TRADE UNION WORKPLACE REPRESENTATION IN THE FEDERAL REPUBLIC OF GERMANY: AN ANALYSIS OF THE POSTWARVERTRAUENSLEUTEPOLICY OF THE GERMAN METALWORKERS' UNION (1952-77)
1978; Wiley; Volume: 16; Issue: 3 Linguagem: Inglês
10.1111/j.1467-8543.1978.tb00290.x
ISSN1467-8543
Autores Tópico(s)Labor Movements and Unions
ResumoBritish Journal of Industrial RelationsVolume 16, Issue 3 p. 335-354 TRADE UNION WORKPLACE REPRESENTATION IN THE FEDERAL REPUBLIC OF GERMANY: AN ANALYSIS OF THE POSTWAR VERTRAUENSLEUTE POLICY OF THE GERMAN METALWORKERS' UNION (1952–77) Douglas Miller, Douglas Miller Research Associate, Anglo-German Workplace Relations Project, St Edmund Hall, Oxford.Search for more papers by this author Douglas Miller, Douglas Miller Research Associate, Anglo-German Workplace Relations Project, St Edmund Hall, Oxford.Search for more papers by this author First published: November 1978 https://doi.org/10.1111/j.1467-8543.1978.tb00290.xCitations: 6AboutPDF ToolsExport citationAdd to favoritesTrack citation ShareShare Give accessShare full text accessShare full-text accessPlease review our Terms and Conditions of Use and check box below to share full-text version of article.I have read and accept the Wiley Online Library Terms and Conditions of UseShareable LinkUse the link below to share a full-text version of this article with your friends and colleagues. Learn more.Copy URL Share a linkShare onEmailFacebookTwitterLinkedInRedditWechat REFERENCES 1 Cf.The Works Constitution Act (Betriebsverfassungsgesetz) 1952 and 1972. 2 The word Vertrauensmann cannot strictly speaking be translated by the 'shop steward', since the latter expression imparts the meaning of a recognised workplace bargaining agent who at the same time is a representative of the union in the plant. Further the renderings 'trust man' or 'men of trust' for Vertrauensmann convey little meaning. For the purposes of this article I shall continue to use the German expression throughout. For a discussion of the difficulties involved in translating German and English industrial relations terminology cf. G. R. Degen, Shop Stewards, Schriftenreihe der Otto Brenner Stiftung, No. 6. Frankfurt, 1976, pp. 20–3. 3 C. I. R. Study 4, Worker Participation and Collective Bargaining in Western Europe, H. M. S. O., London, 1974, p. 27. 4 Ivor L. Roberts, 'The Works Constitution Act and Industrial Relations in West Germany: Implications for the United Kingdom', B. J. I. R., Vol. XI, 1973, pp. 349–54 and 361–2. 5 I. G. Metall and I.G. Metall Chemie recognise works councillors and lay officials as Vertrauensleute alike. 6 Works Constitution Act 1972, Section 74, Subsect. 2 and Section 79. 7 F. Fürstenberg, 'Der Betriebsrat—Strukturanalyse einer Grenzsituation', in Kölner Zeitschrift für Soziologie und Sozialpsychologie, 1958. 8 Cf. I. G. Metall, Ergebnis einer Befragung zur Vertrauensleutearbeit, 1975, pp. 17–22; J. Prott, Industriearbeit bei innerbetrieblichen Umstrukturierungen. Soziale Konsequenzen, Interessenvertretung und Bewusstseinsstrukturen, Cologne, 1975, p. 181. 9 O. Wlotzke, 'Zur Zulässigkeit von Tarifverträgen über den Schutz und die Erleichterung der Tätigkeit gewerkschaftlicher Vertrauensleute', in Recht der Arbeit, 1976, p. 80; 10 U. Zachert, 'Rechtsfragen bei Tarifverträgen zum Schutz der Tätigkeit gewerkschaftlicher Vertrauensleute', in Der Betriebsberater, 20.4.1976; 11 Werner Bulla, 'Die rechtliche Zulässigkeit von Tarifverträgen über die Begünstigung von gewerkschaftlichen Vertrauensleuten', in Der Betriebsberater, Heft 20, July 1975, pp. 889–94; 12 U. Mayer, Zum Streit über die Zulässigkeit von Vereinbarungen zum Schutz gewerkschaftlicher Vertrauensleute', in Blätter für Steuerrecht, Sozialversicherung und Arbeitsrecht, 32, Jahrgang, 2/1977, pp. 17–22; 13 Kraft, 'Die Regelung der Rechtstellung gewerkschaftlicher Vertrauensleute im Betrieb', in Zeitschrifi für Arbeitsrecht, 1976, p. 243f.; 14 'Dokumentation über den Tarifvertrag zum Schutz der gewerkschaftlichen Vertrauensleute', in Der Gewerkschafter, Zeitschrifi für I. G. Metallfunktionare, November 1976 (Contains the legal argument of the union in reply to Bulla and Kraft). 10 Cf. D. Miller, Grievance Processing in a German Steel plant, unpublished M. A. Thesis, Warwick, 1976, p. 9. 11 I. G. Metall, Ergebnis…, 1975, p. 13. 12 'Autorenkollektiv des I. M. S. F.', Mitbestimmung als Kampfaufgabe, Grundlagen Möglichkeiten, Zielrichtungen, Cologne, 1972, p. 172; 18 J. Alberts et. al., Mit I. B. M. in die Zukunft, Berlin, 1974, p. 100. 13 Cf. Wlotzke, op. cit., p. 80. 14 I. G. Metall, 'Das Netz ist dichter geworden', in Der Gewerkschafter, April 1977, pp. 26–7. 15 I. G. Metall functions in fifteen major industrial groups: 1. Iron and steel; 2. Non-ferrous metals; 3. Foundries; 4. Steel rolling; 5. Light metal construction; 6. Engineering; 7. Automobile manufacture; 8. Shipbuilding; 9. Aircraft; 10. Electrotechnical industry; 11. Precision instruments; 12. Metals; 13. Office equipment; 14. Toys and jewellery; 15. Metalcrafts. These are grouped in three major bargaining units: Iron and steel (Eisenschaffend), Metals processing (Metallverarbeitend) and Metal crafts (Handwerk). 16 E. Schmidt, Die verhinderte Neuordnung, Frankfurt, 1970, pp. 26–7. 17 B. Broecker, 'Wirtschaftliche Mitbestimmung der Betriebsräte? Eine Frage aus dem Bereich der Wirtschaftsdemokratie', Die Neue Gesellschaft, Heft 2, Stuttgart, 1948, p. 127; 24 T. Fichter E. Eberle, Kampfum Bosch, Berlin, 1974, pp. 84–108. 18 Schmidt, op. cit., p. 120. 19 Schmidt, pp. 121–2. 20 Schmidt, p. 92. 21 F. Strothmann in his paper, 'Die Aufgaben der Betriebsräte und der Vertrauensleute', Published as an appendix to the Protokoll, 1. Betrienbsrätekonferenz 1955, Frankfurt, 1955, p. 88, and Protokoll 4. ordentlicher Gewerkschaftstag der I. G. Metall in Dortmund, Frankfurt, 1956, p. 145. 22 Cf. Die Arbeit der Vertrauensleute, I. G. Metall, Frankfurt, 1964, p. 94. 23 I. G. Metall, Der Gewerkschafter, Frankfurt, 1955, No. 8, p. 5. Union density in I. G. Metall stood at 52.3 per cent in 1950 and declined to 42.4 per cent by 1957. 24 Geschäftsbericht der I. G. Metall 195455, p. 28 and Geschäftsbericht der I. G. Metall 1956/57, p. 189. 25 Vertrauensleute study published in Geschäftsbericht der I. G. Metall 195859, pp. 218ff. in R. Krusche and D. Pfeiffer, Betriebliche Gewerkschaftsorgane und Interessenvertretung. Betriebsräte—und Vertrauensleutepolitik der I. G. Metall, Berlin, 1975, p. 95. 26 Legally binding collective agreements can be concluded at a national, regional or company level (in the latter case they are known as Haus or Firmentarife). For a more detailed analysis of this employers' strategy cf. M. Noblé, Die Lohnpolitik der Gewerkschaften in Westdeutschland nach 1945 unter besonderer Berücksichtigung der betriebsnahen Tarifpolitik der I. G. Metall und I. G. Chemie-Papier-Keramik als Konsequenz einer gescheiterten Tarifpolitik, unpublished thesis (Berlin University) in Krusche and Pfeiffer, op. cit., p. 46. 27 Bergmann et al., op. cit. pp. 189–97. 28 'Projektgruppe Gewerkschaftsforschung', Die Austauschbeziehungen zwischen Kapital und Arbeit im Kontext der sozio-ökonomischen Entwicklung—Zwischenbericht 1976—ler Teil—Theoretische Vorarbeiten, Frankfurt, 1976, p. 113. 29 'Projektgruppe Gewerkschaftsforschung', pp. 107–112. 30 W. Meïssner and L. Unterseher (eds.), Verteilungskampf und Stabilitätspolitik, Stuttgart, 1972, p. 94. 31 I. G. Metall 'Schriftenreihe Heft 24', Der Unterschied zwischen den Tariflöhnen und den Effektivverdiensten in der Metallindustrie, Frankfurt, 1955, pp. 25–31, quoted in H. Decker, Betrieblicher oder Überbetrieblicher Tarifvertrag, Münster Westfalen, 1960, p. 52. 32 F. Strothmann, Paper: 'Die Gewerkschaft im Betrieb', published in Protokoll 3. Betriebsrate und Vertrauensleutekonferenz der I. G. Metall, Frankfurt, 1959, p. 124. 33 R. Herding, Job Control and Union Structure, Rotterdam University Press, 1973, p. 322. 34 J. Bergmann, O. Jacobi, Müller-Jentsch, Gewerkschafien in der Bundesrepublik, Frankfurt, 1975, p. 303. 35 O. Blume, 'Die Praxis des Betriebsverfassungsgesetzes', in Das Mitbestimmungs gespräch, Heft 11/12, 1962, Dusseldorf, p. 160. 36 F. Strothmann, 'Was lehrt uns die Betriebsratswahl', paper read at the fourth Betriebsrat und Vertrauensleutekonferenz der I. G. Metall 1961 Dortmund, Protokoll, Frankfurt, 1961, p. 92. 37 I. G. Metall, Geschäftsbericht 196567, pp. 158–9. 38 I. G. Metall, p. 152. 39 I. G. Metall, Weissbuch zur Unternehmermoral, Vol. 2, Frankfurt, 1967, pp. 32–50. 40 Rainer Kalbitz, Die Arbeitskämpfe in der B. R. D.—Aussperrung und Streik, 19481968, Ph. D. Thesis, Bochum, 1972, pp. 195–201. 41 Rainer Kalbitz, p. 199. 42 Rainer Kalbitz, p. 195. 43 Tarifvertrag zum Schutz der gewerkschaftlichen Vertrauensleute, 1969, concluded between I. G. Metall and Gesamtmetall (employers' association representing those firms in the metals processing group of the union). 44 H. Knapp (Executive member of Gesamtmetall) in Unternehmerbrief des Deutschen Industrieinstituts, Jahrgang 19, No. 33 (14.8.69). 45 Schmidt, op. cit., p. 136. 46 Institut für Marxistische Sozialforschung, Die Septemberstreiks 1969, Darstellung, Analyse, Dokumente, Frankfurt, 1970. 47 Institut für Marxistische Sozialforschung, pp. 62–253. 48 E. Schmidt, Ordnungsfaktor oder Gegenmacht, Frankfurt, 1970, pp. 132–3. 49 The results of the Vertrauensleute elections of 1967 show that in 63.8 per cent of the organised plants there was a Vertrauensleute executive committee and in 20 per cent of the cases the committee was run by a works council member (17 per cent by the works council chairman). Over 50 per cent of the members of Vertrauenskörper executive committees are works councillors. Cf. Ergebnisse der Vertrauensleutewahl 1970, published by I. G. Metall, Frankfurt, 1970. 50 An impression of the general unrest which the September strikes caused within the union hierarchy can be seen from the minutes of a confidential discussion between labour directors and members of the union executive which was published against the wishes of the executive at the 1971 national conference, cf. Gewerkschaftsspiegel 18, 1971. 51 Protokoll of the 7. Betriebsräte und Vertrauensleutekonferenz, Braunschweig, 1969, Frankfurt, 1970, p. 175. 52 See E. Schmidt, op. cit., 1970, pp. 167–200. 53 45 per cent of Vertrauenskörperleitungen interviewed in a survey conducted in the wake of the September strikes advocated plant level collective agreements, cf. Bergmann et al., Vol. 2, Aspekte, Frankfurt, p. 228, Table 17. 54 Meissner and Unterseher, op. cit., p. 93. 55 Ergebnisse der Betriebsratswahlen 1975, I. G. Metall, Frankfurt, 1976, Tables 3 and 9. The membership for North Rhine Westfalia now stands at 916,345 (Interim data from I. G. Metall, 7.12.76). 56 Works Constitution Act, 1972, Section 77 (3). 57 Works Constitution Act, 1972, Section 77 (2). 58 Krusche and Pfeiffer, op. cit., p. 113. 59 Motion 356 tabled at the 1971 national conference of I. G. Metall by the Cologne branch. The first attempt to establish such agreements was made as early as 1959, cf. Fritz Salm, ' Die tarifpolitische Aufgabe Nr. 1 unserer Organisation', in Der Gewerkschafter, 1959, No. 9. 60 With the formation of plant level bargaining committees the dualism between Vertrauensleute and works councils would be broken since the latter would then be bargaining in their trade union capacity. See R. Hoffmann, Rechtsfortschritt durch gewerkschaftliche Gegenmacht, Frankfurt, 1968, p. 18. 61 Bergmann et al., op. cit., p. 294, also CI. W. Witjes, Gewerkschaftliche Führungsgruppen, Eine empirische Untersuchung zum Sozialprofil zur Selektion und Zirkulation sowie zur Machtstellung westdeutscher Gewerkschaftsführungen, Soziologische Schriften, Bd. 18, Berlin, 1976, p. 363. 69 For a detailed analysis of democratic processes within I. G. Metall during this period 1969–71 see G. Bosch, Wie demokratisch sind Gewerkschafien? Berlin, 1974. 62 Para. 16, Section 4, Satzung der I. G. Metall, 1975. 63 Richtlinien für die Bildung der Tarifkommissionen, I. G. Metall, Frankfurt, 1. 3.5. 64 Richtlinien, 1. 4. 65 Bergman et al., op. cit., p. 298. 66 Ibid., p. 294. 67 E. Schmidt, ' Die Rolle der Betriebsräte in der Gewerkschaftsbewegung' in Gewerkschaften und Klassenkampf, Kritische Jahrbücher, Frankfurt, 1973, p. 187. 68 Satzung der I. G. Metall, 18.3.C. 69 E. Schmidt, ' Die Auseinandersetzung um die Rolle der Vertrauensleute in der I. G. Metall', in Gewerkschaften und Klassenkampf, Frankfurt, 1974, p. 137. 70 Hans Matthöfer, ' Vorschlag zur Novellierung des BetrVG', in Gewerkschaftliche Monatshefte, No. 12, pp. 751–2: Workgroups can be formed in firms with over 5,000 employees … these elect by majority spokesmen, whose role it is to co-operate with the works council in representing the interests of the workgroup vis-à-vis management. Further, workgroup meetings shall be held … these shall have a consultative function on job creation, transfers, change in techniques, wage accounting, labour organisation, etc. (translation D. M.). 71 Gester in G. M. H., 1972, No. 23, p. 19ff. 72 H. Huss and E. Schmidt, Kooperation und Mitbestimmung, Überlegungen zur innerbetrieblichen Mitbestimmung, Frankfurt, 1972, p. 146. (Section 3, Subsection 1, Para 1 of the Works Constitution Act creates the possibility of additional works constitutional representative organs.). 73 F. Strothmann, ' Betrieb und Gewerkschaft in Blickfeld der Mitbestimmung', paper at the Seventh I. G. Metall Betriebsräte and Vertrauens!eutekonferenz 1969, Niederschrift, 1970, p. 31. 74 It is interesting to note that a similar 'salesman' technique was adopted by the I. G. Metall president Eugen Loderer in his speech at the ninth conference for Vertrauensleute der I. G. Metall in Nuremberg 1976, p. 9, 'Let me say to engineering employers quite categorically that the work of our union shop floor organisations is in no way directed at establishing a fifth column in the plant, but, together with the activities of our works councillors allows for a smooth flow of the production process and hence can be seen as a definite contribution to labour relations and indeed to the controversial industrial peace' (translation D. M.). 83 It is a measure of the contradictory position which the union finds itself in such a situation that this above passage was subsequently removed from the minutes of the conference. See Protokoll der 9. Vertrauensleutekonferenz in Nürnberg, 1976, Frankfurt, 1977, p. 297 and compare with the special reprint of the paper delivered above. 75 Meissner and Unterseher, op. cit., p. 99. 76 Hans Mayr, ' Die Tarifpolitik der I. G. Metall' in G. M. H., 1973, p. 577. See also 'Abkommen über Prämien und Festlohnarbeit zwischen der Industriegewerkschaft Metall und dem Arbeitgeberverband der Eisen und Stahlindustrie e. V.', 1973. 77 In 1960 there were no collective agreements on Christmas bonuses. In 1975 there were forty-four such agreements. I. G. Metall, Daten Fakten Informationen, Frankfurt, 1976, p. 9. 78 Lohnrahmentarifvertrag II für die gewerblichen Arbeitnehmer der Metall Industrie Nordwürttemberg (1.11.1973), cf. Sections 3.14 and 6.1. 79 From 10,617 establishments (Ergebnisse der Betriebsratswahl, 1975, op. cit.) organised by I. G. Metall there were only 1,042 company or plant collective agreements. I. G. Metall Daten …., p. 9 (only absolute figures available). This figure probably includes a large proportion of non-federated establishments. 80 Between the last quarter of 1969 and the last quarter of 1970 actual wage drift was cut back from 4.1 per cent to an unprecedented 2.6 per cent, cf. Arbeitgeber, Jahresbericht der B. D. A., 1971, p. 64. 81 Cf. Tarifvertrag zur Leistungsbeurteilung von Zeitlohnarbeitem für die metallverarbeitende Industrie, in North Rhine Westphalia (7.9.1970) and Sect. 9 Lohnrahmenabkommen, 15 April 1970. 82 Redaktionskollektiv 'Express', Spontane Streiks, 1973, Krise der Gewerkschaftpolitik, Frankfurt am Main, 1974, pp. 128–52. 83 Cf. Richtlinien für die Vertrauensleutearbeit der I. G. Metall (1973). 84 Schmidt, 1974, op. cit., p. 138. 85 Richtlinien, II, I. See also Resolution 1.5 in Protokoll der Betriebsrate und Vertrauens-leutekonferenz der I. G. Metall in Travemünde, 1973, Frankfurt, 1974, p. 209. 86 Resolution on the 'Leitsätze zur Gewerkschaftsarbeit der Vertrauensleute der I. G. Metall', Point 10 in Protokoll, Travemünde, p. 209. 87 Cf. Resolutions 1, 2, 14 and 15, Travemünde, Protokoll …, pp. 209, 218, 220. 88 Resolution 1, Section 5, Travemünde, Protokoll …, p. 209. 89 At the 1973 Vertrauensleute elections over 50 per cent of works councillors were elected on to Vertrauensleute committees with 26.5 per cent being elected chairmen of the committee. Cf. L. Dieckerhoff (I. G. Metall executive member), Paper read at Travemünde, Protokoll, p. 134. 90 This is noticeable in Dieckerhoff's response in the above paper to criticism of the composition of the union bargaining committees in which his comment that 80 per cent of the members of such committees were gewerkschaftlicher Vertrauensleute conceals the proportion of works councillors to actual Vertrauensleute. Cf. Travemünde, Protokoll, p. 141. 91 Cf. I. G. Metall Hannover 1974, Anträge, Materialien, Bd. II, pp. 364–84. 92 Ergebnis einer Befragung zur Vertrauensleutearbeit, I. G. Metall, Frankfurt, 1975. This survey was conducted in 2,291 plants in the fifteen industrial groups of the union. 93 Ibid., Table 4, p. 9. 94 Ibid.. 95 Ibid., Table 5, p. 10. 96 Ibid., Table 6. 97 Ibid., Table 7. 98 Ibid.. 99 Ibid. 100 Ibid.. 101 Schnellinformation über das Ergebnis der Vertrauensleutewahlen, 1973, I. G. Metall, Frankfurt, 1973. 102 Ergebnisse der Betriebsratwahlen, 1975. 103 Schnellergebnis der Vertrauensleutewahlen, 1973, p. 2. 104 It is necessary to break down the findings in terms of the three bargaining groups of the union: Iron and steel, Metal processing, Metal crafts. Here it must be stressed that while for Iron and steel Vertrauensleute facilities and participation are at their most extensive due to the benefits of Montanmitbestimmung and the strength of custom and practice (Cf. D. Miller, op. cit., p. 9.) and Metal processing represents the actual battleground for the collective agreement, Metal crafts, where organisation is generally weaker (density in the Handwerk group was 27.9 per cent in 1972 and 32.4 per cent in 1975, Ergebnisse der Betriebsratswahl, 1975, p. 29), still has to have a general collective agreement on Vertrauensleute recognition. Cf. Resolution 12 on Vertrauensleutearbeit in Protokoll des 11 en Gewerkschaftstags, Hanover 1974, Materialien, Antrage, Bd. II, p. 521. 105 'Tarifvertrag zum Schutz der gewerkschaftlichen Vertrauensleute', reprinted in Brock et al., Die Interessenvertretung der Arbeitnehmer im Betrieb, in Themenkreis Betrieb Band 3, Frankfurt, 1976, pp. 104–9. 106 Materialien, Hanover, 1974, p. 523. 107 See the criticisms lodged in the Arbeitsgruppe Vertrauensleute at the 1976 conference in Nuremberg, Protokoll, Frankfurt, 1977, pp. 162 and 164. 108 The results of the 1976 Vertrauensleute elections show a slight increase in the number of works councillors who are acting chairmen of the Vertrauensleute organisation with an absolute increase of 163 works councillors elected as Vertrauensleute on the 1973 figure of 29, 525 (total number of elected representatives 122,703), from Der Gewerkschafter, October 1976, p. 25. These are only interim figures however. 118 I. G. Metall supported this development defensively at the 1975 works council elections by initiating the expulsion of union members who had put up alternative lists of candidates to those proposed by the union. Cf. report on Opel Bochum, ' Betriebsratswahlen 1975', in Gewerkschaften und Klassenkampf Kritisches Jahrbuch 1975, pp. 47–85. 109 This contradictory situation is facilitated by the confidentiality provisions under Section 79 of the Works Constitution Act 1972. 110 During 1974 and 1976 there were 686 unofficial stoppages in the engineering sector involving 598, 872 workers. 609, 465 working days were lost. The main causes were pay, fringe benefits, Christmas bonus and cost of living increases, precisely those areas where the works council has no direct bargaining right. (Cf. I. G. Metall, Geshäftsbericht 1974–1976, p. 252). 111 Cf. Materialien, Hanover, 1974, p. 56. 112 See paper held by Eugen Loderet at Nuremberg, reprinted in Protokoll, p. 297. 113 It is interesting to note that the 1976 Vertrauensleute conference at Nuremberg was organised on a workgroup basis and did not pass any resolutions as had been common in earlier conferences. Citing Literature Volume16, Issue3November 1978Pages 335-354 ReferencesRelatedInformation
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