Productivity as a Goal in the ILO’s Discourse, Policies and Activities: A Historical Review

Year 2024, Volume: 48 Issue: 4, 954 - 989, 15.12.2024

Aylin Güler Ünlü

Abstract

Productivity has always been a central goal in capitalism, which operates on the basis of the continuity of the capital accumulation process, and in the capitalist production process organized around the exploitation of surplus value. In this article, a historical overview of the discourses, policies and activities focusing on productivty of the International Labour Organization (ILO), which undertakes functions in the field of social policy in the international capitalist system and emphasizes that it carries out these functions with the mission of social justice, is presented. Thus, it is aimed to evaluate the understanding adopted by the organisation. The study, based on an analysis of the ILO’s institutional documents, confirms that the goal of productivity has historically been a fundamental objective for the organization, reveals that economic goals have influenced the organisation’s policy approach framework within a perspective that equates social development with capitalist development. Furthermore, it shows that the policies and activities carried out by the ILO within the framework of these objectives have taken a direction consistent with the principles of capitalist accumulation of the time. Indeed, since its foundation, the ILO has linked the goal of achieving good living and working standards to the goal of increasing productivity in capitalism, in other words, it has been based on the understanding that social progress can only be achieved by meeting the economic needs of the capitalist development model of the period. However, since the years when neoliberal policies became the dominant programme, productivity and economic goals have had significant impacts on the redefinition of social policy and the shaping of social policy practices. Throughout these years, the ILO has increasingly aligned its policies, agenda, and activities with neoliberal approaches while also developing a discourse on the need to ‘balance’ between the economic and the social. In this context, the organisation has promoted flexibility, competitiveness, and productivity in labour markets while asserting that neoliberal policies could be balanced through various social policy practices. In the period leading up to today, when many crises, including the pandemic, have been faced, the ILO has continued to adopt a balance approach while increasing its calls for social justice. However, as the ‘balance’ policies were essentially grounded in advancing the competitive free-market order, and within this framework, the needs of capital have continued to be prioritised over the protection of labour, a process unfolded within the ILO in which the gap between discourses and realities, commitments, and actions has gradually widened.

Keywords

Social Policy, International Social Policy, International Labour Organization (ILO), Productivity, Surplus Value

ILO’nun Söylem, Politika ve Faaliyetlerinde Bir Hedef Olarak Verimlilik: Tarihsel Bir Değerlendirme

Abstract

Sermaye birikim sürecinin sürekliliği temelinde işleyen kapitalizmde ve artı değer sömürüsü etrafında örgütlenen kapitalist üretim sürecinde verimlilik, her daim merkezi bir hedef olmuştur. Bu makalede de uluslararası kapitalist sistemde özellikle sosyal politika alanına dair işlevler üstlenen ve bu işlevleri sosyal adalet misyonuyla yürüttüğünü vurgulayan Uluslararası Çalışma Örgütü’nün (International Labour Organization-ILO) verimlilik konusuna yönelen söylem, politika ve faaliyetlerine dair tarihsel bir seyir sunulmuştur. Böylelikle kuruluşun izlediği politika anlayışının değerlendirilmesi amaçlanmıştır. ILO’nun kurumsal belgelerinin incelenmesine dayanan çalışma, verimlilik hedefinin ILO için tarihsel bir temel hedef olarak öne çıktığını teyit etmiş, kapitalist gelişme ile toplumsal gelişmeyi özdeşleştiren bir bakış açısı ekseninde ekonomik hedeflerin kuruluşun politika anlayışını etkilediğini ortaya koymuştur. Ayrıca bu hedefler çerçevesinde ILO’nun yürüttüğü politika ve faaliyetlerin dönemsel kapitalist birikim esaslarıyla uyumlu bir yön aldığını göstermiştir. Nitekim ILO, kuruluşundan itibaren iyi yaşam ve çalışma standartlarına ulaşılması hedefini kapitalizmde verimliliğin artırılması hedefine bağlamış, diğer bir ifadeyle sosyal ilerlemenin ancak dönemin kapitalist birikim sisteminin ekonomik ihtiyaçlarının karşılanmasıyla gerçekleştirilebileceği anlayışına dayanmıştır. Bununla birlikte neoliberal politikaların hâkim program haline gelmeye başladığı yıllardan itibaren verimlilik hedefi ve ekonomik hedefler, sosyal politikanın yeniden tanımlanmasında, sosyal politika uygulamalarının şekillenmesinde ciddi etkilerde bulunmuştur. ILO da bu yıllar boyunca politika, gündem ve faaliyetlerini neoliberal anlayışla giderek daha fazla uyumlu hale getirmiş, bununla birlikte ekonomik ve sosyal olan arasında ‘denge’ gerekliliğine dair bir söylem geliştirmiştir. Bu bağlamda işgücü piyasalarında esneklik, rekabet edebilirlik ve verimliliği artırmayı teşvik ederken, neoliberal politikaların çeşitli sosyal politika uygulamalarıyla dengelenebileceğini iddia etmiştir. Pandemi dâhil pek çok krizle yüzleşilen günümüze uzanan süreçte de ILO, bir taraftan sosyal adalet çağrılarını artırmış bir taraftan da denge yaklaşımına tutunmayı sürdürmüştür. Fakat ‘denge’ politikaları esasen rekabetçi serbest piyasa düzeninin ilerletilmesine dayandırıldığından ve bu çerçevede sermayenin ihtiyaçları emeğin korunmasına göre öncelenmeye devam edildiğinden, ILO’da söylemler ve gerçekler, taahhütler ve icraatlar arasındaki mesafenin giderek açıldığı bir süreç yaşanmıştır.

Keywords

Sosyal Politika, Uluslararası Sosyal Politika, Uluslararası Çalışma Örgütü (UÇÖ), Verimlilik, Artı-Değer

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