Monitoring under authoritarianism: The International Labour Organization’s mission on child and forced labour in Uzbekistan

Abstract

Intergovernmental organizations (IGOs) play a crucial role in promoting compliance with international norms through fact-finding and on-site monitoring missions. Many of these missions take place in authoritarian regimes, which often employ various tactics to control and suppress critics both domestically and internationally. Yet, in some cases, authoritarian states permit IGO missions to operate with little or no interference and may even establish collaborative relationships in politically sensitive issue areas. This study examines this puzzle by asking why and when IGO on-site monitoring missions can persist and foster collaboration in authoritarian contexts, a dynamic I label a pragmatic partnership. Theoretically, I argue that two key conditions must be met for such partnerships to emerge: international pressure and the development of interpersonal trust. However, I also contend that these partnerships can generate contestation, risk legitimizing autocratic practices, and marginalize pro-democratic forces. Empirically, I illustrate my argument through an in-depth analysis of the International Labour Organization (ILO)’s monitoring mission on child labour and forced labour in Uzbekistan. Methodologically, I employ process tracing covering the period 2005–2022 and draw on multiple sources of evidence. While such partnerships can contribute to incremental compliance with international norms, I also show that they generate contestation, risk legitimizing autocratic practices, and may marginalize pro-democratic forces.