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Corporate Governance Practices of Turkey A Critical Review PDF

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Corporate Governance Practices of Turkey: A Critical Review Metin Toprak* and Yuksel Bayraktar** Awareness about corporate governance began in 2002 and 2003, following the publications of international organizations on the same. In addition to the Capital Market Board (CMB), NGOs have had a key role to play in the development of the corporate governance system in terms of internal audit, internal control, risk management and strategic planning. The external financing of the Turkish companies was heavily based on banks (external finance) as in the continental Europe. Due to the dependence on foreign financing, development of corporate governance was relatively delayed when compared to the Anglo-Saxon countries such as the UK and the US. Reference to corporate governance appeared in a communiqué of CMB, for the first time, in 2003. Later, the banking law covered a chapter on internal systems that aimed at corporate governance. The Turkish Commercial Code, renewed in 2011, mentioned corporate governance and assigned the regulatory authority of corporate governance to CMB. Finally, the CMB law was renewed in 2012 and regulated corporate governance in detail was laid out, and it reinforced the authority of the CMB over other governmental institutions. CMB law made it mandatory for Bourse Istanbul (BIST) companies to implement corporate governance regulations. On evaluating the performance of the companies that implemented corporate governance with the non-implementing companies, it is found that the performance indexes of both the sectors do not differ significantly. It can be said that corporate governance in Turkey is still treated as a set of procedures and needs time to be internalized. Introduction The Turkish corporate sector has experienced various changes in the commercial legal framework since the free market reform in 1980 (named January 24 Decisions). The direction of reforms has been towards free market paradigm and deregulations. Normally, the inclusion of corporate governance in these reforms must have been assumed. However, until 2002-03, it is quite hard to find sufficient footsteps of corporate governance in legal and institutional frameworks. * Professor, Department of Economics, Istanbul University, Merkez Kampus, Beyazit, 34452 Faith, Istanbul; and is the corresponding author. E-mail: [email protected] ** Associate Professor, Department of Economics, Istanbul University, Merkez Kampus, Beyazit, 34452 Fatih, Istanbul. E-mail: [email protected] ©54 2017 IUP. All Rights Reserved. The IUP Journal of Corporate Governance, Vol. XVI, No. 2, 2017 The purpose of this paper is to portray the advent of corporate governance in the Turkish economic and financial regulatory and institutional frameworks. The paper is structured as follows: it discusses the relationship of corporate governance with economic and legal structures, followed by a discussion of the historical development of regulations on corporate governance with reference to Turkey. Subsequently, the paper summarizes the corporate governance performance in Turkey, and finally, concludes presenting the main implementation fields of corporate governance in the Turkish economic environment. Relationship of Corporate Governance with Economic and Legal Structures Corporate governance emerged firstly in the Anglo-Saxon countries such as the US and the UK, and with the globalization of trade, investment and finance, it has also spread to other developed countries in the continental Europe and Far East Asia. The last two decades have shown that corporate governance has become an international reference point like international reporting and accounting standards. The Anglo-Saxon countries provided funding for their economic development through public companies (equities). Effectiveness and sustainability of this model require accountability, responsibility, measurability, and transparency in the company activities to protect the interests of the shareholders. Taking the composition of stakeholders into account offers clues as to why corporate governance has emerged first in the countries that relied on equity-based financing model. Banking-based financing model (foreign resources) of capitalism, historically, has been common in continental Europe and Japan. The essential difference between banking-based and equity-based model has also determined the time and scope of corporate governance. It can be said that the main benefit of corporate governance is to favor the shareholders especially the small-scale ones. On the other hand, in the credit-based model, financiers of companies are banks and both sides are organized and well set up to defend their own rights against each other. Therefore, the need for state involvement to protect lenders has been felt relatively less. Since its institutionalization, corporate governance was a structural need in the Anglo-Saxon economic model, as against behavioral, cyclical or temporary in the context of continental Europe. Therefore, there is a time lag between two capitalistic traditions in terms of implementing corporate governance. The Anglo-Saxon model of corporate governance gives priority to save shareholders, while the continental Europe tradition aims at protecting various stakeholders, and shareholders are just one of them. In countries where financing model of economic development depends on banking and national economies are under dominance of family-owned companies, with the contribution of unregistered economy, structural problems are noteworthy in implementing corporate governance. It is clear that with its 40% of informal employment level, implementing corporate governance in Turkey faced important handicaps. Generally speaking, in Turkey, personality of the head of the company stands out more than identity of the company. In an environment where the boss and the company could not be Corporate Governance Practices of Turkey: A Critical Review 55 considered separately, and companies have non-formal and formal accounting and reporting records on par, it is difficult to talk about an efficiently running corporate governance system in terms of transparency, accountability, responsibility and equality. In fact, during frequent intervals, the governments initiated tax amnesties to legalize and legitimize the wealth that the authorities had no knowledge of its source. Turkey has recorded great successes to attract money from abroad or assets under the mattresses. Without questioning other source of money to integrate into the system, it has run the risk of supporting illegal activities indirectly. The chairman of the umbrella organization of chambers of commerce and industry in Turkey stated that where an informal economy is pervasive, it is difficult to accomplish institutionalization and implement corporate governance. The warning remarks of the president of the Turkish business association is as follows (TOBB, 2010): “Firstly, we should encourage formal economy for the sustainability of our companies. Unfortunately, the current structure of Turkey forces companies to run informally. While encouraging working informally, it would be a luxury to talk around here about institutionalization. The more extensive informal economy means the fewer strong companies. Companies will be up to the boss”. The dominant role of banks in financing economic development has also affected financing of politics and hence democracy. Banks, as powerful institutions, have serious determinative roles in the business world and politics of the country. Without proper mechanism, this directing-capitalist model inclined towards cronyism. Due to this clientalistic business model, property rights faced serious infringements when a new government took over the reigns after elections. Implementation of corporate governance and internal systems (risk management, internal control and internal audit) in some countries where the operating model of business world and politics is not proper or designed to run into a clientalistic way, may cause some inefficiencies and crowding out effects, and may even decrease productivity and efficiency (Abdioğlu, 2009). It should be kept in mind that performance of corporate governance and related internal systems is a result of a cultural absorption and may not produce expected results. If countries or companies are not ready mentally and intellectually, corporate governance would be only a set of procedures and may have no meaning on the transparency and accountability of governments and companies. Implementation of corporate governance necessitates a harmonious mechanism that consists of organizational structure, personnel, transportation and other supportive services and administrative expenses. Therefore, inefficient or so-called corporate governance regulations or implementations are useless and have extra costs on societies and companies. However, the worst thing after the ineffective implementation is that stakeholders would lose their faith in corporate governance. In Turkey, the following factors have had determinative influence on the implementation capability and performance of corporate governance: Shares of the public sector and private sector in the national economy, company size, trade openness, competition culture and regulations, the all-pervasive monopolistic and oligopoly markets. In terms of these criteria, 56 The IUP Journal of Corporate Governance, Vol. XVI, No. 2, 2017 Turkey had a promising scenario. Half of the BIST-30 companies are family-owned. At the end of June 2013, while openness ratio of BIST-30 companies was 34%, that ratio for all publicly- held corporations was 29% (TUYID, 2013). Corporate Governance: Organization and Management Institutions may be affected directly by various factors in the environment in which they operate: Property rights, diversification of public funds, public confidence in politicians, unforeseen payments and bribery, judicial independence, favoritism in decisions of government officials, wasting in government spending, burden of government regulation, the effectiveness of the legal framework for resolving disputes, the effectiveness of the legal framework for making the necessary changes in regulations (Harvard Business Review, 2000). Therefore, the quality of activity within the environment affects institutionalization and determines the quality of corporate governance. In terms of companies, major stakeholders are listed as follows: shareholders, the board, managers, employees, suppliers, customers, tax authorities, lenders and the settlement areas in which the company operates. The mechanism foreseen to formulate optimum protection of the role of the stakeholders— those who are in the company’s decision-making and enforcement mechanism and those who are not effective in these decision and enforcement mechanism—is considered for corporate governance. The necessity of corporate governance may show urgency and public nature in several ways: publicly-held corporations, the public goods nature of products and services, the number of shareholders and other stakeholders who are not represented on the board, public health, environmental protection, competition, tax concerns, informal sector, differences between private and social costs or benefits, i.e., externalities. Corporate governance is neither a guarantee for a company’s high performance nor a prescription for preventing bankruptcy of a company. Corporate governance is an approach that should not be related directly to the success or failure. Adoption of corporate governance is to ensure development of mechanisms aiming at preventing abuse and realizing justice. Corporate governance does not mean that all public-private companies and other organizations should wear the same type of dresses. It is clear that many factors such as sector, public-private ownership, the public goods, nature of goods and services, and monopolistic nature of the activities require unique structures and operations. Factors such as type of ownership of companies, principal-agent relationships in terms of stakeholders, accounting and auditing standards and legal structure are important in corporate governance. Differences in the structure and functioning of corporate governance systems have raised the problem of: How to control a company effectively? Who should control the firm? What should be the composition of the board of directors? What should be the role of the board of directors in its relation to the management? Due to the differences in motivations of stakeholders who have direct relations with the company, it is the responsibility of the board of directors to ensure compliance with the optimum benefit (Koçer, 2005). As a result, the main problem to be solved here is the principal- agent problem. Corporate sector and political environment interact to a certain extent. Corporate Governance Practices of Turkey: A Critical Review 57 Comparing corporate governance and democracy can give a useful simile. While the solution to the principal-agent (Fama and Jensen, 1983) problem for companies is corporate governance, the most effective instrument that has ever been developed for the problem in a democracy is the separation of powers in the world of politics. Internationalization of trade, portfolio and direct investments has led to internationalization of accounting and reporting standards and made it a necessity to develop a universal language for accounting and auditing. A time lag between developing and developed countries has been gradually shortened and even simultaneous regulations in many countries have become a trend. Speaking the same language in the fields of accounting and auditing is crucially important for accountability and responsibility dimensions of corporate governance. Company scandals are the driving factor behind the development of the principles of corporate governance as well as standards for accounting, finance and auditing at international level (The Cadbury Report, 1992). Corporate scandals, such as Enron and WorldCom in the US, Parmalat in Italy, HIH and One Tel in Australia, Ahold in the Netherlands, Yanguangxia in China and Imar Bank, Interbank, Çukurova Elektrik, leading football clubs, ÝSKÝ, and public banks in Turkey, forced governments to give priority to the management and control of companies. La Porta, Lopez, Shleifer and Vishny (LLSV hereafter, 1998) categorized 49 countries into four general groups: common law countries, the French Civil Law countries, the German Civil Law countries and the Scandinavian Civil Law countries. It could be said that while the strongest protection of shareholders is assured by the common law, the weakest protection belongs to the French civil law. The German and the Scandinavian Civil Law countries are stronger to operate laws than the common law countries. However, the French Civil Law countries are the weakest to operate the laws effectively. According to LLSV’s findings, Turkey’s performance in the fields of effectiveness of the judicial system, the rule of law, corruption and accounting standards are below the sample average. In the remaining two fields (risk of expropriation and risk of a breach of contract), Turkey has the sample average. Klapper and Love (2004) found that Turkey is under the sample average in three new fields, the effectiveness of the judicial process, the rights restricting the board of directors, and lawfulness. The Performance of the Board of Directors and Corporate Governance The greatest responsibility with regard to the implementation of corporate governance belongs to the board of directors. Therefore, the composition of the board of directors, qualitatively and quantitatively, and distribution of tasks between members are important indicators to show the performance level of corporate governance. Presence of independent members on the board of directors is quite an unusual thing at traditional family-owned companies. Independent members of the board of directors are not faced with conflict of interest with shareholders and activities of the company, so they can evaluate the company more objectively. Independent members can be appointed by general shareholder meeting of the company, but before this step, pre-approval of independent 58 The IUP Journal of Corporate Governance, Vol. XVI, No. 2, 2017 members by Capital Market Board (CMB) is needed (for a theoretical critique, see, Alpar Lošonc, 2007, 359-362; TTK, 2011; and SPK, 2012). The conditions CMB (Turkish abbreviation is SPK) is seeking for independent members are focused on knowledge and experience, and absence of conflict of interest. Independent members of the board cannot be attached directly to the general director, because they evaluate the operations of the company. Besides, independent members should not have supplier or buyer relationships with the company, because in that case they cannot act independently. In addition to the independent board members, the separation of Chief Executive Officer (CEO) and chairman of the board is another crucially important issue. A CEO is responsible for the operations and reports to the board. In order to evaluate the performance of the personnel and the company objectively, to prevent conflicts of interests, and to ensure independent opinion on the activities, the separation of the roles of the chairman and the CEO is a necessity. Corporate Governance Mechanisms The regulations related to corporate governance are carried out under the patronage of the CMB (SPK, 2012). In fact, corporate governance is not just a collection of principles. If the principles of transparency, accountability, equality (fairness), and responsibility are not concretized for the whole administrative process and instruments, it will not go beyond rhetoric. Moreover, only procedural establishment of the mechanisms may not be meaningful, so an independent evaluation is needed to show that the established mechanisms and administrative structure work effectively. In countries where (i) the business world is dominated by families; (ii) companies are experiencing serious problems while being transferred to the next generation; (iii) the informal economy is widespread; (iv) property rights are not protected like in the developed countries; and (v) the identity or personality of the boss is standing out more than that of the company, corporate governance performance of companies is interestingly in line with the performance of democracy in the country. Stability or instability of the governments goes parallel with the private sector. Clientalistic relationships between the government and the companies are very determinative for proprietorship and competitiveness of companies. The principle of equality can be defined as equidistant from all stakeholders, and protection of their rights in terms of regulations and ethical rules (Rezaee, 2009). An extra problematic issue for Turkey is that the companies are short-lived and the company and the boss are very much intertwined. Only 4% of the family-owned companies are transferred to the fourth generation (Alacaklıoğlu, 2010). Although these rates are low all over the world, Turkey’s rate is lower than the world average. The principle of transparency necessitates disclosure of all information about the company—timely, accurately and easily accessible. International accounting standards and international financial reporting standards have important functions in this respect. Turkey is in full compliance with these standards. However, it needs time to absorb those standards for both the public and private sectors. The principle of accountability expresses the accountability of the board and directors towards the company, shareholders and other stakeholders. Corporate Governance Practices of Turkey: A Critical Review 59 Notable problems and violations may occur in the companies where the separation of functions of decision, implementation and evaluation (control) are not clearly disassociated from each other. A very convenient example for this violation is the Turkish case of 2001 financial crisis. Regulation and supervision of public authorities on banks and companies turned to supervision fiascos due to the clientalistic patterns. The principle of responsibility aims at compliance of company’s operations, organization and functioning of management with the in-house regulations and the main statute, and independent evaluation of this compliance. The Relationship Between Corporate Governance, Internal Control, Internal Audit and Risk Management When corporate governance is implemented besides risk management, internal control and internal audit systems, outcomes such as an increase in the credibility of the company, a decrease in the cost of capital, a rise in credit facilities, a rise in the performance of the company, minimization of conflicts of interest, a rising trend in mergers and acquisitions, and an increase in the sustainability of the company are expected. Capital Market Board and Banking Regulation and Supervision Agency (BRSA, Turkish abbreviation is BDDK) have primary and secondary regulations in terms of internal systems and corporate governance for the companies under their regulatory and supervisory responsibilities. These regulations are updated on a par with the developments in the world. Since corporate governance requires transparent, accountable, and compatible procedures, it is clear that the internal systems of a company will make the most contribution. Otherwise, without effective internal systems, corporate governance will not be successful. While internal control is performed during the execution of activities and is the basis of quality assurance, internal audit is performed mainly after the operations and tries to eliminate production losses or evaluate the whole system more systematically. Risk management prioritizes the company’s risky activities by considering their risk levels and volumes. Thus, the administrative measures (corporate governance) as well as business measures (internal systems) are vital for the sustainability of the companies. Turkey’s regulations relating to the internal systems are in line with international approaches developed from an international perspective (see, Rachdi, 2010). Regulations for Corporate Governance in Turkey The CMB is the authorized public institution for the corporate governance framework. Other sectoral organizations can make their own sectoral regulations on corporate governance only after taking consent of CMB (Doğan, 2005). The law-level regulations on corporate governance are as follows: the Capital Market Law, the Banking law and the Turkish Commercial Code (TCC). Especially, CMB and BRSA circulated various decrees aimed at incorporating corporate governance. In addition to these sector-specific laws, nation-level 5-year development plans include corporate governance understanding that the public sector should make it concrete at institutional level (The Ministry of Development, 2013). 60 The IUP Journal of Corporate Governance, Vol. XVI, No. 2, 2017 It is mandatory to apply corporate governance for public institutions. The legal basis for this obligation depends on the law titled “Law on Public Fiscal Management and Control”. Based on this law, “The Internal Audit Coordination Board” was established in 2004. The corporate governance approach developed here is in line with the regulations of CMB and the TCC. Besides governmental institutions, NGOs and other Non-Profit Organizations (NPOs) such as Association of Corporate Governance in Turkey (TKYD) and Institute of Internal Auditors (IIA) have also contributed to raising awareness about corporate governance (Ararat and Ugur, 2003). TUSIAD, an umbrella association for the largest companies in Turkey, published a guide in 2002 titled, “Corporate Governance Best Practice Code: Structure and Functioning of the Board of Directors” (TUSIAD, 2002). This guide entrusts the main responsibility of implementation of corporate governance to the board of directors. Therefore, the guide focuses on the formation, independence and agendas of the board of directors. The Capital Market Law CMB publicized a guide on corporate governance in 2003. This is the first public regulation on corporate governance in Turkey. The guide was in the form of principles and emphasized that compliance with these principles are discretionary. However, many publicly-traded companies renewed their organizational architectures in line with these principles (SPK, 2004). Turkey’s corporate governance regulation is going parallel with its EU membership agenda and its relations with international organizations and initiatives. Turkey is an active member of the OECD, IMF, BIS, IASCO, UNDP, G-20 and the World Bank. Since the early 2000s, in addition to traditional bureaucratic structures, independent sectoral regulators have begun to emerge in Turkey. With these independent regulatory authorities, international developments have been monitored more closely and compliance with international regulations accelerated (OECD, 2004). There is a remarkable parallelism between the Turkish corporate governance regulations and Sarbanes-Oxley Act (The Sarbanes-Oxley Act, 2002). In addition, the BIS and the Basel Committee on Banking Supervision play a leading role in guiding the banks by developing principles and rules on corporate governance and internal systems of banks. The first international regulation on corporate governance issued by the OECD in 1999 was titled “OECD Principles of Corporate Governance”. A few years later, CMB issued a parallel set of principles titled “Capital Market Corporate Governance Principles” in 2003. Then, this guide was updated in 2005 and 2011 in parallel with updates in the international understanding. In the 2011 update, that guide was converted into a communiqué, and corporate governance thus has had a stronger base, because until that time it was only a decision of CMB. In order to help investors to make healthy decisions, some obligations related to the timing and content of advertisements of general assembly meetings have been put into effect. Moreover, a mechanism of independent board member has been regulated to ensure representation of small investors more effectively and effective functioning of the board of directors away from conflicts of interest. Corporate Governance Practices of Turkey: A Critical Review 61 In October 2011, a decree-law changed the capital market law (No. 2499) and added an article on corporate governance. With this new amendment, the phenomenon of corporate governance has become a legal necessity for publicly-held corporations. Law article on corporate governance is regulated as follows: “In publicly-held corporations, the procedures and the principles regarding corporate governance principles, the content and publication of corporate governance compliance reports, the rating of compliance of corporations with corporate governance principles and the independent memberships of board of directors shall be determined by the Board. The Board shall use this authority in a manner that would not result in unfair competition among publicly-held corporations and by considering the principle of applying equal rules to equivalent corporations.” All publicly-held corporations, listed by BIST with the last amendment in December 2011, except the traded corporations, are in the watch list companies market and the developing corporations market. However, after taking the feedback of markets and other related stakeholders, CMB added three new principles and made amendments to the existing four in February 2012. A measurement has been developed by classifying corporations into three groups in terms of their market values. Based on the market value of a company, some principles may be obligatory or discretionary. As mentioned above, an update made in capital market law in December 2012 and corporate governance has been arranged as a separate article. Publicly- held corporations have to prepare and publicize a report about corporate governance compliance. The compliance report should follow the approach of “apply or explain” in terms of each principle and main part. Corporate governance compliance report is prepared on the basis of CMB communiqué. A decision of CMB in 2004 arranged that the compliance report may be a part of annual activity report and should clarify the implementation degree of each principle. The Communiqué of CMB organizes corporate governance principles into four main sections: (i) shareholders (facilitate using of shareholders’ rights, information and inspection rights, right to participate in the general meeting, voting rights, minority rights, dividend rights, transfer of shares); (ii) public disclosure and transparency (public disclosure principles and tools, website, annual activity report); (iii) stakeholders (the company’s policy towards stakeholders, promoting the participation of stakeholders in the management of the company, the company’s human resources policy; and (iv) the board of directors (management function of the board, the board’s operating principles, the structure of the board, the structure of the board meetings, committees established within the board). BIST has established corporate governance rating and a corporate governance index. The corporations which prefer to be included in this index would save an annual listing fee of up to 50% for the first two years, 25% for the next two years, and 10% for the following years. The Banking Law Corporate governance implementation in the banking sector depends on the decisions of Basel Committee on Banking Supervision. After the Asian and the Russian crises in 1997-98, the 62 The IUP Journal of Corporate Governance, Vol. XVI, No. 2, 2017 Committee prepared various documents on interest risk management, internal control systems, transparency and credit risk management. The Banking Law arranges corporate governance in a separate section under four headings (BDDK, 2006). These headings are management (corporate governance principles, the board of directors, audit committee, managers), internal systems (internal control, risk management, internal audit), the authorized institutions (independent audit firms, valuation and rating agencies, supporting services organizations) and financial reporting. According to the Banking Law (No. 5411), BRSA has to consult CMB and associations of institutions which are under its regulatory and supervisory responsibility about corporate governance implementation (Baskıcı, 2012). Based on the banking law, BRSA declared and put into force a communiqué titled “Communiqué on corporate governance principles for banks” in November 2006. In that communiqué, corporate governance is described as follows: “Corporate governance means the bank’s administration by its top management in compliance with the goals set, the Law, the regulations published pursuant to the said Law as well as other related legislation, the bank’s articles of association, the in-bank regulations and the ethical banking rules in a manner to protect interests and rights of all stakeholders and shareholders as well as the owners of the accounts held.” This regulation is binding on all banks. Corporate governance principles for banks in the banking law are developed exclusively for banks and general principles of corporate governance declared by CMB are also binding on the banks. Therefore, corporate governance principles for banks can be an example for sector- specific principles, and this set of principles is neither general nor binding on other corporations.1 The Turkish Commercial Code (TCC) The concept of corporate governance was adopted for the first time in the renovated TCC (No. 6102) in 2011 (TTK, 2011). The law consists of corporate governance regulations which are binding not only on publicly-held corporations but also on some kinds of non-public corporations. By these regulations, it is aimed to concretize corporate governance principles 1 BRSA has determined 7 principles about corporate governance. Under each principle there are explanatory rules that banks should obey (Regulation on the Banks’ Corporate Governance Principles, BRSA, 2006): Principle 1: Corporate values and strategic goals shall be established within the Bank. Principle 2: Authorities and responsibilities within the bank shall be clearly specified and implemented. Principle 3: Members of board of directors shall have the qualifications required to fulfil their tasks effectively, be conscious of their roles they have undertaken within the corporate management and be capable of making independent assessments on the bank’s activities. Principle 4: The higher management shall be equipped with qualifications to fulfil its duties effectively and be conscious of its role undertaken in the corporate governance. Principle 5: The bank shall make the best use of the works carried out by its auditors as well as the independent auditors effectively. Principle 6: The compliance of the wages policy with the bank’s ethical values, strategic goals and internal balances shall be provided. Principle 7: Transparency shall be ensured in the corporate governance. Corporate Governance Practices of Turkey: A Critical Review 63

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