZ 33 21 15 21 22 33 26 171 Times 10 6 13 25 14 8 12 88 Guardian 20 13 13 19 18 30 19 132 Number of articles per 99 91 82 114 88 94 110 678 year

Given the low degree of political attention significance. What we need are catego- and contestation for the ILO, it is neces- ries which focus on these low-level forms sary to develop an alternative termino- of political attention because different logical construction on which the analysis forms of media attention can also be dis- can rely and which defines a kind of ba- tinguished for actors and organisations, sic threshold of being politically noticed which are rarely mentioned in the news- in the media. The level of attention that papers. is necessary for communicative politici- Due to the non-applicability or the dif- sation does not exist in certain low-level ficulties in using the concept of politicisa- forms of public attention. A mere differen- tion for the ILO, the two interrelated terms tiation between politicisation and non-po- 'public political presence' and 'media pro- liticisation or a uniform scale of measur- file' are introduced in this study. A politi- ing politicisation would be inadequate as cal actor can acquire different degrees of it would not sufficiently take into account 'public political presence'. The concept significant processes which take place in of public political presence is supposed the lower part of the measurement scale to offer a more differentiated picture of and are therefore quantitatively of little political actors’ media reality than merely

11 counting the number of articles in which significant events for the organisation, on the ILO is mentioned. In the following, the leading staff of the organisation and criteria for the analysis of public politi- programmatic developments, the more cal presence or non-presence will be es- reports tend to focus on certain recurrent tablished. Without being able to apply or issues and the more evaluative comments even to develop an elaborate conceptual are used (in contrast to merely descriptive measurement framework, the study aims statements) the higher the degree of pub- at giving some initial indicators in order lic political presence. to distinguish lower or higher levels of Depending on the focus that prevails political presence, making it thereby pos- in the media with respect to points two sible to differentiate different 'media pro- to seven different media profiles can be files' of political actors: identified. An organisational media profile • Number of articles mentioning the po- exists if the media on inner organisational litical actor events, programmes and leading staff. If • Usage of standards and terms that are leading staff play a dominant role in media linked to the political actor coverage, neglecting reports on commit- • Reports on dates, articles, information, tees and conferences of the organisation communications that are made avail- as well as on programmatic questions, the able by the political actor media profile may be described as per- • Reports on events that are of relevance sonalised. If programmatic questions are for inner organisational circles (meet- primarily dealt with in the media which ings, conferences, committees, deci- are evaluated in a divergent manner, sions, elections) one can speak of an ideological profile. • Naming of organisational elites and However, this is not the place to present leading staff (authorities) all possible types of media profiles. The • Reports on important inner organi- following chapters will discuss in greater sational programmatic developments detail what media profile and what degree (mission, programme, manifestos) of presence the ILO has in the three ana- • Reports on recurring political issues lysed national public spheres. • Non-evaluative descriptions vs. evaluative comments • Divergent evaluations and contestation over events and policies that are linked to the political actor. The higher the number of articles mentioning the actor, the higher the number of cases in which actor-related standards and terms are used, the higher the number of reports dealing with articles and data that is made available by the political actor, the more newspapers report on

12 WORKING PAPERS 01/ 2014 3. The ILO as Data Supplier and Norm Setter

International organisations can initiate special attention. At the beginning of public reporting if they manage to come the financial crisis, the ILO produced es- up with new information and data. This timates on the number of jobs that will is where the ILO has, indeed, succeeded. probably be lost as a result of the crisis. The ILO has a near monopoly position Depending on further economic devel- with respect to data on the global labour opments, thirty to fifty million job losses market and information on worldwide were estimated. The actual number of wage developments, which is acknowl- job losses is often spread in the press in edged by the media and is not questioned the following years. The number reaches or criticised. Yet, the scope of the analy- forty million. Thus, the ILO estimates can ses conducted by the ILO greatly varies. be assessed as realistic. The analysis of Some reports that deal with the global la- Swiss newspapers shows that the number bour situation only include data from ap- of references to reports published by the proximately fifty countries while other re- ILO is very high: In the Neue Zürcher Zei- ports rely on information or estimates for tung (NZZ) more than one third of all ar- over 190 countries. Sometimes the media ticles dealing with the ILO refer to the or- recognise the diverging database. How- ganisation’s reports, in the Tagesanzeiger ever, even if reports are only based on a (TA), these kind of articles amount to sixty small number of countries, the analysed per cent (see Table 2). media do not question the label 'global'. Thus, the analysis indicates that the On the other hand, the press does not ILO is considered to be an important challenge the quality of data on reports supplier of data. But in contrast to data dealing with a large number of countries. supplied by statistics offices, the media This is rather remarkable given the large coverage on ILO reports also adopts the number of failed states where registration organisation’s interpretation on unem- and statistics offices as well as opinion ployment, child and forced labour, wage research institutes – if there are any at developments, and gender equality. Even all – hardly produce data of comparable if some articles limit themselves to de- quality. The method of data collection scribing the data, the evaluation proposed and prediction is neither reported on nor by the ILO (improvement or deterioration, called into question, even if the ILO itself threats, positive or negative impressions stresses the problematic database and the of certain countries) and the benchmarks rather rough estimates. on which these evaluations are based are Estimates and predictions are not also often adopted. The ILO seems to have treated differently from stocktaking re- standardised its reports increasingly and ports. Amongst all ILO reports those deal- attempts to make clear (by introducing a ing with worldwide unemployment rates sequential numbering) that these reports and their assumed development receive are published on a recurrent basis, which

13 Table 2: Number of articles referring to ILO reports or ILO standards and conventions

Reference to ILO References to ILO References to References to ILO reports definitions and other terms in conventions data on accordance with unemployment ILO definitions Tagesanzeiger 43 (= 61.4 %) 5 (= 7.0 %) 1 (= 1.4 %) 15 (= 21.1 %) (N=71) NZZ 60 (= 35.3 %) 28 (= 16.5 %) 4 (= 2.4 %) 38 (= 22.4 %) (N=170)

is only partly recognised by the media. with the ILO as an institute of analysis of The press occasionally points to the peri- the global labour market, developments in odic character of certain publications (for labour law and social security. instance: Global Employment Trends, an- A large number of articles that mention nual; Global Wage Report, biennial, third the ILO only note unemployment rates and report 12/13; World of Work Report, an- distinguish between the national statistics nual by International Institute for Labour provided by unemployment insurances Studies). Social policy issues in a narrow and the ILO calculation, which is based on sense are rather rare among ILO reports. surveys – largely without explaining the The first World Social Security Report was difference. Without the systematic col- published in 2010 (ILO 2010). As a con- lection of statistics related to unemploy- sequence, articles dealing with the diffu- ment, media attention for the ILO would sion and reform of social security systems be clearly lower. In British newspapers, are rather marginalised and can only be the number of articles mentioning the found in the context of reports that refer ILO rises during the financial crisis when to predictions and data calculations. Ac- unemployment rates increase. The Times cordingly, the low number of countries almost exclusively reports on the ILO in (only 72 of 198) that have unemployment the context of unemployment and youth insurances is only mentioned briefly (FAZ unemployment. Because of the fact that 15.11.2012). unemployment rates become increasingly In contrast to reports written in the relevant for domestic politics, the number field of climate policy, ILO analyses deal- of articles mentioning the ILO standards ing with the world job market do not re- increases. For instance, the British press fer to the scientific community. The data discusses the question of how the unem- compiled by the ILO are neither presented ployment rate in Scotland relates to Great in a manner that clearly shows that their Britain’s rate as a whole – depending on analyses are coordinated with leading re- different calculations. In 2012, when the search institutes nor do scientists refer to rate starts to decrease in national statis- ILO data in public announcements. Obvi- tics but remains high in those calculations ously, there is no pressure on the part of proposed by the ILO, the standard is in- the scientific community to coordinate creasingly contested in Great Britain and

14 WORKING PAPERS 01/ 2014 in the French presidential election, which ternational Labour Conference). This was is reported on in great detail in the me- the case for the Maritime Labour Conven- dia. Occasionally, other definitions of the tion 2006 and the Domestic Workers Con- ILO (of child and forced labour) or of ILO vention 2011, which were both approved conventions are cited. Thus, the organisa- in the analysed time span. The long-last- tion appears as an authority that shapes ing ratification process – which partly re- the understanding of the world of work. sulted in non-ratification – is only rarely However, the public profile of the ILO can subject to public scrutiny. This is also the primarily be characterised as an author- case for the own national ratification proc- ity supplying reports, data, estimates and ess. In contrast to this, conventions play predictions. In this function the ILO is an a crucial role as a normative reference uncontested authority; criticism dealing point in country reports on employment with the organisation’s methods of data conditions in certain sectors. Moreover, collection and presentation is only rarely in the context of public procurement de- voiced. cisions on communal level, in particular But the ILO is also mentioned with re- in Switzerland and Germany, it is often spect to a further function: norm setting. discussed whether the fundamental em- The International Labour Standards of the ployment rules of the ILO should be part ILO member states receive considerable of the public invitation to tender. In their attention. This is especially the case for sections on regional issues the analysed the conventions which are internationally newspapers (SZ on Bavaria; NZZ on the ratified and binding but it is also true for Canton of Zurich) often report on conten- single recommendations which are non- tious decisions made by local parliaments binding. New conventions receive special on the adoption of ILO conventions in lo- attention in the media when being ap- cal authorities’ procurement practices. proved (by a two-thirds majority on the In-

15 4. Organisational Events, Political Programmes, and Leadership

Independently of their positions and re- of the conference in 2012, Nobel Peace ports, organisations are visible and arouse Price laureate of 1981, who was released public’s attention through events that from house arrest by the military govern- are initiated by them, through program- ment in 2010, led to increased public in- matic initiatives and discussions as well terest. Speeches held by Swiss politicians as through their leading staff. This ad- prior to the Conference, are also subject dresses criteria numbers four to six is the to media coverage. organisation visible as an organisation in In 2009, a three-day ILO summit on the media? the Global Jobs Crisis was held during the The International Labour Conference International Labour Conference, which is the most important recurring organi- played a significant role in the media be- sational 'event' of the ILO and is at the cause of the speeches made by the heads same time the decision-making body of of government of France, Argentina, and the organisation. It takes place annually Brazil. Other committees such as the for two to three weeks in Geneva in June. Governing Body composed of 56 regular Around 5,000 delegates from 185 coun- and 66 deputy members is, despite its far- tries participated at the 101st session reaching competences, only mentioned of the International Labour Conference. very rarely. This is also the case when the Each national delegation consists of two Director-General is elected. Apart from government representatives as well as an that, special conferences are mentioned employee’s and employer’s representa- occasionally. Decisions, recommenda- tive each with a large number of advisers. tions and communications made by the Since these conferences always take place ILO are only referred to in the context of in Switzerland, it was assumed that Swiss reports on the countries concerned and as media would pay more attention to this part of the media coverage dealing with event. Yet, in the analysed time span the the conference. In sum, the organisational Tagesanzeiger only reports once on the life of the ILO does not practically offer Conference, which is less than in foreign the media any reference point for report- newspapers. In contrast to this, the Neue ing on the organisation except for the In- Zürcher Zeitung, the second Swiss news- ternational Labour Conference. paper in the corpus, publishes regular and The 'programmatic' shift of the ILO detailed reports on this event – something in the field of social security from social which is not the case for German and Brit- policy that relates to residents instead ish newspapers. Conflicts such as the in- of workers, as laid down in the so-called vitation of the Burmese opposition leader Bachelet report “Social Protection Floor Aung San Suu Kyi as keynote speaker for a Fair and Inclusive Globalisation”

16 WORKING PAPERS 01/ 2014 (ILO 2011, Report of the Advisory Group flight from Pinochet in Chile, was edu- chaired by Michelle Bachelet – convened cated as a paediatrician at the Humboldt by the ILO with the collaboration of the University at Berlin, where she also ob- WHO) has practically not attracted any tained an honorary doctorate. So beside attention. The detailed reconstruction of her position as first female president of the history of this reorientation of the so- Chile, there were enough reference points cial political program of an international for media resonance in German-speaking organisation provided by Bob Deacon countries. A connection between the ILO (Deacon 2013) has no resonance in the programmatic shift and Michelle Bache- media neither in the residing country let was not established in either Germany nor in the country in which social policy or Switzerland. A personalisation strat- geared towards the worker and his pro- egy that would offer the opportunity to tection through social security systems arouse a higher level of attention for the originates. While this change is followed programmatic shift, has either not been closely in the scientific community (Davy/ developed or has failed completely. Davy/Leisering 2013, research project Events and information that relate to “FLOOR” Bielefeld University), there is a particular persons or can be tightly linked complete lack of reports on this develop- to a 'leader' of the organisation increase ment in national quality newspapers. One the news value of a report. That is why could argue that this is not actually sur- personalisation strategies (linking an prising because a programmatic change event or a report with a political repre- is not particularly suitable for public pres- sentative), personnel issues, and disputes entations. However, this argument could among members of an organisation are be countered by referring to programmes particularly suitable for increasing media of parties and associations which are of- attention. An international organisation ten subject to extensive media coverage such as the ILO has only a few positions in the national quality press; if conflicts that offer the opportunity of becoming within these organisations become vis- visible in the public and that can become ible, if different groups opposing each the object of disputes amongst the staff. other are formed and if particular persons Above all, this is the case for the Direc- manage to appear as exponents of a cer- tor-General as head of the ILO. The other tain program. Actually, in the case of the positions are rather comparable to heads Bachelet report, there was a favourable of departments in ministries. The appoint- factor for media resonance: the opportu- ment of the latter also only rarely attracts nity for personalisation. The report was media attention. Since 1999, the posi- written by an advisory group, chaired by tion of the Director-General was held by the worldwide known then former Chilean the Chilean Juan Somavia (the first rep- president (from 2006 to 2010, prior to this resentative of the Global South). He was position she was Secretary of Health and re-elected twice. In May 2012, the British Secretary of Defence) Michelle Bachelet. Guy Ryder was elected to become Mr So- Mrs Bachelet lived in the GDR after her mavia’s successor starting from 1 October

17 2012. The analysed quality newspapers ernment “has led to raised eyebrows in report on these elections also mentioned diplomatic circles” (Times 5/29/2012), the other eight candidates, supplied the the newspaper neither comments on nor public with Ryder’s curriculum vitae and evaluates this decision. The following day, informed the public on interconnections Ryder’s election is only acknowledged in that exist with personnel issues in other a short note, while The Guardian does not international organisations. In order to report on the issue prior to the election achieve a certain representativeness of all nor does the newspaper announce the relevant interests in the leadership of im- election. During the inauguration in Oc- portant international organisations in for- tober 2012, The Guardian also does not mally independent elections an increase comment on the new General-Director. of diplomatic activities can be observed By contrast, The Times publish a detailed prior to these elections. On the day of the article that presents Guy Ryder’s posi- election of the new Director-General, The tions and his life paths. Not even the fact Times writes that the British government that Guy Ryder heads a UN agency as a will not support the British candidate. The British-born official leads to increased article continues by mentioning that the national public attention for the ILO. The vote of the British government was as- lack of support of a British official by the signed to the former Dutch Secretary of British government could at least raise Social Services Ad Melkert, the former the question whether the anti-union cam- party leader and leading candidate of the paign is overdrawn, but the government Dutch Labour Party (PvdA) during the does not have to deal publicly with criti- 2002 election. Melkert resigned after a cal questions. On the other hand, it might massive election defeat, for which he was have been expected that the election of a made responsible by his party due to his British official for such a high position in technocratic leadership. Instead of the na- international diplomacy would lead to an tional candidate, the liberal conservative increased interest in the person. However, government in Great Britain supported personality reports are completely miss- a Dutch social democratic candidate being in the analysed media. The resonance longing to the right wing of the party in the UK is not higher than in Germany spectrum because it disliked Ryder’s or Switzerland. A contentious personnel close association with trade unions (from issue with reference to the national politi- 2006 to 2010 he was General Secretary cal arena does not contribute to increased of the International Trade Union Confed- media coverage. eration). Despite his work experience as If personnel issues and elections can- former Director of the Office of the ILO not be publicly exploited, the public rela- Director-General the British government tions strategy of active personalisation, did not want to support an employee’s i.e. to link all news of an organisation representative, although the ILO is organ- with one person, preferably always the ised on a tripartite basis. While The Times same, may be a further way. However this adds that the decision by the British gov- strategy has not been adopted by the ILO.

18 WORKING PAPERS 01/ 2014 Reports are presented by those members of political elites often deal with persons of staff or scientists who have the respon- who temporarily worked for the ILO, but sibility of writing these reports, i.e. by who currently do not have a position in the author or lead author respectively. this organisation. A more detailed analy- What is more, the World of Work Report sis of Swiss newspapers illustrates that is published by an ILO institute, the Inter- the share of articles mentioning ILO staff national Institute for Labour Studies. The is overall rather small (11.6 %) while the director, Raymond Torres, presents these Director-General is only mentioned in half reports, and has not always been politi- of these articles. Occasionally, ILO repre- cally close to the former Director-General. sentatives appear as authors in newspa- This fact alone leads to a high degree of pers (for instance an article by Somavia fragmentation of political elites’ naming. was published in the SZ on 29/04/12). By Moreover, in country reports dealing, for reporting on the ILO, the press does not instance, with child and forced labour the attempt to concentrate on one particular regional representatives of the ILO are person; nor does the ILO try to adopt a often presented as responsible. In Brit- consistent personalisation strategy in ish newspapers, reports on career paths public relations.

Table 3: Number of articles mentioning representatives of the ILO in both of the analysed Swiss newspapers (own data 2006-2012)

References to representatives by articles

No Director- Other ILO Director- Other persons representatives General staff General and with ILO mentioned (Somavia, other ILO staff affiliation Ryder) Tagesanzeiger 61 2 7 - 1 (N=71) Neue Zürcher 152 9 8 - 1 Zeitung (N=170)

19 5. Issues

An international organisation’s media pro- are a variety of reports on labour law and file is also shaped by the issues to which its development, often in the context of an organisation is usually connected. Ac- child and forced labour, repressions of cording to its constitution, the ILO is com- trade unions, and extreme working condi- mitted to securing world peace by facili- tions in single sectors or countries. The tating social justice and by contributing to special analysis conducted for Switzer- the improvement of people’s working con- land underlines the dominance of the la- ditions. It is an international organisation bour market issue, which is also the result that is genuinely concerned with issues of of the fact that many articles refer to the labour law, working relations, and social ILO measurement of unemployment. Next policy. The ILO’s thematic focus on social to analyses dealing with developments questions is also reflected in the three in the labour market or general working analysed national public spheres. The ILO conditions, newspaper reports focus on is not mentioned in contexts other than child and forced labour. In these two fields labour market, working relations, and so- the ILO constitutes a significant author- cial policy. It is not mentioned in the con- ity and functions as a norm setter, while text of issues dealing with fundamental other issues related to the labour market changes of the world order, nor is it visible or to labour law, such as the discrimina- in reports dealing with other policy fields tion against women, equality between than social and labour market policy. The women and men and gender pay gap do ILO is not even mentioned in the context not constitute major issues that are com- of issues dealing with global health policy, monly discussed in the context of the ILO. not even next to the WHO. In the analysed The high number of articles dealing with publics, the ILO continues to be primarily trade union rights is the result of an ac- concerned with its traditional issues, i.e. tion brought to the ILO by the Swiss Fed- social standards and working conditions eration of Trade Unions. Thus, it can be – despite the serious consequences of attributed to a contentious national issue globalisation and the financial market cri- with no equivalent in the other analysed sis. The ILO is perceived as a specialised national public spheres. organisation. The developments in the labour market and concrete working condi- tion in certain countries are discussed far more extensively than social policy instruments to combat unemployment, poverty, and repression. There are rarely articles dealing explicitly with questions of social security, social insurances or alternative security systems. In contrast to this, there

20 WORKING PAPERS 01/ 2014 Table 4: Key issues associated with media coverage on ILO in both of the analysed Swiss quality newspapers; number of articles per issue (own data 2006-2012)

NZZ TA Labour market developments, unemployment 50 15 Working conditions, labour law (generally) 19 7 Child labour 10 13 Trade union rights 10 5 Social consequences of globalisation 12 3 Slave labour and forced labour 6 5 Youth unemployment 8 3 Wage development 4 7

In spite of the grave consequences of the worldwide unemployment are interpreted financial market crisis and the eurozone twice. On the one hand, a global perspec- crisis for the labour market, the number of tive that stresses the remarkable figure of articles dealing with the ILO does not in- forty million unemployed people world- crease after the crisis. Yet, thematic shifts wide is taken. On the other hand, empha- can still be observed since the media sis is put on the unemployment situation coverage on the ILO starts to focus more of young people in southern Europe. The closely on the high level of unemploy- worldwide increase of unemployment ment in Europe. At the beginning of the finds an equivalent in Europe. The Eu- analysed time span, reports written by the ropean development runs parallel to the ILO were cited particularly often if they international development and is not con- dealt with appalling working conditions in trasted with it (as was the case with child the countries of the Global South. Reports and forced labour). Europe still occupies by the ILO were, thus, mainly published in a special position because most unem- the context of development policy and the ployed people have access to unemploy- globalisation of international production. ment insurance and other social security This corresponds to a proposition made in measures, which is not the case for other the scientific literature claiming that the people in the rest of the world. Due to the ILO has developed itself from an organisa- parallel development of global and Euro- tion setting social standards to a “devel- pean unemployment the ILO manages to opmental agency” (Maier-Rigaud 2009: contribute more extensively to the Euro- 141). This focus on working conditions pean debate. It no longer solely criticises in the context of development policy no the lack of social standards, child and longer exists since 2008. Since then, the forced labour, and the repression of trade unemployment situation in Europe has unions. During 2009 and 2012, the ILO taken centre stage in the media reception focused more on Europe and its social of the ILO. The statements dealing with problems; newspapers not only refer to

21 the organisation’s estimates and reports, cies. The ILO takes a clear position and they also cite its warnings against social fights for an international economic policy upheavals in highly industrialised states which takes into consideration both budg- and its rejection of pure austerity poli- etary stabilisation and debt reduction.

6. The ILO – A Legitimate International Organisation

A central element of the visibility and The detailed analysis of Swiss news- media relevance of an organisation is its papers shows that only 18.3 per cent of all positive and negative evaluation (criteria articles contain an evaluative statement 8 to 9). An organisation that only func- on ILO policies. An evaluative statement tions as an informant or a data supplier might be either voiced by the journalist/ does not play an important role in political author himself or the journalist/author conflicts. Only if the organisation, i.e. its might refer to an evaluative statement actions, its reports or its leading staff, are of another actor. One third of all articles positively or negatively evaluated can it containing an evaluation relate to contro- be considered to be of any significance at versial statements made by a person other all in political conflicts. If it merely fulfils than the journalist/author. The ILO is only the role of a neutral reporter, who is not very rarely depicted as a controversial in- evaluated, the organisation might at best stitution. By contrast, 81.6 per cent of all perform a consulting or a supporting task articles are purely descriptive. Although for politics. The ILO cannot become politi- comparative data is missing such a de- cally relevant as long as mass media only gree of neutralisation of an international report on the dates, estimates, thoughts, organisation can be described as quite and conventions of the ILO which do not high. Only rarely does the ILO play a sig- become the object of commentaries and nificant role in evaluative contexts. It is, yes/no expressions. As soon as evalua- thus, not really part of the political game. tions start to appear in the media, which The communicative role of an inter- present the ILO’s policy either as worth national organisation becomes evident by supporting or which criticise the organi- measuring whether and to what extent the sation; as soon as several actors are cited legitimacy of the organisation is granted of which some take a positive stance on or denied in the media. Legitimacy de- the ILO while others reject it, the media pro- notes the acceptability of a political order file of the ILO gains a political dimension. (Forst/Schmalz-Bruns 2011). Legitima-

22 WORKING PAPERS 01/ 2014 tion refers to a communicative process, UN General Assembly etc.) were analysed i.e. to the positive or negative evaluation (Schneider 2010). Thus the two data sets of political orders as (il)legitimate in the cannot be directly compared because this public. By drawing on David Easton’s study is based on a complete analysis of work, empirical legitimacy research dif- all published articles dealing with the ILO. ferentiates between the legitimacy and In addition to this, the analysis of data is evaluation of political orders (differen- not based on the level of constructed sen- tiating between the political regime and tences, but on the level of articles. So it is the political community in the context of not the total number of legitimation state- nation states) and the evaluation of politi- ments that is of interest here, but rather cal elites (authorities) and single policies. the number of articles with (de-)legitima- While Easton only refers to the evaluation tion statements. Yet, despite these varying of political orders as instances of legitima- approaches, tentative propositions can be tion, a tendency to employ the concept in made. The number of articles comprising broader contexts, including policies and evaluative passages with respect to the authorities, can be observed in current ILO is extremely small. In the analysed research (Geis/Nullmeier/Daase 2012). time span, which comprises seven years, In this article, however, a narrow defini- only up to three articles per newspaper tion of the term is suggested: legitimation can be found that critically or positively and delegitimation only denote a pro- evaluate the basic institutional structure cess in which an international organisa- and function of the ILO. The term 'a-le- tion as a whole is evaluated, including gitimacy' is employed to denote such a its objective, its structure and organisa- limited interest for the legitimacy of a po- tion, its position in the concert of other litical organisation. The only article with international organisations, its meaning- massive criticism that can be found for all fulness or its inclusion of members etc. six newspapers in the chosen time span Legitimation statements are superfluous of seven years, is an article written by the statements that refer to the international former German secretary for employment political regime. For the EU, the G8, and and social affairs in the Süddeutsche the UN corresponding data already ex- Zeitung on July 7th, 2006, with the title: ist. An analysis of quality newspapers in “Child protectors in cloud cuckoo land. the UK, Switzerland, and Germany – the The International Labour Organisation three countries that were also selected for produces papers but hardly manages to the present study – as well as the US has combat misery”. This article was written been conducted (Nullmeier et al. 2010). in the context of the policy of the ILO in The public attention for these global the field of child labour, but it only takes and regional governance organisations this issue as an opportunity to resort to was so high that instead of a complete fundamental polemics. Blüm attacks the analysis selected time spans comprising ILO as an organisation that ratifies inter- twelve days surrounding annually recur- national treaties, such as the convention rent events (in particular summits and the on the abolition of child labour, which was

23 signed by 168 states (Nesi et al. 2008), at its disposal and to increase its steer- but does not care about the implemen- ing capacity. Blüm’s political model is an tation as it does not put any pressure on extension and strengthening of a global those countries that do not comply and corporatism. He wants the tripartism of even announces a worldwide end of child states, trade unions, and employers, insti- labour in its reports. “The help of the ILO tutionalised in the ILO, to become more will be useless as long as the organisation effective, just like in some nation states. does not attach greater importance to its An ironic and scathing article that is convention against child labour. The ILO complementary to the criticism in Germa- ban against child labour is worth as much ny can be found in The Times (4/27/2012). as the paper on which the ‘convention Here it is also the political irrelevancy of 182’ is written, which prohibits the worst the ILO that is attacked. The Times reports forms of child labour. It is not acceptable that during the annual “Day for Safety that states solemnly sign ILO documents and Health at Work”, the ILO suggested but do not care about the implementation developing the economy into a green apart from that. And the ILO in its cloud economy and integrating health policies cuckoo land does not even urge these into 'green job policies'. The commentary countries to comply. In its reports, the underlines that these suggestions are too ILO falsely represents itself as an active far away from the current problems of un- organisation. It lacks teeth to implement employment and austerity politics. These its norms.” (SZ 7/7/2006, own translation) proclamations could only be interpreted At the end of the article this sharp criti- as 'adding a green tint' – they are out of cism is linked to a similarly clear support touch with reality and ineffective. In sum, for the ILO as a global organisation: “In the analysis of media coverage demon- the age of globalisation the ILO is needed strates that if the ILO as a political order more than ever. The competences that is debated at all, it is the vagueness of the the nation state has lost must be regained signed norms and the ineffective sanction on a global level. The market economy mechanisms that take centre stage. needs rules that are valid worldwide if it But it is also noted, often in the style does not want to destroy itself. The ILO of a report, that the ILO has gained inter- could perform this task together with oth- national significance in recent years. The ers. It is best equipped to fulfil this task invitation to G20 summits, a breakthrough as it is the only UN organisation in which that was achieved in 2009, is considered states, employers, and trade unions work to be important in this context. The fact together. It might even be considered as that the ILO now belongs to the club of a model for a new, global cooperation of those international organisations, next states and civil societies” (SZ 7/7/2006, to the IMF, the WTO, and the OECD, and own translation). Thus, Blüm’s criticism that it is heard regarding important ques- of the non-binding nature of the organisations concerning the world economy also tion actually aims to strengthen the ILO, becomes evident in new forms of national to extend the instruments the ILO has coordination of international organisa-

24 WORKING PAPERS 01/ 2014 tions which are reported on in national of quite far-reaching details with respect media. The German chancellor Angela to the substance of the meeting. For in- Merkel, for instance, invited leading rep- stance, the press release of the meeting in resentatives of economy-related interna- 2012 clearly shows that two issues were tional organisations to meetings that take high on the agenda: on the one hand, the place annually (Dec 2007; 05/02/2009, connection between financial consolida- 28/04/2010, 6/10/2011, 30/10/2012). The tion and structural reforms and, on the IMF’s, the OECD’s, the WTO’s, the ILO’s, other hand, measures to support jobs and and the World Bank’s representatives, i.e. growth. The formulations chosen for the general directors, presidents and general press release rather harmoniously con- secretaries, were invited for and partici- nect these two policy models. But there pated in these meetings. The round start- is also a passage that expresses the po- ed in 2007 at the end of the German G8 sition of the ILO: “Sound macroeconomic presidency with an invitation to the five policies have to go hand in hand with ef- global economy organisations. The aim forts to increase employment, drawing on was to initiate and support constructive the ILO’s Decent Work Agenda and on its cooperation between the IOs accompany- Global Jobs Pact approach adopted at the ing the policies of the nation states and ILO International Labour Conference of the club regime (in 2007 this was primar- 2009. In particular, strategies to reduce ily the G8). For the most part, the press youth unemployment have to be imple- did not report on the results in greater de- mented with high political priority” (Fed- tail, instead newspapers merely pointed eral Government of Germany 2012). The out that a closer cooperation between the results of the International Labour Con- IOs was agreed on. Therefore, the charac- ference of 2009 were also mentioned as ter of these high ranking meetings mainly a reference point of common objectives in remains secret. It was only in 2009 that the press release on the meeting in 2010. public attention for this informal meeting The first sentence of the common state- increased since it was linked with a plan ment in 2012 was, almost identically, also proposed by German chancellor Angela part of the press release in 2011, only that Merkel for a “Charta for long-term sen- the latter declared that, instead of com- sible economics” and the suggestion to bating youth unemployment, the stimula- propagate the idea of a global economy tion of productive investment in job-gen- council in the UN. erating enterprises of the real economy The difference between media percep- was a priority (Federal Government of tion in quality newspapers and press re- Germany 2011). These small shifts are leases of the involved political actors can in stark contrast to grave differences be- be easily traced in this case. The common tween the common statements on the press releases on the meeting (Federal meetings in 2010 and 2012: In 2010 the Government of Germany 2010a, 2010b, press release emphasises that the efforts 2011, 2012) do not clarify the status of of the five IOs are coordinated by the G20. the meeting. Yet, they contain a range In the 2012 press release, however, the

25 G20 is not even mentioned any more. This quality press. The changed international (partial) recognition of the ILO policy by role of the ILO is therefore only partly ac- the German government and the G20’s knowledged. decreasing reputation are not noted in the

7. Summary

The results of the study can be summa- and radical shifts are not recognised. Re- rised as follows: the ILO is not perceived current events such as elections, general as a political actor but is instead consid- conferences, the adoption and ratification ered to be a statistics office that is sci- of conventions are only occasionally taken entifically competent, as well as a norm up by the media. The ILO as a whole is setter that has authority in all questions neither attacked nor legitimised. It is not related to working conditions. In national evaluated fundamentally and it therefore public spheres, it is only rarely perceived remains a-legitimate. The degree of 'po- as a player in international politics. The litical presence' is, according to the above organisation fulfils the function of a spe- mentioned nine criteria, rather low. Re- cialist for global reports on employment ports and standards defined by the ILO and social standards. It thereby becomes are, indeed, mentioned. Yet there is no a reference point of newspaper reports in media coverage on the organisation itself, a limited number of issues. Labour law, i.e. on inner organisational events, on working conditions and unemployment leading staff, on programmatic develop- play a more important role than social ments or on possible internal conflicts. At security institutions. As one of the lead- the same time, there are hardly any evalu- ing actors of global social policy the ILO ative statements in articles or commen- has a deficit in questions related to social taries. This is why the 'media profile' of security: It seems that the ILO cannot con- the ILO is limited to a data supplier. A low tribute much to this issue and the press presence and a scientific rather than polit- does not focus on the ILO when problems ical profile are responsible for the fact that and reforms of social security institutions the ILO is not recognised as an important are discussed. What is more, media at- political actor in the field of (international tention concentrates on standard setting and national) social policy. (measures of unemployment) and global reports. With a few minor exceptions, the ILO is not critically discussed or politicised in the media. Programmatic efforts

26 WORKING PAPERS 01/ 2014 8. References

Couldry, Nick; Hepp, Andreas; Krotz, des IWF Dominique Strauss-Kahn Friedrich (eds.), 2010: Media Events in a und des Weltbankpräsidenten Rob- Global Age. London: Routledge. ert B. Zoellick, (April); http://archiv. bundesregierung.de/Conten- Davy, Benjamin; Davy, Ulrike; Leisering, tArchiv/DE/Archiv17/Mitschrift/ Lutz, 2013: “The global, the social and Pressekonferenzen/2010/04/2010- rights. New perspectives on social citi- 04-28-bkin-internationale-organisa- zenship”, International Journal of Social tionen.html. Welfare 22 Supplement: 1-14. Federal Government of Germany, 2011: De Vreese, Claes; Albaek, Erik; Van Dalen, Joint press release by Federal Chancellor Arien; Jebril, Nael, 2013: Political Angela Merkel, OECD Secretary-General Communication in Comparative Perspec- Angel Gurría, WTO Director-General tive. Cambridge: Cambridge University Pascal Lamy, ILO Director-General Juan Press. Somavia, IMF Managing Director Christine Deacon, Bob, 2007: Global Social Policy and Lagarde and World Bank Group Presi- Governance. Los Angeles, London, New dent Robert B. Zoellick on the occasion Delhi, Singapore: Sage. of their meeting on 6 October 2011 in Berlin, http://archiv.bundesregierung. Deacon, Bob, 2013: Global Social Policy in de/ContentArchiv/DE/Archiv17/Pres- the Making. The Foundations of the Social semitteilungen/BPA/2011/10/2011- Protection Floor. Bristol: Policy Press. 10-06-gemeinsame-erklaerung.html Esser, Frank; Pfetsch, Barbara (eds.), (German version). 2004: Comparing Political Communica- Federal Government of Germany, 2012: tion. Theories, Cases, and Challenges. Joint press release by Federal Chancellor Cambridge: Cambridge University Angela Merkel, OECD Secretary-General Press. Angel Gurría, WTO Director-General Federal Government of Germany, 2010a: Pascal Lamy, ILO Director-General Guy Joint press release by Federal Chancellor Ryder, IMF Managing Director Christine Angela Merkel, OECD Secretary-General Lagarde and World Bank Group President Angel Gurría, WTO Director-General Pas- Jim Yong Kim on the occasion of their cal Lamy, ILO Director-General Juan So- meeting on 30 October 2012 in Berlin, mavia, IMF Managing Director Dominique http://archiv.bundesregierung.de/ Strauss-Kahn and World Bank President ContentArchiv/DE/Archiv17/Mitschrift/ Robert B. Zoellick, (April); http://www. Pressekonferenzen/2012/10/2012- bundesregierung.de/Content/EN/ 10-30-merkel-wirtschaftsorganisa- Artikel/2010/04/2010-04-28-engl-press- tionen.html (German version). eerklaerung.html. Forst, Rainer; Schmalz-Bruns, Rainer Federal Government of Germany, (eds.), 2011: Political Legitimacy and 2010b: Mitschrift Pressekonferenz Democracy in Transnational Perspective. Bundeskanzlerin Angela Merkel, Oslo: ARENA. OECD-Generalsekretär Angel Gurría, Geis, Anna; Nullmeier, Frank; Daase, WTO-Generaldirektor Pascal Lamy, Christopher (eds.), 2012: Der Aufstieg ILO-Generaldirektor Juan Somavia, der Legitimitätspolitik. Rechtfertigung des Geschäftsführenden Direktors

27 und Kritik politisch-ökonomischer ternational Labour Organization. Berlin: Ordnungen, Leviathan-Sonderband 27. Duncker & Humblot. Baden-Baden: Nomos. Maul, Daniel, 2012: Human Rights, Devel- Hallin, Daniel C.; Mancini, Paolo, 2004: opment and Decolonization: The Inter- Comparing Media Systems. Three Models national Labour Organization, 1940-70. of Media and Politics. Cambridge: Cam- Basingstoke: Palgrave Macmillan. bridge University Press. Nesi, Giuseppe; Nogler, Luca; Pertile, Hardy, Jonathan, 2008: Western Media Marco (eds.), 2008: Child Labour in a Systems. London, New York: Routledge. Globalized World: A Legal Analysis of ILO Action. Aldershot: Ashgate. Hepp, Andreas, 2013: Cultures of Mediati- zation. Cambridge: Polity Press. Nullmeier, Frank; Biegon, Dominika; Gronau, Jennifer; Nonhoff, Martin; Hughes, Steve; Haworth, Nigel, 2011: In- Schmidtke, Henning; Schneider, ternational Labour Organisation. Coming Steffen, 2010: Prekäre Legitimitäten. In From the Cold. Milton Park, New York: Rechtfertigung von Herrschaft in der Routledge. postnationalen Konstellation. Frankfurt International Labour Organization, 2010: a.M./New York: Campus. World Social Security Report 2010/2011. Risse, Thomas, 2010: A Community of Providing Coverage in Times of Crisis and Europeans? Transnational Identities and Beyond. Geneva: ILO. Public Spheres. Ithaka: Cornell Univer- International Labour Organization, 2011: sity Press. Social Protection Floor for a Fair and Rodgers, Gerry; Lee, Eddy; Swepston, Lee; Inclusive Globalization. Report of the Ad- Van Daele, Jasmien, 2009: The Interna- visory Group chaired by Michelle Bachelet tional Labour Organization and the Quest - convened by the ILO with the collabora- for Social Justice, 1919-2009. Geneva: tion of the WHO. Geneva: ILO. International Labour Office. Koopmans, Ruud; Statham, Paul (eds.), Schmidtke, Henning; Nullmeier, Frank, 2010: The Making of a European Public 2011: “Political valuation analysis and Sphere. Media Discourse and Political the legitimacy of international organi- Contention. Cambridge: Cambridge zations”, German Policy Studies 7 (3): University Press. 117-153. Kott, Sandrine; Droux, Joelle (eds.), 2013: Schneider, Steffen, 2010: „Empirische Globalizing Social Rights: The Interna- Legitimationsforschung“, in: Frank tional Labour Organization and Beyond. Nullmeier; Dominika Biegon; Jen- Basingstoke: Palgrave Macmillan. nifer Gronau; Martin Nonhoff; Henning Kriesi, Hanspeter; Lavenex, Sandra; Schmidtke; Steffen Schneider (eds.), Esser, Frank; Matthes, Jörg; Bühl- Prekäre Legitimitäten. Rechtfertigung mann, Marc; Bochsler, Daniel, 2013: von Herrschaft in der postnationalen Democracy in the Age of Globalization and Konstellation. Frankfurt a.M./New York: Mediatization. Basingstoke: Palgrave Campus, 45-67. MacMillan. Statham, Paul; Trenz, Hans-Jörg, 2013: Maier-Rigaud, Remi, 2009: Global Pen- The Politicization of Europe. Contest- sion Policies. Programs, Frames and ing the Constitution in the Mass Media. Paradigms of the World Bank and the In- London, New York: Routledge.

28 WORKING PAPERS 01/ 2014 Wessler, Hartmut; Peters, Bernhard; Brüggemann, Michael; Kleinen-von Königslow, Katharina; Sifft, Stefanie, 2008: Transnationalization of Public Spheres. Basingstoke: Palgrave Macmil- lan. Zürn, Michael; Ecker-Ehrhardt, Matthias (eds.), 2013: Die Politisierung der Weltpo- litik. Umkämpfte internationale Organisa- tionen. Berlin: Suhrkamp.

29 -

n Stefan Traub, Sebastian Finkler

Stefan Traub Sebastian Finkler e

Ein Grundsicherungs- Ein Grundsicherungsabstands- abstandsgebot für die

n Gesetzliche Rentenver- sicherung? gebot für die Gesetzliche Ergebnisse einer Mikrosimulation Rentenversicherung? ZeS-Arbeitspapier Nr. 01/2013 Ergebnisse einer Mikrosimulation

ZeS-Arbeitspapier Nr. 01/2013

Aufgrund bestehender und sich weiter verstärkender Al- tersarmut steht der Reformbedarf der Leistungsseite der

- 2013 erschie Gesetzlichen Rentenversicherung (GRV) im Zentrum der wissenschaftlichen und politischen Diskussion. Im Fokus stehen dabei Personen mit lückenhaften Erwerbsbiogra- phien und niedrigen Einkommen, die besonders stark von Altersarmut betroffen sind und für die aufgrund der Grundsi- cherung im Alter nach §§ 41 ff. SGB XII Fehlanreize bestehen, einen Beitrag in das umlagefinanzierte System der GRV zu entrichten. In einem Mikrosimulationsmodell soll auf Basis des Scientific Use File (SUF) der Versicherungskontenstichprobe (VSKT) 2009 untersucht werden, welche Auswirkungen die Einführung eines Grundsicherungsabstandsgebotes in der GRV hat. Dabei werden drei mögliche Abstände zur Grund- sicherung im Alter sowie drei verschiede Anspruchskriterien mit unterschiedlich hohen Beitrags- bzw. Versicherungs- jahren modelliert.

30 WORKING PAPERS 01/ 2014 Karl Hinrichs, Magnus Brosig

Karl Hinrichs Magnus Brosig Die Staatsschuldenkrise Die Staatsschulden- krise und die Reform von Alterssicherungs- systemen in europäi- und die Reform von Alters- schen Ländern sicherungssystemen in ZeS-Arbeitspapier Nr. 02/2013 europäischen Ländern

ZeS-Arbeitspapier 02/2013

Die Finanzmarktkrise von 2008 und in deren Gefolge die „Große Rezession“ sowie Staatsschuldenkrisen in ver- schiedenen EU-Ländern haben einschneidende Reformen der Alterssicherungssysteme ausgelöst, die die Finanzierung der Renten kurz- und langfristig sicherstellen, fiskalischen Manövrierspielraum wieder erweitern bzw. den Zugang zu Kredithilfen ermöglichen oder Vorstellungen von Genera- tionengerechtigkeit realisieren sollen. Fast ausschließlich handelt es sich um Einschränkungen mit teilweise dras- tischen und unmittelbaren Auswirkungen auf die Lebens- bedingungen der jetzigen und künftigen Rentenbezieher. Betrachtet werden die Reformen in neun EU-Ländern: Griechenland, Großbritannien, Irland, Italien, Lettland, Por- tugal, Rumänien, Spanien und Ungarn. Dabei geht es um die Inhalte dieser Reformen und die Umstände, die jeweils zu diesen Veränderungen geführt bzw. sie ermöglicht haben. Gezeigt wird, dass die Herausforderungen, mit denen diese Länder konfrontiert waren (oder sind), einschneidende Veränderungen erlaubten bzw. erzwangen, die an- sonsten kaum durchsetzbar gewesen oder in Anbetracht der politischen Konsequenzen von den jeweiligen Regierun- gen so nicht in Angriff genommen worden wären. Weiterhin werden im Ländervergleich die Gemeinsamkeiten und Un- terschiede beleuchtet sowie nach den bislang erkennbaren sozialen Konsequenzen gefragt.