The article presents a top-down approach to the study of the empirical legitimacy of international institutions. It starts from the observation that international institutions’ representatives are engaged in various strategies aimed at cultivating generalised support. The article asserts that such strategies should be taken into account to gain deeper insights into the legitimation process of international institutions. To systematise these legitimation efforts and facilitate their empirical analysis, the article introduces the concept of legitimation strategies, which are defined as goal-oriented activities employed to establish and maintain a reliable basis of diffuse support. An analytical differentiation between three types of legitimation strategies is introduced depending on the addressees of legitimation strategies, that is, member state governments, international institutions’ staff, and the wider public. The applicability of the concept and the relevance of legitimation strategies for international institutions’ communication, behaviour, and institutional design is demonstrated by an empirical analysis of the G8’s and the IMF’s reaction to legitimation crises in the recent past of both institutions. In addition, the case studies suggest that a balanced set of legitimation strategies that takes into account the legitimacy concerns of all three constituencies is more likely to be successful in improving legitimacy perceptions.
Legitimacy communication in the media reveals when elites become attentive to international organizations' (IOs) legitimacy and whether they support or question their legitimacy. The intensity and tone of this communication results in communicative support or legitimacy pressures on IOs. Extant research gives few insights into the scope and nature of elite legitimacy communication and the factors that shape it. This article offers a comparative and longitudinal analysis of the patterns of elite communication in the media. It maps and explains variation in the intensity and tone of legitimacy communication based on a quantitative content analysis of roughly 6500 legitimacy evaluations of the EU, the G8, and the UN in the quality press of four established democracies. A multinomial logistic regression analysis yields three key results. First, in contrast to conventional expectations, there is no clear shift from low intensity and positive tone to high intensity and negative tone. Second, communication intensity is considerably higher for powerful IOs. Third, political events, including security crises and institutional reform, are important drivers of the ebbs and flows of western elites' communicative support and pressure on major IOs.
International organizations’ (IOs) power in shaping global governance outcomes is not only determined by the formal delegation of tasks and issue areas but also by the necessary capabilities to fulfill these tasks. Yet, extant research on the delegation of power to IOs gives few insights into the financial and staff capabilities of IOs and focuses mainly on the formal rules that specify IOs’ tasks and issue scope. To address these limitations, this paper makes three contributions. First, we propose a more encompassing concept of IO power which incorporates three principal components: tasks, issue scope, and capabilities. Second, we introduce a new concept – IO empowerment (IOE) – which encapsulates formal and informal changes in IO power over time. Third, we introduce a novel dataset on IO capabilities, which measures the formal rules governing IO staff and financial resources as well as the actual capabilities available to six well‐known IOs over 65 years. These original data show that capabilities vary not only across IOs but also over time.
To justify their authority, international organizations (IOs) have long relied on a functional narrative that highlights effective problem-solving based on rational-legal expertise and neutrality. Today, IOs increasingly legitimize their authority in the language of democracy. Yet not all of them do so to the same extent, in the same manner, or consistently over time. In this article, we offer a comprehensive theoretical and empirical account of democratic legitimation in global governance. Our analysis builds on a new dataset, measuring the extent to which global IOs use democratic narratives in legitimizing their authority throughout the period from 1980 to 2011. The central findings are threefold. First, our data reveal a far-reaching rise of democratic legitimation in global governance. For many organizations, this increase remains relatively modest; for others, the democratic legitimation narrative becomes central. Second, this variation is mainly explained by a combination of two factors: (a) public visibility and protest constitute the driving forces of democratic legitimation and (b) IOs’ reaction to these legitimacy pressures unfolds in a path-dependent manner. Once organizations begin to take up democratic narratives, it seems to become costly to leave this path and shift to yet another set of norms. By contrast, the conventional wisdom that democratic legitimation follows in the footsteps of internationalized authority is not supported by our analysis.
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