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Wintersberger IHRM - Institutional Influences
Wintersberger IHRM - Institutional Influences
05
The institutional
context of
international HRM
Da n i e l W i n t e r s b e rg e r
Learning outcomes
●●
Introduction
The preceding chapter introduced you to national culture as a key factor
influencing HRM and employee relations outcomes at national level. IHRM
practitioners need to be aware of these cultural factors in order to manage
effectively (and sensitively) across different countries. Building on these
cultural factors, this chapter will introduce you to institutional factors which
Wintersberger, D (ed.) 2017, International Human Resource Management : A Case Study Approach, Kogan Page, Limited, London.
Available from: ProQuest Ebook Central. [5 October 2022].
Created from gre on 2022-10-05 02:45:53.
The institutional context of international HRM 71
may lead to distinctive contexts for HRM across countries. After a brief
introduction into what actually constitutes an ‘institution’ in the context
of international HRM (IHRM), the chapter will outline and highlight the
ways in which different ‘varieties of capitalism’ (Hall and Soskice, 2001)
and their institutional contexts lead to different HRM and employment
relations outcomes in different countries. We will examine in more depth
some of the key institutional factors at national level that lead to distinctive
pressures on HRM practitioners. There will be some recap of the material
from Chapter 2 on culture, so you would benefit from reading that chapter.
After all, as you will probably agree upon having read both chapters, culture
and institutions do not exist in isolation; they complement each other.
As highlighted in the introductory chapter of this textbook, traditional,
mainstream HRM is often ethnocentric insofar as it proposes a (seemingly)
universally applicable array of ‘best practices’ (Pfeffer, 1998) that lead to
success regardless of the context within which the firm is operating. When
perpetuating this approach, we run the risk of cultural myopia and an
inability to learn from insights from those contexts (such as the Asian Tiger
economies) where firms are using increasingly successfully and productively
despite (or perhaps precisely as a result of) not emulating the HRM strategy
and practices of Anglo-American companies. Much of the existing IHRM
literature is prescriptive. This means that rather than looking at differences
and comparing international cases, it seeks to establish what firms ‘ought to
do’, not what they actually do and why they do it. This prescriptive litera-
ture predominantly emanates from a ‘western’ perspective, and very rarely
are practices from other contexts (such as emerging economies) diffused
‘westwards’. A notable exception is Japanese management principles, some
of which underpin various HRM ‘best practice’ frameworks. For example,
high levels of job security and autonomous work groups, as featured in
Pfeffer’s seven best practices (Pfeffer, 1998) are arguably the direct result of
American practitioners and academics trying to emulate the manufacturing
principles which made Japanese products so competitive in the 1980s and
1990s. However, as will be demonstrated by the case study at the end of this
chapter, the extent to which management practices can be transplanted from
one institutional context to another might be limited.
Copyright © 2017. Kogan Page, Limited. All rights reserved.
Wintersberger, D (ed.) 2017, International Human Resource Management : A Case Study Approach, Kogan Page, Limited, London.
Available from: ProQuest Ebook Central. [5 October 2022].
Created from gre on 2022-10-05 02:45:53.
72 The context of international HRM
form. In other words, customs, values, rituals and beliefs are not formally
written down as laws, but still exist in people’s minds. In contrast, hard
(or ‘tangible’) institutions entail formal rules and policies such as employ-
ment law. Such rules by implication are not pliable. For example, companies
operating in countries which have minimum wages (such as the UK) cannot
pay their workforce less than the minimum wage. In contrast, an example
of a soft institution with regard to pay determination would be a coun-
try’s customs and practices regarding pay increases based on seniority as
opposed to merit. In this chapter, we will discuss the traditional Japanese
‘Nenko’ (seniority-based pay) system as a soft institution that still to some
extent exerts some influence in Japanese firms. Table 5.1 below provides
some examples of hard institutions and their corresponding soft institu-
tional factors.
Wintersberger, D (ed.) 2017, International Human Resource Management : A Case Study Approach, Kogan Page, Limited, London.
Available from: ProQuest Ebook Central. [5 October 2022].
Created from gre on 2022-10-05 02:45:53.
The institutional context of international HRM 73
Wintersberger, D (ed.) 2017, International Human Resource Management : A Case Study Approach, Kogan Page, Limited, London.
Available from: ProQuest Ebook Central. [5 October 2022].
Created from gre on 2022-10-05 02:45:53.
74 The context of international HRM
basis of the type (or variety) of capitalism which they have embraced, as
this allows us to make some inferences about the nature of institutional
constraints present in that country.
Wintersberger, D (ed.) 2017, International Human Resource Management : A Case Study Approach, Kogan Page, Limited, London.
Available from: ProQuest Ebook Central. [5 October 2022].
Created from gre on 2022-10-05 02:45:53.
The institutional context of international HRM 75
Wintersberger, D (ed.) 2017, International Human Resource Management : A Case Study Approach, Kogan Page, Limited, London.
Available from: ProQuest Ebook Central. [5 October 2022].
Created from gre on 2022-10-05 02:45:53.
76 The context of international HRM
Wintersberger, D (ed.) 2017, International Human Resource Management : A Case Study Approach, Kogan Page, Limited, London.
Available from: ProQuest Ebook Central. [5 October 2022].
Created from gre on 2022-10-05 02:45:53.
The institutional context of international HRM 77
in the United States are indeed generally more short-term than in coordi-
nated market economies. Management tend to exert unilateral control over
employees due to unions being largely absent from the workplace. In 2015,
only 10 per cent of the overall workforce were union members, compared
to nearly 20 per cent in Germany and nearly 70 per cent in Sweden (OECD
Stat, 2017). An obvious consequence of weak trade unions in the United
States is that wage setting tends to be a rather unilateral managerial activ-
ity. Where wage bargaining does occur in LMEs, it generally does so at the
individual (employee) rather than collective level. This is facilitated by the
‘laissez faire’ approach of successive governments in the United States over
the last 40 years. As mentioned earlier, neo-liberals view too much state
intervention in firm governance and relations between different stakehold-
ers (including employers and employees) as bad, potentially making markets
inefficient. Therefore, much of the bargaining process is left to individual
employees and their direct line managers. It is important to note again that
liberal and coordinated market economies are only ideal types, and that
features might overlap in different countries. In the context of wage setting,
for example, several US states have set their own federal minimum wages.
These range from as little at $5 per hour in states such as Georgia to up to
$15 per hour in cities such as Seattle (NCSL, 2017). Some states (such as
Alabama) have no minimum wage at all. Instead of ‘sectoral agreements’
(more on these later), employees in the United States are not represented by
unions at occupational level, meaning that there are likely to be significantly
larger salary differentials between individual workers than in coordinated
market economies.
Within LMEs such as the United States, the laissez-faire approach taken
by the state extends well beyond collective bargaining. In contrast to CMEs,
LMEs pose few constraints (ie minimum standards) for training provision at
enterprise level. In contrast to CMEs, where the state often coordinates the
planning of training provision with employer representative bodies as well
as trade unions, such state intervention is generally absent in LMEs such as
the US and the UK, though increasingly less so in the UK, where the govern-
ment is in the process of introducing an ‘apprenticeship levy’. Employers
in LMEs can be said to operate in a rather more ‘voluntarist’ setting than
Copyright © 2017. Kogan Page, Limited. All rights reserved.
Wintersberger, D (ed.) 2017, International Human Resource Management : A Case Study Approach, Kogan Page, Limited, London.
Available from: ProQuest Ebook Central. [5 October 2022].
Created from gre on 2022-10-05 02:45:53.
78 The context of international HRM
Wintersberger, D (ed.) 2017, International Human Resource Management : A Case Study Approach, Kogan Page, Limited, London.
Available from: ProQuest Ebook Central. [5 October 2022].
Created from gre on 2022-10-05 02:45:53.
The institutional context of international HRM 79
Wintersberger, D (ed.) 2017, International Human Resource Management : A Case Study Approach, Kogan Page, Limited, London.
Available from: ProQuest Ebook Central. [5 October 2022].
Created from gre on 2022-10-05 02:45:53.
80 The context of international HRM
Another key feature on which to compare and contrast LMEs with CMEs
is that of collective bargaining. As mentioned previously, the United States,
being the epitome of an LME, is characterized by decentralized bargain-
ing and trade unions that are weaker in influence, on the one hand due to
weaker legislative support by government and on the other hand by the
closely related consequence of lower membership levels as discussed earlier.
Quite the opposite is the case in Germany (and CMEs in general). First
and foremost, the wage bargaining process in Germany is decentralized
insofar as it takes place at sectoral (industry) level. The same also applies
to some other CMEs such as Austria and to some extent France, but not
to Japan (more on this later). Sectoral-level pay bargaining in Germany
allows employers’ associations at industry level to negotiate with unions at
industry level. For example, the metalworkers’ union (IG Metall) negotiates
minimum sectoral wages for all groups of workers in metal refining and the
wider manufacturing industry. Such sectoral agreements are legally binding,
and employers who are represented by an employers’ association may not
undercut these sectoral-level agreements. Germany has only very recently
(2015) introduced a minimum wage in order to protect the most vulnerable
workers such as those employed in service SMEs, many of which are not
members of an employers’ association, and don’t have to adhere to sectoral
agreements.
While the bargaining process in Germany is centralized, operating at
industry level, there is also employee representation at workplace level in the
form of company or ‘works’ councils. Works councils are elected by employ-
ees and while they do not negotiate pay (which is done by unions at sectoral
level – see Exhibit 1 below for an example), they do often have a lot of say in
company decision making. A works council may participate in management
decision making on issues such as organizational restructuring, offshoring,
downsizing as well as production processes and the quality of the working
environment. The role of the works council is reinforced by a particular
institution associated closely with some CMEs (including Germany and
Austria) but not all (for example Japan), namely that of ‘co-determination’.
In the German case, co-determination is embedded in the law, which stipu-
lates firstly a ‘two-tier’ board structure for all large companies and secondly
Copyright © 2017. Kogan Page, Limited. All rights reserved.
Wintersberger, D (ed.) 2017, International Human Resource Management : A Case Study Approach, Kogan Page, Limited, London.
Available from: ProQuest Ebook Central. [5 October 2022].
Created from gre on 2022-10-05 02:45:53.
The institutional context of international HRM 81
The industrial union of metal workers (IG Metall), while originally founded
to represent the interests of metal workers in Germany’s formerly large
steel industry, now represents workers across many manufacturing sectors
including automotive, electronics and printing. With a membership of well
over 2.7 million workers, it is also Germany’s largest union and its sectoral-
level pay negotiations with employers’ associations in manufacturing
receive substantial media attention as pay settlements in these industries
tend to set the tone for deals in other sectors (IG Metall, 2008).
Wintersberger, D (ed.) 2017, International Human Resource Management : A Case Study Approach, Kogan Page, Limited, London.
Available from: ProQuest Ebook Central. [5 October 2022].
Created from gre on 2022-10-05 02:45:53.
82 The context of international HRM
Wintersberger, D (ed.) 2017, International Human Resource Management : A Case Study Approach, Kogan Page, Limited, London.
Available from: ProQuest Ebook Central. [5 October 2022].
Created from gre on 2022-10-05 02:45:53.
The institutional context of international HRM 83
these two ideal types. There are countries (such as France and Italy) which
simply do not fit any of the ideal types particularly well. Then there is the
problem that many of the emerging economies have developed very distinc-
tive types of capitalism from mature markets and therefore new categories or
ideal types may have to be created. As the preceding subsection on Japan has
demonstrated, there is substantial diversity within these ideal types. Japan
may well be a coordinated market economy (by virtue of relatively strong
state involvement in the market), but it does not include one of the key
characteristics of a CME, namely centralized bargaining. At the same time,
some LMEs are adopting features of CMEs (notably more state intervention
in training and development) and vice versa (for example the extensive neo-
liberal reforms under Chancellor Gerhard Schroeder in Germany), meaning
that the boundaries between the two ideal types may be increasingly eroded.
In fact, the UK and the US, by introducing minimum wage(s) (notably before
Germany did), display some features of state intervention in the bargaining
process. In 2016, British Prime Minister Theresa May (Conservative Party)
raised some eyebrows and fierce responses from the Confederation of British
Industry (CBI) by proclaiming that she wants employee representative seats
at board level in the UK. Although she has since weakened her case (follow-
ing pressure from the CBI), this shows that countries are not immune to
‘importing’ successful practices from other varieties of capitalism. Similarly,
in the UK context, politicians have recently called for tighter legislation on
training and the Conservative Party has even committed to encouraging the
generation of 3 million new apprenticeships by 2020.
While some LMEs such as the UK may be attempting to adopt some of the
best practices of CMEs (namely fostering of apprenticeships and employee
representation at senior management level), CMEs seem to increasingly
closely resemble LMEs. It is argued that globalization and multinationals
are leading to global convergence (Quintanilla and Ferner, 2003) in employ-
ment patterns towards the LME model (Edwards, 2004). Multinational
corporations (more on these later) may be acting as the key vehicle of the
transfer of LME HRM practices towards economies traditionally catego-
rized as CMEs (see for example Royle, 2004 and Gamble, 2006).
While we need to be acutely aware of the potential limitations of the VoC
Copyright © 2017. Kogan Page, Limited. All rights reserved.
Wintersberger, D (ed.) 2017, International Human Resource Management : A Case Study Approach, Kogan Page, Limited, London.
Available from: ProQuest Ebook Central. [5 October 2022].
Created from gre on 2022-10-05 02:45:53.
84 The context of international HRM
Reflective activity
1 employment security;
2 selective hiring;
3 self-managed teams and decentralization of decision making;
4 comparatively high pay contingent on performance;
5 extensive training;
6 reduction of status differentials;
7 extensive information sharing across the entire organization.
Wintersberger, D (ed.) 2017, International Human Resource Management : A Case Study Approach, Kogan Page, Limited, London.
Available from: ProQuest Ebook Central. [5 October 2022].
Created from gre on 2022-10-05 02:45:53.
The institutional context of international HRM 85
that there ought to be no overlap between mundane operational tasks and more
complex conceptual tasks. As a result, workers had very low levels of autonomy
at work, being prescribed the scientifically devised ‘one best way’ to carry out
operations.
As a consequence of such forms of work organization, which also permeated
service sectors throughout the 1970s and 1980s (Levitt, 1972), critics have
pointed towards their dehumanizing nature and the resulting ‘deskilling’ and
worker ‘alienation’ (Braverman, 1972) from the labour process. Alienation is
the consequence of workers not understanding the full scope and value of
their input into the production process. Alienated workers are likely engaged in
Wintersberger, D (ed.) 2017, International Human Resource Management : A Case Study Approach, Kogan Page, Limited, London.
Available from: ProQuest Ebook Central. [5 October 2022].
Created from gre on 2022-10-05 02:45:53.
86 The context of international HRM
contexts presents opportunities for workers to become more highly skilled and
to have greater autonomy and control over the work that they do than under
traditionally standardized work organization (Womack, Jones and Roos, 1990).
In this case study, we examine the challenges associated with the
implementation of TQM production principles in a UK context. It is based on an
example study of a Japanese car manufacturing company that has committed
to a five-year contract for producing its small and mid-size range in the north of
the UK. Under the new production arrangements, the company, which has its
head office in Tokyo, has decided to strengthen its emphasis on tried-and-tested
Japanese modes of work organization and production. Previously, the UK plant
Wintersberger, D (ed.) 2017, International Human Resource Management : A Case Study Approach, Kogan Page, Limited, London.
Available from: ProQuest Ebook Central. [5 October 2022].
Created from gre on 2022-10-05 02:45:53.
The institutional context of international HRM 87
accountable for production issues, but also for employee relations and welfare-
related issues (such as attendance, punctuality and general worker wellbeing).
The new production system around autonomous work groups required an
increased emphasis on what is known in Japanese as hourensou. This entails a
more collaborative working environment centred around an increased number of
meetings and information sharing within and between different teams. Moreover,
the new production system emphasized a practice referred to by Japanese
management as genchi genbutsu, which is the expectation that workers and line
managers will go to the source of problems and solve them proactively.
In the previous production process, plenty of parts were always readily
available, allowing workers to pre-produce buffer inventory in order to take
Wintersberger, D (ed.) 2017, International Human Resource Management : A Case Study Approach, Kogan Page, Limited, London.
Available from: ProQuest Ebook Central. [5 October 2022].
Created from gre on 2022-10-05 02:45:53.
88 The context of international HRM
lengthy breaks once production targets had been achieved. Consistent with the
‘just-in-time’ imperative that is crucial for customization, a key feature of the
new production system was that buffer inventory was made deliberately thin.
Parts were delivered from other plants only upon request, and were usually
only delivered the day before a new assembly activity commenced. This heavily
restricted the extent to which individual workers or teams were able to manage
their pace of work.
Consistent with the new emphasis on quality, each individual’s accuracy
(number of defects) was logged on a daily basis and displayed above their
workstation. No more than 20 defects were permitted per month, and if this
target was exceeded, workers received a written warning. Persistent failure
to meet these targets could result in dismissal. At the same time, poor-quality
records at individual level would affect collective (team) performance. Within
the new production system, more senior, long-serving members of staff were
expected to supervise newer team members to ensure that their performance
met the company requirements.
After a year of operating the new production system, the company
experienced unprecedentedly high levels of labour turnover and a higher number
of defects than under the old production system. Moreover, in consultative
meetings, workers reported high levels of stress and fatigue as a result of
always having to pace themselves in the just-in-time method of production. A
common complaint raised by senior members of staff was the additional burden
of having to coach and supervise newer members of staff and those who did
not display the commitment and attitude necessary to meet the quantitative
and qualitative performance targets. Younger workers in turn complained about
‘micro-management’ and pressure from more senior team members. Overall
plant productivity was around 25 per cent lower than that of a comparable plant
in Japan. Management were puzzled about why the Japanese production system
was not yielding the desired productivity gains in the UK.
Copyright © 2017. Kogan Page, Limited. All rights reserved.
Reflective questions
Wintersberger, D (ed.) 2017, International Human Resource Management : A Case Study Approach, Kogan Page, Limited, London.
Available from: ProQuest Ebook Central. [5 October 2022].
Created from gre on 2022-10-05 02:45:53.
The institutional context of international HRM 89
Wintersberger, D (ed.) 2017, International Human Resource Management : A Case Study Approach, Kogan Page, Limited, London.
Available from: ProQuest Ebook Central. [5 October 2022].
Created from gre on 2022-10-05 02:45:53.
90 The context of international HRM
about co-determination based on what this chapter has covered. At VW, half
the supervisory board seats are reserved for employee representatives. One of
the board seats has long been held by the head of the IG Metall union and the
remainder by works council representatives. In theory, the remaining half of the
board seats are to be held by outsider shareholders, but at VW, four of the 10
seats reserved for shareholders are members of the Porsche and Piëch families
(the Porsche brand being one of VW’s brands) who own 31.5 per cent of VW’s
equity; two seats are filled by the government of Lower Saxony, which holds 12.4
per cent of shares and Qatar Holding, which owns 15.4 per cent as an outside
investor (Milne, 2015). The only other ‘outsider’ is Annika Falkengren, CEO of the
Swedish SEB bank, which in turn is an advisor to Scania trucks – a subsidiary of
VW (ibid.).
These peculiarities (over-representation of insiders including local
government) has led a quite a distinctive system of corporate governance at
VW. While in principle, the chairperson would discuss sensitive issues with
Copyright © 2017. Kogan Page, Limited. All rights reserved.
shareholders in the first instance before bringing it before the full board at
German companies, sensitive issues would first be taken to the works council
by the chairperson, and a common position agreed before it is taken up with
shareholders (Milne 2015). Some have linked this system to a series of bribery
and corruption scandals affecting VW since the 1990s (see Odell, 2015). The
most notable one was the recent ‘emissions scandal’ where it has been revealed
that VW has long been involved in a large-scale emissions regulation evasion
scheme (Hotten, 2015). Specifically, the company cheated on federal emissions
tests through the installation of a so-called ‘defeat device’ on at least 11 million
of its diesel vehicles. The software would detect when the car was being tested
Wintersberger, D (ed.) 2017, International Human Resource Management : A Case Study Approach, Kogan Page, Limited, London.
Available from: ProQuest Ebook Central. [5 October 2022].
Created from gre on 2022-10-05 02:45:53.
The institutional context of international HRM 91
and suppress emissions at the time of test in order to meet stringent emissions
requirements in various countries.
How was such endemic, large-scale cheating possible with such elaborate
control mechanisms (supervisory board and outsider forms of governance)?
Some have blamed the VW system of co-determination, which has become
something more ‘akin to co-management’ (Milne, 2015). The strong
representation of the works council and local government on the supervisory
board meant that difficult decisions such as job losses were almost impossible to
unilaterally implement by management and worker resistance to the prospect of
such difficult decisions was strong, owing to the high union density at VW, with
some 95 per cent of employees said to be members of IG Metall (Tatje, 2016) As a
result, it might be expected that any change initiative aimed at increasing overall
productivity (inherently likely to entail downsizing and/or work intensification)
is likely to be fiercely resisted. Indeed, some have linked the current shortfall in
productivity – VW made around the same number of cars as Toyota in 2014 with
almost double the number of employees (Milne, 2015) – with the strong influence
of employee representatives at board level.
Reflective questions
Conclusions
In this chapter we examined the role of institutional factors in shaping
distinctive national level patterns of HRM and employment relations. We
considered the role of hard institutions (eg employment law) and soft insti-
tutions (such as the ‘Nenko’ system of promotion in Japanese companies).
We have also considered institutions as embedded in particular cultural
Wintersberger, D (ed.) 2017, International Human Resource Management : A Case Study Approach, Kogan Page, Limited, London.
Available from: ProQuest Ebook Central. [5 October 2022].
Created from gre on 2022-10-05 02:45:53.
92 The context of international HRM
Wintersberger, D (ed.) 2017, International Human Resource Management : A Case Study Approach, Kogan Page, Limited, London.
Available from: ProQuest Ebook Central. [5 October 2022].
Created from gre on 2022-10-05 02:45:53.
The institutional context of international HRM 93
Wintersberger, D (ed.) 2017, International Human Resource Management : A Case Study Approach, Kogan Page, Limited, London.
Available from: ProQuest Ebook Central. [5 October 2022].
Created from gre on 2022-10-05 02:45:53.
94 The context of international HRM
Wintersberger, D (ed.) 2017, International Human Resource Management : A Case Study Approach, Kogan Page, Limited, London.
Available from: ProQuest Ebook Central. [5 October 2022].
Created from gre on 2022-10-05 02:45:53.
The institutional context of international HRM 95
Wintersberger, D (ed.) 2017, International Human Resource Management : A Case Study Approach, Kogan Page, Limited, London.
Available from: ProQuest Ebook Central. [5 October 2022].
Created from gre on 2022-10-05 02:45:53.
96 The context of international HRM
Wintersberger, D (ed.) 2017, International Human Resource Management : A Case Study Approach, Kogan Page, Limited, London.
Available from: ProQuest Ebook Central. [5 October 2022].
Created from gre on 2022-10-05 02:45:53.