(By Paul Davies)
I The Emergence of Shareholder Value
In 1956 C A R Crosland published a book entitled The Future of Socialism. Crosland had been an academic economist at Oxford, was at the time of writing Labour MP for Grimsby and was to be briefly a minister in the 1964 Labour government before an untimely death. He was the leading theorists on the reformist wing of the Labour Party. Besides setting out a positive agenda for the Party, the book was concerned to divert the Party away from some of its then current policy proposals. These proposals included ideas for further nationalisation of industry and, less radically, proposals to place government or worker directors on the boards of large companies. Although Crosland conceded that ‘In principle I can see little to be said for the present law’, which vested control rights in shareholders, neverthel sse equally little valuable social change was to be expected from a reform of company law: ‘It is easy to become bemused with constitution-making and legal formulae’. This was because the ‘functionless’ shareholders were incapable of exercising the control rights which the law vested in them, as a result of the separation of management and ownership, and in any event did not desire to do so. In consequence ‘the psychology and motivation of the top management class itself’ had fundamentally changed as a result of its new-found independence from the firm’s shareholders. In this brave new managerialist world ‘a change in the law, logical though it might be, would make no difference to the underlying reality. Despite the existing law, the shareholders have little power, and the government and the unions have much’. By contrast, the Hampel Committee on Corporate Governance, when it turned in 1998 to consider ‘the aims of those who direct and control companies’, was clear that: ‘The single overriding objective shared by all listed companies, whatever their size or type of business, is the preservation and the greatest practical enhancement over time of their shareholders’ investment.’ The pursuit of this objective might require the company to develop rela tionships with a number of non-shareholder groups but in doing so they must have regard to the overriding objective just identified.
Of course, it might be that these two very different views of managerial objectives and behaviour reflected different political standpoints, and rather than any actual changes in the factors constraining and directing the decisions of the centralized management of large companies over the period between the 1950s and the end of the last century. However, this seems unlikely. Crosland, for example, quoted in his support the 1950s champions of shareholder value. He could do this because they shared his analysis of then prevailing situation, though of course they differed from him radically on the issue whether this situation was to be welcomed. Equally, a notable contemporary critic of the status quo can share with Hampel the view that shareholder interests dominate management decision-making, whilst rejecting that Committee’s assessment of the utility of such a situation. This paper will therefore take as its, admittedly not fully proved, starting point the proposition that, over the last half century or so, the interests of shareholders have become central to the decision-making of centralised management in a way they were no t at the beginning of the period. By contrast the interests of other stakeholders, or even the freedom of management to conduct the business in its own interest, have declined in potency. The issue which the paper seeks to address is the nature of the legal changes which have contributed to this highly significant development.
II Company Law: Constant Content and Changing Contex
(A) The Stability of Company Law In seeking to address the question posed at the end of the previous paragraph, one comes up against an immediate paradox.
One might imagine that an increase in the power of shareholders as against management would be reflected in changes in company law, since one of the central tasks of company law is to regulate the principal-agent relationship between shareholders and the centralised management of large companies.
Yet, the recrudescence of shareholder influence appears to have occurred against the backdrop of a remarkable stability over the post-war period in the relevant company law provisions. That period may be about to end with the recent publication of two important reports from the Law Commissions (on shareholder remedies and directors’ duties) and with the very recent proposals of the Company Law Review, established by the Department of Trade and Industry. Nevertheless, during the period with which we are concerned company law remained largely unchanged in the relevant respects. In fact, the one significant change to the law, which will be discussed further below, appeared to go in the opposite direction from the promotion of shareholder value. What are the aspects of company law most relevant to the promotion of shareholder value on the part of centralised management? These may be seen as being, on the one hand, the standards governing the exercise of discretion by centralised management – mainly the law on directors’ duties. In particular, how far do these standards constrain management to place the shareholders’ interests first? On the other hand, the rules relating to the appointment and removal of the members of the board of directors are crucial. In whose hands to these powers lie? The former is still governed, substantially, by the common law, though with some statutory accretions, whilst the latter has always been regulated principally through the Companies Acts and the articles of association of particular companies. The common law moves forward only if litigation drives it, and yet litigation over the common law of directors’ duties in the UK (in contrast to the USA) has always been infrequent. English law has traditionally constrained very tightly the locus standi of individual or even minority groups of shareholders to bring derivative actions; and this has had a consequential impact upon the development of the substantive law. Indeed, it can be maintained that the last fundamental review by theHouse of Lords of the law relating to directors’ duties occurred as long ago as 1942.
(B) Company Law and Shareholder Control.
It is argued in this section that at the level of professed principle the goal of shareholder value sits fairly comfortably within the traditional rules of company law. Let us look first at the rules conferring appointment and removal rights in relation to directors or controlling the exercise by directors of their discretion.
Of course, the compensation payable for breach of directors’ typically fixed- term contracts may be substantial and the prospect of paying it may chill the use of s 303. This has led both the statute and the corporate governance committees to promote limits on the length of directors’ fixed-terms and on the length of contractual notice periods. Nevertheless, ss 303 and 368, as they stand, are significant provisions in promoting the primacy of the shareholder interest. The UK rules contrast with those in most states of the USA where the opportunity to remove directors arises only annually and, in the case of companies with staggered boards, the whole board may be replaceable only over a number of years. In the UK, by contrast, control of the majority of the votes feeds through directly into control of the board. It seems to be mainly on the basis of these sections that Bob Monks, vice chairman of Hermes Lens asset managers, has characterised the UK as ‘easily the world leader’ in the accountability of management to investors. Rules and standards constraining the exercise of managerial discretion. With regard to directors’ duties, our concern is with the duties of loyalty, rather than of competence, and in particular with the question, whose interests must the directors promote, at least as far as the law ‘in the books’ is concerned? The formal answer to that question, as in so many European systems, is that the directors must promote the interests of ‘the company’. However, English law seems to be tolerably clear that, as far as the common law is concerned, (i) the phrase ‘the interests of the company’ is meaningless unless ‘the company’ is identified with one of more groups of people involved in the company or affected by its actions; and (ii) that ‘the company’ means the members (or shareholders), at least so long as it is a going concern.
However, the matter is not entirely free from doubt and there are those who have argued that the common law recognised a broader notion of ‘the company’ than just the shareholders (or members). If the common law required the duties to be owed to the shareholders, it has been asked, why did it not say so, instead of referring to ‘the company’ as the beneficiary of the duties? The answer, which has not convinced everyone, is that ‘the company’ is a way of referring to the shareholders collectively, for it is the shareholders as a whole, rather than individual shareholders to whom the directors owe their duties, at least in the standard case. The minority view that shareholder value is inconsistent with the traditional common law was strengthened by the enactment in 1980 of the only significant statutory change to the relevant law during the period under consideration. This was the introduction of a requirement that directors ‘have regard in the performance of their functions [to] the interests of the interests of the company’s employees in general, as well as to the interests of its members’ (now s 309 of the Companies Act 1985). This provision is grist to the mill of the opponents of shareholder value who, today, are not those who argue for nationalization but those whose analysis of the company is based upon stakeholding theory, i.e., the importance to the efficient conduct of business of long- term relationships not only with suppliers of equity capital but also with suppliers of other inputs and with customers. The section is a puzzling provision. At one level it was the only concrete outcome of the Committee of Inquiry on Industrial Democracy (the ‘Bullock’ Committee), which reported in 1977, and yet it was introduced by a decidedly non-corporatist Conservative government. Ever since it was introduced, it has been debated whether it operates so as to put the interests of the employees on a par with those of the shareholders or whether it simply makes the point, as was probably already the law, that promotion of the interests of the members should be implemented by policies which recognize that shareholder benefit requires the interests of the workforce to be taken into account. This issue has not been clearly resolved by the courts, partly because no special way for employees to enforce the duty, should they have thought it worth doing so, was created. However, the matter will be settled if the proposals of the Company Law Review are accepted by the legislature. These proposals are based on the primacy of the shareholder interest but re-state that interest in an ‘inclusive’ way. In March 2000 the Company Law Review produced a consultation document setting out its proposals for developing the framework of company law which it had put out for consultation a year previously. It is proposed to reformulate and embody in statute the central duty of loyalty in the following way: [A director] . . . must (so far as he practically can) exercise his powers in the way he believes in good faith is best calculated in the circumstances, taking account of both the short and the long term consequences of his acts, to promote the success of the company, for the benefit of its members as a whole. The most significant aspect of the CLR’s proposal is that it makes it explicit that the shareholders’ interests are central by replacing the phrase ‘interests of the company’ in the common law formulation with ‘for the benefit of the members as a whole’ in the proposed statutory version. Thus, it renders untenable the minority view referred to above, and removes the ambiguities generated by the reference to ‘the company’ in the common law formulation. However, clarity is achieved in a way which stresses the inclusive nature of this duty to the shareholders. In this way the document also solves the ambiguity problem generated by s 309 of the Act, mentioned above, which would presumably disappear from the statute book under the CLR’s proposals.
The CLR’s proposal can be seen as having emerged from a debate, exposed in its earlier consultative document, which constituted a more generalized version of the arguments generated by s 309. Should the law be altered so as to make the interests of all stakeholders free-standing objects of the directors’ attention, of equal status with those of the shareholders, or should the shareholders interest be given primacy, but within a framework which recognised the significance of non- shareholder interests to the company’s commercial success? In the terminology of the earlier document, was ‘pluralism’ or ‘enlightened shareholder value’ the better approach?
The CLR in the end opts for the latter. The shareholders’ interests constitute the ultimate touchstone of legality, but the ‘circumstances’ to which the directors are to have regard in promoting the success of the business for the benefit of its shareholders include the company’s need to foster its business relationships, including those with its employees, suppliers and customers; the impact of its operations on local communities and the environment; and the need to maintain a reputation for high standards of business conduct. This ‘inclusive’ way of stating the duty removes, or should remove, any impression that promotion of the shareholders’ interests requires riding rough-shod over non-member interests.
However, management is given a clear goal to work toward but is reminded and required to have regard, in the achievement of that goal, to the interests of other groups, that to be ultimate goal is the promotion of the shareholders’ interest but the interests taken into account include all other groups likely to have a long-term relationship with the company or to be affected by its decisions. The CLR thus seeks to offer something to both the shareholder value and the stakeholder camps which is the bigger gainer? At a rhetorical level probably the former. The primacy of the members’ interests is asserted. Although the phrase ‘shareholder value’ is not used, the words ‘for the benefit of its members as a whole’ probably come as close to it as is compatible with the structure of British company law. The reference needs to be to the ‘members’ rather than the ‘shareholders’ because one type of company which may be incorporated under the Companies Act does not issue shares. More important, the proposal has to refer to the ‘benefit’ of the members rather than to ‘shareholder value’ because companies incorporated under the Companies Act may be used for both profit-making and non-profit-making activities. In short, the specification of the objective of the company is a matter for the members. Nevertheless, it is clear that in the case of the company incorporated to carry on a profit-making business, the proposed formula uses shareholder value as the touchstone for the core directors’ duty. What ought to be welcomed by the stakeholder proponents is the endorsement by the proposed formula of their theories as to how companies generate value for shareholders, ie by building sustainable relations with the other specified groups. Indeed, at the level of the impact of the formula on the behaviour of companies, the stakeholder proponents seem likely to be the bigger gainers. As we shall see below, the features of the common law formula which make it such a weak tool in litigation have been retained in the CLR’s proposals. However, the enforcement of the inc lusive aspect of the duty is envisaged as occurring, not via litigation, but through an enhanced annual reporting requirement for companies. At least for large companies it is proposed that an Operating and Financial Review, based partly on existing non-mandatory Accounting Standards Board guidance, should become compulsory and, where relevant, the OFR would cover the company’s handling of its relations with stakeholders. The success of this project will probably depend largely upon the ability of the accounting bodies to develop standards which prevent companies from taking refuge in merely self-serving statements and upon the skill of auditors in applying those standards. Nevertheless, sensitizing central management to the impact of its decisions on non-shareholder groups is more likely to be achieved, in the writer’s view, by regular, standardized reporting, which will facilitate the mobilization of public opinion by stakeholder representatives, than by occasional litigation based on subjectively conceived obligations.
One may conclude this section by stating that, in relation to both appointment and removal rights and the standards governing the exercise of directors’ discretion, British law is, and has been throughout our period, compatible with the promotion of shareholder value. This is certainly the case in relation to removal rights; the majority view of the scope of directors’ duties, as they are currently formulated, is also consistent with a shareholder value approach; and the CLR’s proposals, if adopted, will make this compatibility explicit, whilst also suggesting that shareholder value is not inconsistent with fair dealing with the interests of other stakeholding groups. Thus, the first leg of our hypothesis is established. It was not the state of the law at the time when Crosland wrote which rendered shareholders impotent in large companies. Company law, in fact, gave primacy to their interests, but the mechanisms by which it attempted to promote the shareholders’ interests were not ones of which shareholders were able effectively to avail themselves. This enables us to move forward to consider the second leg of the hypothesis: that a change has occurred in the dispersion of shareholdings which has mitigated the factual weakness of the shareholders. They are now able to make effective use of the tools which company law has always provided to them.
(C) The Re-Concentration of Shareholdings and the Utilization of Company Law
As we have seen, Crosland attributed the weakness of shareholders to the dispersion of shareholdings, which reduced the incentive of shareholders to use their control rights, as provided by company law, and generated instead an incentive to sell in the market if they were disappointed with the company’s performance. Dispersed shareholdings were equated, in short, with a preference on the part of shareholders for ‘exit’ as against ‘voice’. The re-concentration of shareholdings in the hands of a smaller number of larger shareholders holds out the prospect that the traditional internal governance rules of company law will recover their potency, because re-concentration substantially reduces shareholders co-ordination problems. This supports the hypothesis that the significant change which occurred during the post-war period was not the company law was altered (in fact, it did not) but that changes outside the law significantly altered the practical significance of that law. Crosland’s fundamental argument that shareholders neither wished nor were able to exercise their control rights would thus begin to appear less persuasive (as perhaps would his argument that there was not much social improvement to be gained by reviewing company law). If the ‘functionless’ shareholder in fact begins to function, we have squarely face up to the issue, as the CLR does, of whether allocating control rights exclusively to shareholders is the best policy.
That shareholdings in the UK have become to some significant degree re-concentrated in recent decades is well established. Pressures on individuals, to make provision for retirement outside the wholly inadequate state system of support in old age, has resulted in the UK in an enormous flow of savings onto the stock market. Also well known is the consequence of these flows in terms of patterns of shareholding, i.e., a decline in the proportion of shares held by individuals and a rise in the proportion held by institutional shareholders, especially pension funds and insurance companies. The most recent figures suggest that this is a process which has now run its course, partly because funds established in the post-war period have reached maturity and partly because new governmental solvency requirements are pushing managers towards a re-balancing of their investments in a manner which is more favorable to fixed-interest securities, whether governmental or corporate. Nevertheless, the change over the period with which we are concerned has been substantial.
(Edited by: China West Lawyer)
If you need legal service or consulting, You can also contact us directly by the ways below: