SOCIAL RESPONSIBILITY INVESTING: THE SOUTH AFRICA DILEMMA Fred Garcia Professor Cummins May 2, 1986 Independent Research ()fl?~1 1 Introduction The duties of a trustee have traditionally been dictated by purely economic considerations. The trustee, whether he is the decisionrnaker for a private trust, public or private pension fund, or a University endowment fund, will always be required to follow some variation of the "prudent man" rule. Recently, there has been a growing concern about the social consequences of investment decisions by trustees of trust funds. One of the most contro- versial issues today concerning social investing is the investment in companies which do business in South Africa. Invest.~ents which support South Africa's "apartheid" policy have been protested by universities, states, and investors as repugnant to social and moral considerations. The central question to be discussed in this paper is whether -·--- trustees in making investment decisions based solely on ------- moral and political beliefs violate any fiduciary responsi- ____ The bilities to their beneficiaries . ................. first part of this -·------ paper will discuss the political, social, and economic environment in South Africa. The second part will outline America's economic presence in South Africa of disinvestment from that country. an~~~effect ,_ '-- ... Finally, part three of this paper will analyze the legal issues of social investing in South Africa. ') 2 1. Political, Social, and Economic Environment of South Africa A. Political Setting Apartheid, which literally translated means "separate- ness," is a system that enables a small white minority to maintain political, social, and economic control of the black majority in South Africa and, consequently, to maintain its own·wealth, power, and prestige. 1 The South African government is sometimes characterized as oligarchic or authoritarian, but according to Freedom House (a New York-based hu:r.an rights organization), it is "a parliamentary democracy in which over 80 percent of the people have been excluded from participation in the national political process because of race." 2 From the ascendancy of the pro- apartheid National Party in 1948 until 1983, only whites could vote and only whites could run for parliament. B. 3 The People of South Africa The Republic of South Africa is about two and a half times the size of Texas, and its 25 million people come from many racial and ethnic groups. million. 4 Blacks number about 17 There are 4.5 million whites {l,.)~.c ~b are descendants of original Dutch and French Huguenot settlers. "Coloreds" number 2.6 million and are persons of mixed-race ancestry. The 806,000 Asians are almost all descendants of Indian 3 workers who were brought into South Africa in the late nineteenth century to work on sugar plantations.s C. Economic Climate The inflow of foreign capital into South Africa has been important in every stage of the country's economic growth. This is especially true with the opening of new and vital sectors of the economy, which could never have been launched without the capital and expertise of overseas investors. 6 Foreign trade and investment constitute a major ~ l·111"1 portion ( (Y}tl" of South Africa's economy, importing and exporting account~ for more than half of its gross domestic product. As of 1979, foreign investment in the economy was $26.3 billion, or 20 percent of the value of its industrial capacity. 7 Of this amount, 80 percent was held by five countries--Britain, West Germany, France, Switzerland, and the United States. 2. A. 8 American Presence Direct Investment United States' fixed investments in South Africa were $2.6 billion in 1982. 9 Approximately 6,000 U.S. companies do business in South Africa. The U.S. Federal Reserve has reported that as of December 31, 1982, U.S. financial institutions had outstanding loans to South African ,..•~J t•) f""l'') ,4! 4 borrowers totaling over $3.6 billion. 10 U.S. investors were estimated in 1982 to hold $8 billion worth of shares in South African mines, making the total u.s. financial involvement in South Africa over $14 billion. 11 Because the South African government is involved in all elements of society, any capital infusions that bolster the South African economy necessarily serve to strengthen the forces that maintain apartheid. 12 Thus, through investment and business ties with South Africa, U.S. corporations support apartheid. Many corporations play a direct role in support of the apartheid system by providing goods, knowhow, or high-level technology in strategic sectors of the economy. 13 American firms are concentrated in oil, motor vehicle, and computer technology. In the late 1970s, U.S. firms represented 43 percent of the petroleum market, 23 percent of the auto sales, and 70 percent of the computer business in South Africa. B. 14 The Clark Report and The Sullivan Principles The Clark Report, a Congressional study of U.S. +~r corporate interest$in South Africa, states~as of 1978 u.s. corporations have made no impact in eliminating apartheid. The report concluded that: 00?~7 5 Collec~ively, U.S. corporations operating in S~uth Afr~ca.have made no significant impact on e~ther relax~ng apartheid or in establishing company policies which would offer a limited but nevertheless important model of multinational responsibility. Rather, the net effect of American investment has been to strengthen the economic and military self-sufficiency of South African apartheid regime, undermining the fundamental goals and objectives of u.s. foreign policy.IS John H. Chettle, director of the North & South American South African Foundation, has challenged the report's conclusion on several points. 16 The major point being that U.S. companies "have indeed contributed significantly toward relaxation of apartheid in South Africa, by instituting changes in their operations which run counter to the rigid concepts of apartheid, and by stimulating a dynamic growth in the South African economy which is incompatible with aparth e~'d . 17 In the mid-1970s, Reverend Leon Sullivan, a member of the Board of Directors for General Motors, formulated a Statement of Principles for U.S. corporate behavior in South Africa. The code became known as the Sullivan Principles, and it required its signatories to follow six general policies. They are: Principle 1 - Nonsegregation of the Races in All Eating, Comfort, Locker Rooms, and Work Facilities; Principle 2 - Equal and Fair Employment Practices for All Employees; 6 Principle 3 - Equal Pay for All Employees Doing Equal or Comparable Work for the Same Period of Time; Pri~c~ple 4 - Initiation and Development of Tra1n1ng Programs that Will Prepare Blacks 1 Coloreds, and Asians in Substantial Number for Supervisory, Administrative, Clerical and Technical Jobs; ' Principle 5 - Increasing the Number of Blacks, Coloreds, and Asians in Management and Supervisory Positions; Principle 6 - Improving the Quality of Employee's Lives Outside the Work Environment in Such Areas as Housing, Transportation, Schooling, Recreation, and Health Facilities.l8 The Principles are based on the strategy of mobilizing the influence of U.S. multinational companies to contribute to peaceful change in South Africa. 19 Sulllvan asserts that "[+] his change must include the elimination of apartheid and the equal participation of blacks and non-whites in the social, economic, and political processes of that nation, without compromise of the freedom and rights of any persons." 20 The Principles have become the standard by.which social 1$ responsJLbilitX for businesses in South Africa are measured. _ \A.t\V!- There has... been measurable improvements in the treatment of . . . 1 es. 21 blacks since the implementat1on o f t h e Pr1nc1p It is Sullivan's hope that the Principles will help improve the quality of life, bring justice to unliberated people, and . build a peaceful free South Af r1ca f or everyone. 22 7 C. The Investment - Disinvestment Debate Many people believe that social and political change is necessary to achieve peace, order, and justice in South Africa. One author has stated that two basic ways in which political change could come about are by evolution or by revolution. 23 "Evolution," which is the preferred course most Western countries, is the "constructive engagement" with South Africa. 24 ------~----~------ Advocates who support this position would invest in and help develop South Africa socially and economically to end apartheid. Revolution is the complete overthrow of the South African regime and is the course of ... action preferred by some political and religious organizations in the West and South Africa. 25 Proponents of this view demand radical political change, beginning with immediate control of the government in Pretoria by the black majority. 26 They demand the isolation of South Africa from the rest of the world and call for economic sanctions . . 27 aga1.nst 1.t. 1. Current Divestments As of 1980, there were some 2,000 local, state, regional, and national organizations across the United 28 States committed to some type of divestment movement. In 1978 and 1979 alone, they were able to compel United States . 1'1.0n 1.n . s t oc k · 29 universities to divest $50 m1.l These 8 organizations have also succeeded in getting nearly all major U.S. banks to stop lending money to the south African government. 30 In a recent count, six states, 24 cities, and 40 universities, at considerable cost to the beneficiaries, have liquidated pension-fund holdings of over $1.5 billion in the securities of companies that do business in South Africa. 31 According to a recent count by Pensions & Investments Age, 51 institutional investors have divested $735 million from their portfolios in companies doing business in South Africa. 2. 32 Effect of Total U.S. Disinvestment A U.S. State Department assessment of the South African economy's dependence on multinational corporations for high technology concluded that lack of access to foreign technol. ogy could cripple South Af r1ca. 33 As previously noted, U.S. firms supply 70 percent of South Africa's computer needs and play an important role in suppling South Africa in this field. However, surveys indicate that most U.S. companies in South Africa generate with a minimum of U.S. personnel . • 34 and in many cases are run by South Afr1cans. Moreover, many European companies are not notably inferior in technological competence and present strong competition. ~ / 9 Davis, Cason, and Hovey contend that the united states is South Africa's largest trading partner, its second largest investor, and a supplier of one-third of its international credit demands. It would be economically wounded by any significant cutoff of u.s. trade or investment flows. 35 Professor Lansing has stated that because Great Britain and West Germany are South Africa's most important trading partners and because of the inability of apartheid opponents to muster coordinated international trade and investment sanctions, any embargo or divestment of business by the United States would have little effect on the South African economy. 36 Sincere has shared the view of Lansing and has stated that "it is unlikely that U.S. disinvestment would have the profound effect its advocates have claimed, since U.S. direct investment in South Africa represents about 20 percent of total foreign investment and only 4 percent of the total capital invested in the South African economy." John Chettle, in his article, has stated that the introduction of sanctions against South Africa would have some impact. It is clear that total u.s. divestment would be a political blow to South Africa; that it would reduce somewhat the rate of growth of the South African economy; that it would reduce South . African access to u.s. technology and manager1al expertise· that it would probably cause hesitation on the ca~ital market and thus cause South Africa 37 10 ~ifficulties in raising capital abroad; and that ~t would cause black unemployment, although, given the s~ortag7 of skills, probably not much white. Yet, ~ts ch~ef effect would be punitive rather than decisive.38 ' tl.t1 rJl t.f ("' p/ ~f·.Jcl'-~ It appears that the effect of U.s. disinvestment on South Africa will depend on who you ask. " Undoubtedly, some change in South Africa will occur as the result of b~ .y/.~ ~jf~ u.s. Att~ ~/ IJ divestment, but the extent and consequence of it are i\ i> d~ On September 9, 1985, President Reagan issued an Executive Order to prohibit certain transactions with South This was issued to deal with the threat to U.S. foreign policy and economy from the government of South Africa. • )· 1~.,J" )- Presidential Sanctions Against South Africa Africa. 39 ~ fl~ uncertain. D. c,f J' II The President claimed that "the policy and practice of apartheid are repugnant to the moral and political values of democratic and free societies and run counter to United States policies to promote democratic governments throughout the world and respect f or h uman . ht s ...• .. 40 r~g The major sanctions against South Africa include (1) the making or approval of bank loans to the South African Government; (2) the export of computers and related goods and technology to certain government agencies; (3) all nuclear exports to South Africa; and (4) the import into the United States of {)f)?!\1 ,..JJ 11 arms, ammunition, or military vehicles produced in south Africa. 41 On October 1, 1985, President Reagan issued another Executive Order which prohibited the importation into the United States of South African Krugerrands. 42 In a letter to Congress, the President noted that these measures are directed at apartheid and the South African Government, and not against the people of that country or its economy. 43 3. Legal Issues . . '' 4 4 may take on d 1. f f erent . 1 1nvest1ng Th e t erm '' soc1a 7 forms. Here, we will treat "socially dictated investment policies" as those "investment practices and policies which either (1) permit the sacrifice of safety, return, diversification, or marketability; or (2) are undertaken to serve some objective that cannot be related to the interests of ... beneficiaries in their capacity as such." A. 45 Prudent Investor Rule at Common Law Another problem in dealing with U.S. companies disin- vesting from south Africa is the legal duties of trustees in managing the portfolios consisting of these divesting companies' stock. The traditional standard of care required of trustees is set out in the landmark case of Harvard 12 College v. Amory 46 in 1830. That court stated the standard as follows: All that can be required of a trustee to invest is, t~at he condu~ts himself faithfully and ' exerc~ses sound d~scretion. He is to observe how men of prudence, discretion, and intelligence manage their own affairs, not in regard to s~eculation, but in regard to permanent disposi~~on of his funds, considering the probable ~ncome, as well as the safety of the capital invested.47 The Restatement (Second) of Trusts defines a trustee's investment obligations at common law as follows: [i]n making investments of trust funds the trustee is under a duty to the beneficiary ..• to make such investments and only such investments as a prudent man would make of his own property having in view the preservation of the estate and the amount and regularity of the income to be derived .... 48 The United States announce d . th~s c ~ourt of ~~ Appeals~Second Circuit 49 . . . Estate o f Car 1 ton v. c ornrn~ss~oner. rule ~n That court stated that "a trustee is obliged not only to attempt to employ profitably the corpus but must also take care t o preserve ~•t . 50 This rule has been interpreted by Ravikoff and Curzan to require a fiduciary to promote two objectives: attainment of an adequate return and preserva- tion of trust corpus. 51 Their interpretation has been attacked by Professor Langbein and Judge Posner as a misapplication of the commonlaw prudent man rule. The term "adequate" return is their 13 own invention and implies a standard less than "optimal" or "max;mum" and •;t ~s · wh o 11 y w1t · h out authority. 52 • B. Duty of Loyalty Another duty of a fiduciary in managing trust funds for beneficiaries is the duty of loyalty. Restatement (Second) of Trusts states "the trustee is under a duty to the beneficiary to administer the trust solely in the interest of the beneficiary." 53 The Official Conunent to the Restate- ment warns against investing for the benefit of any third party. It states "the trustee is under a duty to the beneficiary in administering the trust not to be guided by the interest of any third person." In Blakenship v. Boyle 55 54 , a 1971 case, the duty of loyalty was applied to social investing of pension funds. The court endorsed the view that trustees may not pursue nontraditional objectives to the detriment of traditional investment goals. The trustees of a union pension fund who were officials of the United Mineworkers Union deposited the fund's assets into an interest-free account at a bank owned by the union. The bank used these funds to buy controlling shares in electric utility companies. The bank then required the utility companies to buy union-mined coal. The court held that this practice violated the rule of prudent investing. The court stated that: 14 [~]he ~ntimate relationship between the union's f1~a~c1a~ and organizing activities and the ut1l1ty 1nvestment activities of the trustees demonstrates that the Fund was acting primarily for the collateral benefit of the union and the regulatory.o~e:ators in making most of its utility stock acqu1s1t1ons. These activities present a clear case of self dealing ... and constituted a breach of trust.56 In Withers v. Teachers' Retirement system 57 , the trustees of the Teachers' Retirement Fund purchased unmarketable and highly speculative bonds of the City of New York as part of a plan that prevented the city from going bankrupt. The court found that the trustees' major concern was to prevent the depletion of the assets of the System by protecting what was, according to the information available to them, the major and indispensable source of the System's funding--the City of New York. 58 The court distinguished Blankenship by stating that the trustees pursued policies to enhance the position of the union and the welfare of its members. On the other hand, the trustees of the Teachers' Fund gave consideration to the interest of the City of New York solely in its capacity as the major and indispensable contributor of monies to the pension system. 59 The court concluded that "neither the protection of the jobs of the City's teachers nor the general public welfare were factors which motivated the trustees in their investment decisions."60 The court stated that the trustees "aid to the City was simply a means--the only means in their 15 assessment--to the legitimate end of preventing the exhaustion of the assets of the TRS in the interest of all of the beneficiaries." 61 Because the trust fund would be seriously harmed if the city were to go bankrupt, the court held that the investment was proper. C. Economics of Social Investing Proponents of modern portfolio theory 62 contend that social investing will bring about higher risk and underdiversification, lower return, and increased management and brokerage costs. They state that a portfolio constructed in accordance with social principles will be less diversified than a portfolio constructed in accordance with the optimal strategy of portfolio design. 63 A study by Wilshire Associates identified 229 South Africa-connected companies with market capitalization adding up to more than a third of the entire equity markets' value. 64 Wilshire also found that avoiding all stocks with South Africa ties would shrink drastically the universe of stocks from which an investor could choose. 65 Social investing will~fect the return of an invest- ment portfolio because it excludes many successful companies and includes many less successful companies. 66 Also, the administrative costs of a social-investment portfolio will be higher, and the net expected return therefore lower than ()fl~ 16 the administrative costs of a portfolio constructed in accordance with the principles of modern finance theory.6 7 D. Legality of Social Investing One commentator has stated that it is possible for "university trustees to divest all holdings which the trustees consider inconsistent with the university's social responsibility while still remaining within the traditional fiduciary standards of care of economic benefit or prudence. 68 Ravikoff and Curzan contend that the trustees' principal obligation under the prudent man standard will be to obtain an adequate return and protest the trust corpus. 69 However, they assert that there is ample reason to believe that courts will ultimately give trustees considerable freedom to foster nontraditional goals at the expense of return and corpus safety. 70 Professor Langbein and Judge Posner conclude that "the duty of loyalty, the prudent-man rule, and cognate doctrines, which govern both pension funds and trust investment 71 . . . . generally, forbid soc1al 1nvest1ng 1n 1' t s curren t f orm. " They contend that sacrificing the beneficiary's financial well-being for any social cause violates fiduciary duties. 17 In the light of the foregoing, it appears that there is disagreement among trust experts of the duties of trustees in divesting stockholdings in companies doing business in South Africa. The moral and humanitarian decisions that a trustee will make on this issue will have a far-reaching and permanent effect on society. law, it .....-----. Under the current state of the seems that the requirement of loyalty to trust beneficiaries and the requirement of prudent investing dictates that a trustee may not consider the moral and social goals of social investing in lieu ~ fudiciary duties. ~ ~ ~ ~ /CA.-l.~:e.- cl~ ~C/~ 18 Endnotes 1. Davis, Cason & Hovey, Economic Disengagement and South Africa: The Effectiveness and Feasibility of Implementing Sanction? ang__Q_;iyes..tmen.tJ 15 Law & Pol'y in Int'l Bus. 529, 532 (1983). This separation of the races takes two forms. apartheid in simple segregation, similar to that existed in much of the United States prior to the rights movement of the 1960s. Separate develop- t ment, sometimes called "grand apartheid is a '!!Mieh-- more complex and controversial concept. Under it, the Pretoria government intends to separate black South Africans from the Republic of South Africa and grant them citizenship in independent states drawn along traditionally recognized tribal or national boundaries. R. Sincere, The Politics of Sentiment 4-5 (1984). 2. R. Sincere, The Politics of Sentiment 4 (1984). 3. Id. See also Chettle, The Law and Policy of Div~stment of South African Stock, 15 Law & -~?1_~_¥ -~~ -=:~t__' l ~U$:. 445, 448-461 (1983) (for a further background on the South African Government and its laws). 4. Id. at 3. 5. Id. 6. B. Roger~ White Wealth and Black Poverty 93 (1976). 7. R. Sincere supra note 2, at 6. 19 8. Id. 9. Chettle, The Law and Policy of Divestment of south African Stock, 15 Law & Pol'y in Int~~~ 445, 461 (1983). 10. Davis, Cason & Hovey supra note 1, at 546. 11. Id. 12. Id. 13. Id. 14. Staff of the_ ~e-~ate Co~·- -~n _Foreign Rel~tic:>ns, 95th Cong., 2d Sess., u.s. Corporate - Inte~~~ South - ---------· - - - - - Africa 9 (Comm. Print 1978); See B. Rogers supra note 6, at 125-47 (an analysis of u.s. corporate involvement in the major industries of auto, heavy engineering, electronics and computers, petroleum, mining, chemicals, rubbers, pharmaceuticals, photography and banking). 15. Id. at 13. 16. Chettle supra note 9, at 464. 17. Id. 18. R. Sincere supra note 2, at 109 (appendix B). 19. Sullivan, Agents for Change: The Mobilization of Mul tinationa:LS9Jnp_a_p;i.~.s_.J:.I].._J~Q_\lth_hfric_C!., 15 Law & ~~1 '¥: in Int'l Bus. 427 (1983). 2 0. Id. 21. Id. at 432-33. 20 22. Id. at 444. 23. R. Sincere supra note 2, at 11. 24. Id. 25. Id. 26. Id. 27. Those who favor revolutionary change are likely to favor disinvestment as a tactic. utJ~ ~&ci~"~ ~~ uf1.p)-' disinvestment believe that (1) South Africa is the worst violation of human rights in today's world; u tv.fi ,, • ,~· l J0../I.VO ( 2) the volume of U.S. investment in South Africa is considerable; heid regime; (3) U.S. investment supports the apart(4) external pressure can induce political change; and therefore ( 5) withdrawing ~·~~will ~J~ Most supporters of u.s. investment bring about positive change in South Africa. Conversely, most opponents of disinvestment believe : (1) South Africa, with a limited, democratic ,/ 'rJ-- government capable of peaceful change, has a potential 79ff~:~ for great justice; ttJIJ tl +~~· (2) the volume of U.S. investment there is relatively insignificant; (3) U.S. investment does, however, support constructive change; (4) external pressure seldom brings about desired domestic policy changes; and therefore (5) withdrawing U.S. investment will have no positive effect but will be likely to affect the South African economy adversely 21 and set back prospects for constructive change. R. - Sincere supra note 2, at 12. 28. Lansing, The Divestment of United states comp~nie~~~ 60 Neb. L. Rev. 304, 321 (1981). 2 9. Id. 30. Id. 31. Bleiberg, Anti-Apartheid or Anti-Ca.pi,talist?, Barron's, July 1, 1985, at 9. 32. Tell, The Apartheid Facto~, Barron's, Aug. 19, 1985, at 18. 33. Davis, Cason & Hovey supra note 1, at 556. 34. Chettle supra note 9, at 463. 35. Davis, Cason & Hovey supra note 1, at 555. 36. Lansing supra note 28, at 323-24. 37. R. Sincere supra note 2, at 97. 38. Chettle, supra note 9, at 484-85. 39. Exec. Order No. 12,532, 50 Fed. Reg. 36,861 (1985) 4 0. Id. 41. Id. at 36,861-62. 42. Exec. Order No. 12,535, 50 Fed. Reg. 40,325 (1985). ~!.~ J1 7 •,'~ I ll ~ 4 3. H. Doc. No. 114, 99th Cong., 1st Sess. 4 4. A policy of social investing may be designed to benefit ru-. ~ (1985). ({,/, C#/J:j_ (Jvo; rl.J. .. the participants incidentally by improving the community in which they live, or it may be designed to 22 ameliorate some regional, national, or even international problem. A social investment program may involve a selfless sacrifice of the participants' interests in order to aid some other less fortunate segment of society, or it may be part of a calculated strategy to enhance the political and economic strength of the participants. Hutchinson & Cole, Legal Social and Political Goals, 128 U. Pa. L. Rev. 1340, 1344 (1980). 45. Id. at 1346. 46 . 2 6 Mass . 47. Chettle supra note 9, at 504 (citing Harvard College v. ( 9 Pick . ) 4 4 6 ( 18 3 0 ) . Amory, 26 Mass. 48. (9 Pick.) 446, 461 (1830)). 1 Restatement (Se.concll_p~r~ §227 (1959) - ---------. --- [herein- ' after cited as Restatement]. 49. 298 F.2d 415 (2d Cir. 1962). 50. Id. at 418. 51. Ravikoff & Curzan, Social Responsibili!Y_in~ves~~~n~ Policy and_~~~--~r;-~~e!]!-~~~!l.Y.'!:.l~, 68 Calif. L. Rev. 518 (1980). 52. Langbein & Posner, ~o~~~! ___I?_V~:?ti?~---~~d__ T~~- La~-~ Trusts, 79 Mich. L. Rev~ 72, 103 (1980) · 53. Restatem.en~ supra note 48, at §170(1). 54. Id. at Comment q. 23 55. 329 F. Supp. 1089 (D.D.C. 1971). 56. Id. at 1106. 57. 447 F. Supp. 1248 (S.D.N.Y. 1978), aff'9@ mem. 595 F.2d 1210 (2d Cir. 1979). 58. Id. at 1252. 59. Id. at 1256. 6 0. Id. 61. Id. 62. See Langbein & Posner supra note 52, at 77-96 (for a brief background on modern portfolio theory and the economics of social investing). 63. Id. at 85. 64. Tell supra note 32, at 20. 65. Id. 66. Langbein & Posner supra note 52, at 92. 67. Id. at 85. 68. Note, 'Qn_iv~:r;_si~J!1V~~t.ments _:with a South __Africa.n. Connection: Possible?, 11 ~ §. -~!='-~4-~_!lt.... Divestiture -. N.Y.U.J. Int'l L. 69. Ravikoff 70. Id. 71. Langbein & - Pol. - . -- ....... 543, 579 (1979). - & Cur zan supra note 51, at 546. & Posner suEr a note 52, at 76.