Transactions: From Isolation to Embeddedness
In principle, understanding any single governance decision can pave the way toward understanding any set of interrelated decisions. However, the road is far from being completely paved; possibilities for both theoretical extensions and empirical research on more complex transactions are abundant. One such extension involves revisiting the basic unit of analysis, which in TCE is the dyadic exchange relationship between two transacting parties. This premise is reflected in much empirical research, which is clearly focused on analyzing dyadic exchange relationships. But we know that many exchange relationships and governance decisions are inseparable from one another, and that history matters (Argyres & Liebeskind, 1999; Kang, Mahoney, & Tan, 2009).
As an example, Argyres and Liebeskind (1999, p. 52) discussed how Coca-Cola’s decision to enter into a number of exclusive agreements with independent bottling companies (i.e., individual transactions) limited its future choices regarding forward integration (i.e., potential future transactions). This limitation arose from the fact that the franchising agreement stipulated that only a franchisee would be allowed to bottle Coca-Cola’s products in a given geographic region. With the franchising agreement in force, the only way Coca-Cola could integrate forward in the future would be by buying one of its own franchisees; expanding its own operation by setting up a bottling operation internally would not be feasible. The early versions of the TCE in particular do not consider such intertemporal and intertransactional factors. Yet, in authentic exchange settings, long-term transactions in particular are almost always embedded within an intertemporal network of transactions.
As long as the complicating factors can be modeled and subjected to empirical testing, the scope of TCE can be broadened. Recognizing that individual exchanges are embedded in recurring exchange relationships involving multiple exchanges not only with the same trading partner but also multiple other trading partners, Argyres and Liebeskind (1999, p. 59) noted that because the embeddedness constraints that different firms face are likely heterogeneous, identical transactions may well be governed in different ways in different exchange relationships. This of course exposes a limitation in the earlier formulations of TCE that focus on the characteristics of the individual transaction: TCE indeed predicts an identical governance structure for identical transactions. At the same time, to the extent that these more complex interrelationships can be incorporated into theoretical and empirical analysis, the scope of TCE can be broadened. TCE already incorporates the institutional environments in which transactions occur (e.g., Williamson, 1994), but would benefit from further studies that consider also the idiosyncrasies of the immediate empirical context in which the individual transaction is embedded. An obvious extension is to go beyond the characteristics of the individual transaction, and incorporating the simultaneity of other, relevant transactions.
Building on a similar embeddedness argument, early critiques of TCE called for incorporating also the social structures in which economic transactions are embedded (Granovetter, 1985). The sentiment is the same as above: TCE would benefit from analyses that examine economic exchange not as isolated transactions to be explained by transaction characteristics alone. Instead, the characteristics of the broader economic and social context in which the transaction occurs are relevant as well. These broader examinations could unearth governance mechanisms and safeguards to economic exchange that stem more from the social customs than economic institutions. As Granovetter (1985, p. 489) argued: obligations inherent in personal relationships—not economic institutions—work effectively as safeguards in securing economic exchange. Empirical insight on this proposition would certainly benefit TCE as well.
Here, one must be careful not to interpret abstracting something out as implying that it does not matter. TCE theorists in general and Williamson in particular have clearly acknowledged that social structures matter. What TCE theorists encourage is that in order to move the conversation forward, we must derive the implications and show that they lead to an improved understanding. We may thus invite Granovetter and others arguing for the importance of incorporating social structures to specify in exactly what ways personal relationships or “generalized morality” (Granovetter, 1985, p. 489) act as safeguards in an exchange situation where, say, the two contracting parties are represented by managers about to commit their firm’s resources to a risky project, and where their contractual if not legal obligation is to do what is best for their respective firms? Demonstrating that personal relationships are indeed more effective than formal contractual safeguards in securing a complex and risky transaction across firms would certainly constitute a challenge to the early versions of TCE in particular. But again, the implications must be derived explicitly and brought to the specific context of the complex transaction. As Williamson (1996b, p. 349) noted, “the action resides in the details.”
In a similar vein, in his commentary on opportunism, one of the premises used in TCE, Williamson (1993) noted that opportunism certainly need not be accepted and incorporated as a premise in a theory. But if it is left out, say, for the sake of parsimony, it must be done explicitly and by deriving the implications: “Provided that the analysts who suppress opportunism do this knowingly and come back to assess the ramifications, who could object?” (Williamson, 1993, p. 100). Williamson similarly noted that models based on the assumption that individual economic actors play “a game with fixed rules which they obey” (Williamson, 1993, p. 100) are certainly appropriate as long as their utility is demonstrated: what kinds of empirical predictions do these models produce, and are these predictions corroborated by data?
TCE and Stakeholder Management
All organizations involve several stakeholder groups with only partially overlapping objectives and interests (Freeman, Harrison, Wicks, Parmar, & de Colle, 2010, p. 24):
Business can be understood as a set of relationships among groups which have a stake [hence, stakeholder] in the activities that make up the business. Business is about how customers, suppliers, employees, financiers (stockholders, bondholders, banks, etc.), communities, and managers interact and create value. To understand a business is to know how these relationships work.
Unlike many other economic theories of the firm, TCE not only readily acknowledges the idea that firms consist of heterogeneous stakeholder groups but also derives some of the key implications regarding broader governance issues. In the following, the composition of the boards of directors is examined as an example.
Many economic theories of the firm privilege one stakeholder group, the shareholder, over others. In agency theory, for example, the focus is on the principal, which in the modern corporation consists of the providers of equity capital. Consequently, the theory embraces shareholder wealth maximization as the primary objective. Trying to maximize shareholder value is typically unrealistic (because of bounded rationality and uncertainty), but we could think of a good governance decision or a good contract as one that at least increases shareholder value at a rate that is acceptable to the investors and thus secures their continuing cooperation. Applying this logic, one decision or form of contract could be prescribed over another, because it plausibly increases shareholder value more than the alternatives.
TCE, early formulations in particular, similarly embrace firm value as the main objective: efficient governance decisions are ultimately aimed at increasing firm value, and consequently, shareholder wealth. This is not to say there are no other benefits to efficient transacting, but these other benefits are generally outside the scope of TCE. Clearly, the very desire to transact efficiently is difficult to derive without starting at the profit motive as a premise. This would lead us to conclude that TCE is ultimately primarily interested in just one of the stakeholders, specifically, the shareholder. Consequently, the idea of the board of directors as an instrument to secure the rights of the shareholders can be derived.
But what is the justification for focusing on the shareholder at the board level? Within TCE, the justification arises from the premise that no other stakeholder groups require the board’s attention to ensure they are protected: “Most constituencies are better advised to perfect their relation to the firm at the contracting interface at which firm and constituencies strike their main bargain” (Williamson, 1985, p. 298). The main bargain for an employee is of course the employment relationship, where the employee’s duties and compensation are determined. In most cases, this relationship can be satisfactorily specified in the employment contract, whereby the employees get “their bite at the apple” once or twice a month when their salaries are paid. There are several safeguards that activate if for some reason the firm does not pay its employees’ salaries; contract law, labor law, and collective bargaining agreements are examples of such safeguards. The same applies to buyer-supplier relationships or debt financing: a contract is sufficient, and again, if for some reason the firm reneges on its obligation to pay its invoices or its loan payments, the other contracting parties have safeguards at their disposal, including the extremely powerful mechanisms of litigation and petition for bankruptcy.
Embedded in the logic of TCE—early formulations in particular—is the assumption that when we analyze all stakeholder groups one by one, we likely arrive at the conclusion that the only ones whose rights cannot be secured by way of contract are the shareholders. The shareholder is, by design, a residual claimant who enjoys no contractual safeguards. Shareholders get their only bite at the apple at the distribution of the residual: they receive whatever is left over once all the contractual obligations to other stakeholders have been met. It is illegal for a firm to pay dividends if it has failed to pay its employees’ salaries or has defaulted on its loan payments.
The notion that relationships with all stakeholder groups, save providers of equity, can be perfected by contract is, however, a strong assumption and could reasonably be challenged as unrealistic. The assumption suggests that in formulating the contract, the contracting parties have sufficient foresight to fold the relevant future events regarding the relationship into an ex ante contract, with the requisite safeguards to preempt potential hazards (Williamson, 2000, p. 601). If this is indeed the case, then it is straightforward to derive the conclusion that seats on the board of directors should be reserved for shareholders, the only disadvantaged stakeholders whose relationship with the firm cannot be ex ante formalized into a contract.
There are many arguments that call into question TCE’s early assumption that exchange parties are able “to look ahead, perceive hazards, and factor these back into the contractual relation, thereafter to devise responsive institutions” (Williamson, 1996b, p. 9). Even Williamson himself (1996b, p. 9) noted that this appears to contradict the assumption of bounded rationality. Argyres and Mayer (2007) in particular discuss contracting as an evolving organizational capability that involves various bases of expertise and most importantly, learning over time. Contracting parties may thus well lack sufficient foresight. With highly complex transactions—those beset with high uncertainty in particular—considering all relevant contractual hazards is impossible. Here, uncertainty is not limited to mean uncertainty about how the other contracting party will act but refers more generally to our fundamental inability to anticipate the future, our “limited understanding of nature” (Argyres & Mayer, 2007, p. 1064). We do not know what is going to happen in the future and do not know where innovation will take us. We do not know which skill sets will be useful in the future and which will be obsolete. We do not know what the value of our skills or our technologies in their second-best use is, and we may have no idea what the second-best—or even the primary—use of our skills is ten years from now. Consequently, contracts with stakeholder groups other than the shareholders may be materially incomplete as well, which may require additional safeguards in addition to the contract. Opening the board of directors to broader participation is one obvious alternative.
The question, “Should the board of directors be opened to broader participation?” is relevant and deserves more scrutiny in future research. There are many arguments in the literature suggesting broader participation has benefits (e.g., Aguilera & Jackson, 2010; Osterloh & Frey, 2006). Osterloh and Frey (2006), for instance, argued that in the case of firm-specific knowledge investments by employees, the employment contract may not be sufficient in securing the employees’ cooperation. Or as Aguilera and Jackson (2010, p. 499) put it: “To the extent that the firm contains a stock of firm-specific capital invested by employees, the board should not be seen merely as ‘agents’ of the shareholders but as trustees of stakeholders.” Consider a case in which a software firm asks its software engineers to commit to a high degree of specificity by having them learn and further develop the firm’s own, proprietary programming language. The engineers know that this skill will be useless if they have to seek employment elsewhere. In such cases, Osterloh and Frey (2006) recommend that participation on the board of directors be opened to those making such firm-specific knowledge investments, and that the board be chaired by a neutral person, specifically, a disinterested outsider.
The logic of the stakeholder approach is compelling, but it turns out it is not only readily compatible with TCE, but also that TCE theorists early on acknowledged the general possibility of broader participation: “[A]lthough the stockholders may at one time have had defensible exclusive claims on the board of directors, that has since become an anachronism … [A]ll constituencies require direct access to corporate governance lest their legitimate interests be ignored or abused” (Williamson, 1985, pp. 299–300); and specifically, that “the first and simplest lesson of transaction cost economics is that corporate governance should be reserved for those who supply or finance specialized assets to the firm” (Williamson, 1991, p. 86). Osterloh and Frey’s (2006) notion of firm-specific knowledge investment is a special case of asset specificity, discussed in TCE already twenty years earlier (Williamson, 1985). Again, asset specificity is in no way limited to physical or financial assets; idiosyncratic employment relationships fall within the general category of specificity as well.
Both early and contemporary formulations of TCE invite us to understand the implications of specificity in particular. The starting point is to determine which stakeholder groups exhibit strongest specificity. All relationships that involve negligible specificity should be governed by a contract, because they are much more flexible than the more “heavy-duty” arrangements such as awarding board seats. But in contrast with some of the stakeholder approaches, TCE does caution against broader participation on the board of directors. Williamson (2008, pp. 250–251) noted three potential undesirable consequences. One, giving the board stakeholder (as opposed to shareholder) responsibility dilutes the effectiveness of the board with regard to the shareholders; two, the inclusive stakeholder perspective may provide management with an ad hoc rationale to make just about any decision whatsoever; three, sharing of control between multiple stakeholders may lead to an impasse on decisions.
In TCE, governance questions are always context specific. Whether the task of the board is to act as an agent of the shareholders or as a trustee of the stakeholders must be examined in context, not promoted as a general principle. Consider the case where raising equity financing is critical to an operation; a high-technology manufacturing startup that must invest extensively in highly specific technologies is a good example. In such contexts, the only feasible option for financing the operation is obviously equity (or an equity-like instrument), and prospective investors know they would be putting their money at high risk. How does the firm establish credibility in the eyes of potential providers of equity? In a high-technology manufacturing context with high degrees of technological asset specificity, the firm might be well advised to set up the board of directors primarily as a safeguard to secure shareholder interests. Here, TCE logic importantly reminds us that every step that is taken to dilute shareholder interests at the board level will be a step toward eroding this credibility. If the owners choose to open up the board for broader participation (e.g., employees), they must make their reasoning clear to all existing and prospective providers of equity so as to maintain their willingness to continue financing projects. Owners must be able to convince the prospective providers of equity that employees are indeed taking a risk that is sufficiently proportional in magnitude to the risks taken by those who finance the operation. That both shareholders and employees are making an idiosyncratic firm-specific investment is insufficient: employees may be making firm-specific investments, but they are also guaranteed to receive salary payments. The shareholders in turn are both asked to provide more financing and are guaranteed nothing. Potential providers of equity could reasonably argue that in comparison with salaried employees, they are in a much weaker position, and that the most important task of the board must be to secure the rights of the weakest stakeholder: the shareholder. A firm that refuses to incorporate in its governance decisions the fact that shareholders are doubly disadvantaged vis-Ã -vis the employees in this context will likely find itself unable to raise the requisite equity. Those advocating broader participation would have to present a compelling argument that financing is not materially jeopardized. The situation must be analyzed in its entirety.
From the TCE perspective, board composition—and governance choice more generally—is ultimately an empirical matter, not something to be derived from a priori assumptions or general principles. Whether the board should be reserved to focus on shareholder issues depends on the context. Further, TCE maintains that all attempts to argue that one governance choice is better than another must incorporate an explicit comparison: “[TCE] is relentlessly comparative, maintaining that the merits of particular organizational arrangements can only be assessed relative to the performance of the relevant alternatives constrained by the same human frailties and propensities, technology and information” (Masten, 1999, p. 54).
It is easy to be misled if one glosses over the context. For example, Williamson (1988, p. 571) wrote that the board of directors is regarded “principally as an instrument for safeguarding equity finance.” What those citing this tend to overlook is that the statement is made specifically in the context of the manufacturing firm, where raising equity financing is crucial. If a manufacturing firm cannot secure requisite financing, discussion of stakeholder issues becomes a moot point: absent sufficient funds to finance the operation, everyone loses. Those arguing for broader board participation in the case of equity-financed manufacturing firms would have to demonstrate that broader participation leads to a better outcome than current practice. The first step in making the argument is to show that broader participation does not dilute shareholder interests to the point that financing is jeopardized. Of course, in a professional service firm the situation may be entirely different. Equity financing is not central in running a law firm, for example (Williamson, 1991).
The maxim of relentless comparison could of course be prescribed as a general principle in both practical and scientific settings: in critiquing something, one should always seek to offer a demonstrably better alternative. Much of the time, critique centers on exposing shortcomings, not offering alternatives. This is the case with many critiques of TCE as well (Ketokivi & Mahoney, 2016). But TCE readily admits that all governance options are imperfect, a conclusion that arises directly from bounded rationality and uncertainty. The challenge resides in identifying which among the imperfect options offers a superior solution to the governance problem at hand.