Positive Accounting Theory Political Costs and Soc

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Positive accounting theory, political costs And social disclosure analyses: a

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Article in Critical Perspectives on Accounting · June 2002

DOI: 10.1006/cpac.2001.0509
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Critical Perspectives on Accounting (2002) 13, 369–395
doi:10.1006/cpac.2001.0509
Available online at http://www.idealibrary.com on
POSITIVE ACCOUNTING THEORY,

POLITICAL COSTS AND SOCIAL DISCLOSURE
ANALYSES: A CRITICAL LOOK
M ARKUS J. M ILNE†
Accountancy and Business Law, University of Otago, Dunedin,
New Zealand
This paper critically reviews the literature seeking to establish evidence for a
positive accounting theory of corporate social disclosures. Following Reiter (1998),
the paper provides detailed evidence and an illustration of how positive accounting
theorists’ attempts to colonize social and environmental accounting research have
proved a failure. The paper carefully traces through the original work of Watts
and Zimmerman (1978) showing their concern with the lobbying behaviour of
large US oil companies during the 1970s. Such companies were argued to be
abusing monopolists and likely targets of self-interested politicians pursuing wealth
transfers in the form of taxes, regulations and other “political costs”. Watts and
Zimmerman’s reference to “social responsibility” is shown to be a passing remark,
and most likely refers to “advocacy advertising”, a widespread practice amongst
large US oil companies at that time. Subsequent literature that relies on Watts
and Zimmerman to present a case for social disclosures is shown to extend their
original arguments. In the process, concern over the “high profits” of companies is
shown to diminish, and the notion of political costs is so broadened that it blurs with
other social theories of disclosure. Consequently, the positive-accounting-based
social disclosures literature fails to provide distinct arguments for self-interested
managers’ wealth maximizing. This paper also shows that the empirical evidence
gathered to date in support of a positive accounting theory of social disclosures
largely fails in its endeavour.
c 2002 Elsevier Science Ltd. All rights reserved.
Introduction
Along with numerous other rationales (e.g. decision usefulness, legitimacy theory,
stakeholder theory, critical or political economy theory—see Gray et al., 1995, for
a review), positive accounting theory or the political cost hypothesis has been
suggested to explain why firms make voluntary social disclosures. Based on the
original work of Watts and Zimmerman (1978, 1986), several empirical studies (e.g.
Belkaoui & Karpik, 1989; Ness & Mirza, 1991; Panchapakesan & McKinnon, 1992;
†
E-mail: [email protected]
Received 5 January 2001; revised 19 June 2001; accepted 5 July 2001
369
1045–2354/02/ $ - see front matter c 2002 Elsevier Science Ltd. All rights reserved.
370 M. J. Milne
Lemon & Cahan, 1997) have directly sought to establish evidence for the political
cost hypothesis as an explanation for firms’ social disclosures. Several related
empirical studies have also sought to use the political cost hypothesis to explain
other types of voluntary disclosure, including value added statements (Deegan &
Hallam, 1991), disclosures by statutory authorities (Lim & McKinnon, 1993), and
disclosures in pursuit of reporting excellence awards (Deegan & Carroll, 1993).
Watts and Zimmerman’s positive accounting theory project, however, has been
subject to a constant stream of criticism since it first appeared in the late 1970s.
Critiques have appeared which seriously question its theoretical foundations (e.g.
Tinker et al., 1982; Hunt & Hogler, 1990; Armstrong, 1991). Other critiques examine
its logic and basis in the philosophy of science (e.g. Christenson, 1983; Lowe et
al., 1983; Chua, 1986; Peasnell & Williams, 1986; Whittington, 1987; Hines, 1988;
Whitley, 1988). Yet others extend their analysis to issues of method, and the relative
lack of success the project has had (e.g. Sterling, 1990; Chambers, 1993). Yet
others focus on its ethical foundations (e.g. Williams, 1987; Arrington & Schweiker,
1992; Mouck, 1995). And yet others have focused on the behaviour of key
proponents of the theory in protecting it from criticism (e.g. Tinker & Puxty, 1995).
Despite such critiques, not only have positive accounting researchers continued
unabashed to produce research on the properties of accounting earnings, but they
have also sought to colonize other research areas including historical markets,
international accounting and environmental accounting (Reiter, 1998, p. 160). Reiter
(1998), through the work of Whitley (1982, 1984) and Lee (1995), traces the
resilience of positive accounting theory to an “economic imperialism” founded in
the disciplinary structure of positive accounting and governed by an academic
elite based on a reputational hierarchy. Interesting as it would be to examine the
motives of the authors reviewed in this paper for extending positive accounting
to social disclosures, and interesting as it would be to examine the validity of
Reiter’s analysis of such behaviour, these issues are beyond the scope of this
paper. Nor does this paper seek to provide another normative or ethical critique
of positive accounting theory. Instead, and consistent with Reiter’s (1998) call
for on-going criticism that seeks to de-mystify positive accounting research, this
critique illustrates the failure of positive accounting theory to attach its explanatory
label to social and environmental disclosures behaviour. The critique shows how
the positive-accounting-based social disclosures literature fails to provide distinct
arguments for self-interested managers’ wealth maximizing, and it also shows that
the empirical evidence gathered to date in support of a positive accounting theory
of social disclosures largely fails in its endeavour.
In the context of social and environmental disclosures research, Gray et al.
(1995, pp. 51–52) dismiss the positive accounting arguments and literature on
the grounds of the underlying assumptions of the theoretical framework. As they
suggest, positive theories are not about what (social) reporting should be, but rather
about what it is. As a basis for change and improvement, positive theories are seen
to offer little or no development of corporate (social) reporting. Gray et al. (1995,
p. 52 and fn. 11) go on to admit, however, having been persuaded by many of
the above-mentioned critiques, that they have not seriously engaged this literature
because they believe it to be “virtual rubbish” and prefer their position as “heretics”.
Positive accounting theory and social disclosure: a critical look 371
On the face of it, and as a basis for explaining why firms are making social
disclosures, positive accounting explanations seem less easily dismissed. Casual
observation, for example, reveals that positive accounting explanations rely on
empirical evidence largely identical to that used in support of other explanations
(most notably, legitimacy theory) of social disclosures; explanations which, inciden-
tally, Gray et al. (1995) seem to find more acceptable. As Gray et al. (1995, p. 49;
2001) note, a number of empirical studies have shown strong associations between
disclosure and firm size, and between disclosure and type of industry. In fact, the
size–disclosure relationship appears empirically the most robust1 . Such results
are claimed in support of legitimacy theory (e.g. Patten, 1991; Deegan & Gordon,
1996), as well as in favour of positive accounting theory. Lemon and Cahan (1997,
p. 79), in fact, could not have put the issue more clearly when they state:
Patten finds that the public pressure variables [firm size, and industry classification] are
significant while the profitability variables [ROA, ROE] were not. Patten interprets these
results as supporting legitimacy theory where a firm must satisfy an implied contract with
the society it operates in. To the contrary as firm size is commonly used to represent a
firm’s political visibility, we interpret Patten’s results as consistent with the political cost
hypothesis.
Of course, according to Watts and Zimmerman’s theory, the reason why firms
(managers) make social disclosures is because it is in their interest to do
so2 . Nonetheless, if positive accounting theory is to be rejected as a basis for
explaining why firms are making social disclosures, then it requires a more rigorous
examination of the arguments and empirical evidence than has occurred to date.
Watts and Zimmerman (1978, 1986) provide the stated theoretical basis for a
number of social disclosure studies and so their work is reviewed first in some
detail. Direct reference to social disclosure or social responsibility by Watts and
Zimmerman themselves, however, appears extremely scant. From the later section
on social disclosure, it will become clear that the use of Watts and Zimmerman’s
work relies on interpretations and extensions to the original. In the process of
reviewing this work, it will be shown that the original arguments of Watts and
Zimmerman have been, if not misused, misunderstood or taken out of context, then
only partially argued and tested.
Watts and Zimmerman (1978) and Social Responsibility
A review of Watts and Zimmerman’s original positive accounting theory papers

(1978, 1979), their subsequent book, Positive Accounting Theory (1986), and their
own review paper on positive accounting theory (1990), reveals that reference to
“social responsibility” is only made in the original 1978 paper. I shall turn to that
reference next, but first it is worth noting that no title of any paper they have
either jointly or separately published since 1978 contains any reference to social
responsibility3 . Furthermore, only one paper (Blacconiere & Patten, 1994) with any
reference to matters of social or environmental responsibility/disclosure in the title
has been published in the Journal of Accounting and Economics—a journal which
372 M. J. Milne
has been strongly associated with positive accounting theory, and which Watts and
Zimmerman founded in 1979.
That social responsibility/disclosure is an issue that appears to be of only passing
interest to Watts and Zimmerman and their positive accounting theory project is
further substantiated when one carefully examines the original reference to it, and
the context in which it was made. Watts and Zimmerman (1978) builds on Watts
(1977), and seeks to (p. 112)
. . . develop a positive theory of the determination of accounting standards. Such a theory
will help us to understand better the source of the pressures driving the accounting
standard-setting process, the effects of various accounting standards on different groups
of individuals and the allocation of resources, and why various groups are willing to expend
resources trying to affect the standard-setting process.
Watts and Zimmerman (1978, p. 113) assume that “individuals act to maximize their
own utility” and consequently “management lobbies on accounting standards based
on its own self-interest.” They go on to suggest their purpose is to “identify factors
which are likely to be important predictors of lobbying behaviour. . . ”, and a key part
of this task is to examine how accounting standards affect management’s wealth.
Management wealth, it is argued, is a function of changes in share prices
(via stocks and stock options), and changes in cash bonuses (via compensation
plans). Ordinarily, managers are predicted to have greater incentives to lobby for
accounting standards that lead to increases in reported earnings and thereby
management wealth. However, since changes in cash flows and stock prices can
also be affected (reduced) by taxes, regulatory procedures (for regulated firms),
information costs and political costs, managers also have to consider the effects
reported earnings might have on the likelihood that such costs could be imposed
on the firm. In some cases, the extra costs of accounting standards that lead to
increases in reported earnings may outweigh the benefits (to management) of the
reported earnings, and so management is predicted to lobby against such changes.
More specifically, Watts and Zimmerman (1978, p. 118) argue that
. . . managers have greater incentives to choose accounting standards which report lower
earnings (thereby increasing cash flows, firm value, and their welfare) due to tax, political,
and regulatory considerations than to choose accounting standards which report higher
earnings and, thereby, increase their incentive compensation. However, this prediction is
conditional upon the firm being regulated or subject to political pressure. In small, (i.e. low
political costs) unregulated firms, we would expect that managers do have incentives to
select accounting standards which report higher earnings, if the expected gain in incentive
compensation is greater than the forgone expected tax consequences.
Subsequent literature (e.g. Zmijewski & Hagerman, 1981; Healy, 1985; Press &
Weintrop, 1990) has sought to refine these arguments and extend them beyond
lobbying behaviour on accounting standards to accounting method choice, where
managers have the discretion to choose among a set of accounting procedures.
Reviewing this literature, Watts and Zimmerman (1986, 1990) highlight three key
hypotheses as follows:
(1) The bonus plan hypothesis: Ceteris paribus, managers of firms with bonus
plans are more likely to choose accounting procedures that shift reported
earnings from future periods to the current period.
(2) The debt/equity hypothesis: Ceteris paribus, the larger a firm’s debt/equity
ratio, the more likely the firm’s manager is to select accounting procedures
that shift reported earnings from future periods to the current period.
(3) The size hypothesis: Ceteris paribus, the larger the firm, the more likely the
manager is to choose accounting procedures that defer reported earnings
from current to future periods.
So where within this argument does “social responsibility” fit? To understand this,
we need to further examine Watts and Zimmerman’s notion of political pressure,
political costs and their “size hypothesis”.
Political Costs and the Size Hypothesis
According to Watts and Zimmerman (1978, p. 115), politicians have the power
to effect upon corporations wealth re-distributions by way of corporate taxes,
regulations, subsidies etc. Moreover, certain groups of voters have incentives to
lobby for the “nationalization, expropriation, break-up or regulation of an industry or
corporation”, which in turn are seen to provide incentives to politicians to propose
such actions. This idea that politicians seek to intrude into the affairs of corporations
and redistribute wealth away from them comes from the earlier work of Stigler
(1971); Peltzman (1976) and Jensen and Meckling (1978).
To counter such pressure from politicians, Watts and Zimmerman (1978, p. 115)
suggest:
. . . corporations employ a number of devices, such as social responsibility campaigns
in the media, government lobbying and selection of accounting procedures to minimize
reported earnings. By avoiding the attention that “high” profits draw because of the public’s
association of high reported profits and monopoly rents, management can reduce the
likelihood of adverse political actions and, thereby, reduce its expected costs (including
the legal costs the firm would incur opposing the political actions). Included in political
costs are the costs labor unions impose through increased demands generated by large
reported profits.
The magnitude of the political costs is highly dependent on firm size.
The source of concern Watts and Zimmerman have in mind for the public and
so politicians, then, is “large profits” and their association with monopoly power.
Environmental degradation by companies, depletion of resources, exploitation of
workers, the production of unsafe products, and so on, as sources of public and
political concern are not mentioned. It is the potential abuse of monopoly power
that lies at the heart of Watts and Zimmerman’s notion of political costs. Their
reference (1978, p. 115, fn. 12) to Menke’s US Congressional statements that
“Huge accounting profits, but not high profit rates, are an inevitable corollary of large
absolute firm size. This makes these companies obvious targets for public criticism.”
further substantiates this point. Similarly, their subsequent references (see (Watts
& Zimmerman, 1986, p. 235), fn. 3 to Alchian & Kessel, 1962, and Jensen &
Meckling, 1978) to the “size hypothesis” emphasize the concern of the press and
politicians with size of profits and potential monopoly abuses. As Watts (1977, p. 68)
states in interpreting his work with Zimmerman, “They (Watts & Zimmerman, 1978)
374 M. J. Milne
argue that the corporate manager has an incentive to select accounting procedures
and to lobby with politicians and bureaucrats for accounting procedures which
reduce the net income reported in financial statements. Political entrepreneurs
use “high” profits to create ‘crises’.” Wong’s (1988, pp. 27–29) interpretation and
examples of political costs, too, are consistent with an emphasis on large profits.
Watts and Zimmerman also reinforce this idea in their 1990 review by stating
“. . . political costs are a function of reported profits. Thus, incentives are created
to manage reported accounting numbers” (p. 133). Worth noting, then, is that Watts
and Zimmerman make constant reference to reported accounting numbers, but
make no reference to other annual report disclosures and certainly no reference
to narrative social disclosures.
Precisely how “social responsibility campaigns in the media” were envisioned to fit
into Watts and Zimmerman’s notion of political costs is not made clear. Unless they
involve significant expenditures (both on actual social responsibility activities, and
in the form of “advertising costs”), by themselves they would be unlikely to provide
much reduction in “large profits” and so reduce the apparent source of concern
to the public and politicians. Alternatively, or perhaps as well, these “campaigns
in the media” are believed to be devices to distract attention away from a firm’s
large profits, and so soften the image of abusive monopolies; in other words, to
legitimize the firm’s large profit making. Yet, again, these campaigns in the media
may have little to do with profit making and monopoly abuses, but with other aspects
of business behaviour found unacceptable to members of society.
Oil Companies and Advocacy Advertising
Some insights into Watts and Zimmerman’s reference to social responsibility

campaigns in the media are possible from their discussion of political costs. Nearly
all of their examples come from the oil industry (see Watts, 1977, p. 68; Watts &
Zimmerman, 1978, p. 115, p. 121; Holthausen & Leftwich, 1983, p. 88; Zimmerman,
1983; Watts & Zimmerman, 1986, pp. 236–237). Oil companies during the 1970s
dominated the largest of the US companies, and they were also subject to much
public outrage and political scrutiny during and immediately following the “oil crisis”
of 19734 . Also during this same period, a number of companies, including oil and
energy companies, and especially Mobil Oil, undertook what Sethi (1976, 1977a,b)
has referred to as “advocacy advertising”.
Advocacy advertising often undertakes an editorial style approach and represents
a deliberate attempt on the part of the corporation to present a point of view
about a major public issue. The strength of such advertising, according to Sethi,
is that the content of the message is controlled and defined in a manner favourable
to the sponsor and the environment of the message is carefully controlled, thus
making otherwise one-sided viewpoints appear more objective. Furthermore, Sethi
(1977b) suggests that the sociocultural environment of the advertisements was
one of traditional American values, such that if one sought to raise objections
to the advertisements’ content one must invariably also be seen to be criticizing
such traditional values. Several examples of such advertising are provided in the
appendix5 .
In the context of Watts and Zimmerman, Sethi’s work on advocacy advertising is

particularly illuminating for several reasons. First, advocacy advertising obviously
comes much closer to lobbying behaviour than annual report social disclosures.
Sethi (1976), for example, reports that many critics of advocacy advertising tried to
have such advertising classified as “grass-roots” lobbying—a practice specifically
exempt for corporate tax expense deductions. Second, the role of politicians and
the media, and particularly the news media are clearly implicated as a rationale
for advocacy advertising. Raleigh Warner, Jr., Chairman of Mobil Oil, for example,
suggested the purpose of Mobil’s advocacy advertising campaign was to defend his
company against slander and unfair treatment in the media (Sethi, 1977a, p. 52).
Similarly, quotes found in Sethi (1977a) further substantiate this rationale:
Corporations are constantly under attack from every quarter. Charges by consumer
groups, Congressional Committee and Subcommittee Chairmen, individual Congressmen
and the various organs of federal, state and local government get front-page headlines. . . .
Silence by a company in the face of attacks upon its policies and practices is
interpreted as an admission of guilt. Corporate advertising provides one avenue of
self-defense (Frederick West, Jr., president of Bethlehem Steel Corporation in letter to
Senator Hart 1974, quoted in Sethi, 1977a, p. 53).
It is understandable that the affected businesses may not like what they read about
themselves in the newspapers. They use the argument of media bias in objecting to these
stories. This alleged bias then becomes an excuse for publishing the kind of advocacy
advertisements that we’re beginning to see. The problem has developed more markedly
since the oil crisis, when oil and energy companies have become more aggressive in
buying advertising space to respond to public criticism of their businesses (John B. Oakes,
New York Times, quoted in Sethi, 1977a, p. 54).
Third, the evidence provided by Sethi (1976) suggests the direct impact of
such advertising campaigns on profits is likely to have been minimal. Citing
evidence provided at the US Senate Hearings into Energy and Environmental
Objectives in 1974, Sethi (1976, p. 10) suggests that “actual business spending on
institutional goodwill advertising is small when measured in terms of total advertising
expenditures, sales revenues, or net profits.” He goes on to point out that the costs
of institutional advertising by the largest ten corporate advertisers in 1974 amounted
to 0.046% of their sales revenues, and 0.67% of their net income. The potential of
such advertising to preserve existing and future profitability, however, should not be
underestimated. According to Harold Johnson, vice president of American Electric
Power (quoted in Sethi, 1976, p. 10), his company’s advertisement campaign was
a major factor in “persuading the White House, the EPA, and important senators
and congressmen to postpone the enforcement of the Clean Air Act standards from
1975 to 1985.” Furthermore, according to Sethi (1976, p. 10), Johnson believes how
government regulates business can and does affect corporate profits, and ultimately
its survival, in a major way. Such advertisement campaigns are seen as of major
importance to a company’s performance, and to the public it serves.
Fourth, and as already noted with respect to Johnson’s American Electric Power,
many of these advertisements were being used to counter sources of public and
political concern other than “large profit” making. In American Power’s case, the
advertisements were clearly targeted to prevent or stall the Clean Air Act, a piece of
legislation targeting air polluters.
376 M. J. Milne
It seems likely, then, that Watts and Zimmerman’s notion of political costs was
largely derived from observations of the behaviour to and of US oil companies
during the early and mid-1970s.6 Reference to social responsibility campaigns
in the media was most likely based on the popular US practice of advocacy
advertisements at that time. Such advertising, however, seems to only partially fit
Watts and Zimmerman’s argument. It is clearly a means of lobbying behaviour,
and lobbying behaviour most often directly targeted at prospective legislation, an
outcome of which could well forestall reduction in future firm profitability. Whether
such advertisements were intended to reduce “high profits” or the visibility of high
profits, however, is much less certain. Yet, the clear objective for managers of such
firms, according to Watts and Zimmerman’s theory, is to make current profits lower
and so remove the source of public and political concern.
While managers of firms may undertake social responsibility disclosure, media
manipulation and/or government lobbying, these activities seem unlikely by
themselves to aid the management of reported accounting numbers. Furthermore,
as a means of lobbying against prospective legislation that could reduce future firm
profitability, targeted advocacy advertisements seem far more likely to succeed than
annual report social disclosures. Extending Watts and Zimmerman’s observations
about social responsibility campaigns in the media to social disclosures in annual
reports seems to be stretching too far. However, if managers are undertaking social
responsibility disclosures in annual reports as part of a strategy to reduce political
costs and enhance their welfare, then at the very least we should also expect to
see evidence of those same firms undertaking other more direct means to reduce
reported profits (i.e. certain accounting method choices).
Testing Watts and Zimmerman’s Positive Accounting Theory
Before turning to studies of voluntary disclosure, several useful insights to testing

Watts and Zimmerman’s theory can be gained from briefly considering more
conventional (i.e. accounting choice) studies. First, their theory involves three,
and I would say joint, predictors of accounting choice behaviour. These three
predictors, however, are not reinforcing. They imply opposing incentives, and so
trade-offs for the management of earnings (Watts & Zimmerman, 1986, p. 246).
Second, managers most likely have discretionary choices over a combination of
accounting procedures, and not just a single procedure like depreciation. Zmijewski
and Hagerman (1981), for example, show that four accounting procedures, each
of which could be used in one of two ways (i.e. income increasing or income
decreasing), generates a possible set of 16 portfolio choices. Consequently,
Watts and Zimmerman’s model involves multiple (and joint) predictors of a
portfolio of procedures. As they suggest, however, it is difficult to specify a priori
the relative magnitude of the three opposing incentives (Watts & Zimmerman,
1986, p. 243), and so studies typically use separate independent variables as
surrogates for the offsetting incentives. Notwithstanding this weakness, studies
that seek to explain single procedures, rather than multiple procedures (including
perhaps social disclosure strategies) are less powerful tests of the hypotheses
(Watts & Zimmerman, 1986, p. 246). Likewise, studies that isolate and focus on
single predictors (e.g. political costs) of management behaviour are also incomplete
and less powerful tests of their theory.
In addition to concerns over correctly specifying an empirical model to test Watts
and Zimmerman’s theory, concerns have also been raised over the choice of proxies
for the three independent variables, and especially proxies for political costs7 . Watts
and Zimmerman (1978) originally used firm size (Fortune 500 rank of asset size)
to proxy for political costs, but they and others (see, for example, Ball & Foster,
1982; Whittred & Zimmer, 1990) have subsequently criticized size as too noisy a
proxy. Bujaki and Richardson (1997), for example, from a citation review of the
empirical use of firm size in accounting journals, claim to have found eighteen
distinct theoretical constructs for which size was used to proxy8 . They note that
many of these studies fail to attempt to establish either convergent or discriminant
validity for size. While one might disagree with their classification scheme, size is
clearly found to proxy for more than political costs.
Subsequent to Watts and Zimmerman (1978), empirical studies have tended
to use or suggest a wider range of measures to proxy for political costs. These
include: profits, rates of return, risk, capital intensity, industry concentration,
industry membership, effective tax rates, number of employees, number of
shareholders, labour intensity, press coverage, and even social responsibility
disclosures themselves9 . In some cases, the metrics involve alternative measures
of firm size (e.g. number of employees). In other cases, however, they represent
attempts to find alternative measures of political visibility or political cost (e.g. capital
intensity). In all cases, however, the extent to which they are acceptable measures
should depend upon the extent to which they can be related back to the original
arguments about “high profits” attracting public and political attention. It will be seen
that some studies, in suggesting or using measures of political cost, seem to ignore
the original arguments of Watts and Zimmerman, or, in the process of justifying their
chosen proxies, change the argument.
Disclosure Studies and Watts and Zimmerman’s Theory
Belkaoui and Karpik (1989)
Belkaoui and Karpik (1989) was one of the earliest and more comprehensive
attempts to test Watts and Zimmerman’s arguments with respect to annual report
social disclosures. It is also perhaps the only study that remains largely consistent
with their original arguments. Specifically, Belkaoui and Karpik (1989) invoke the
debt/equity (measured by debt/assets and dividends/unrestricted earnings) and
political cost (measured by size, capital intensity and beta) hypotheses, but omit
the bonus plan hypothesis, when seeking to explain social disclosures. Politically
visible firms are argued to disclose more, while firms with high debt/equity ratios
are argued to disclose less. Measures of social and economic performance are
also included in their model, but social disclosure behaviour is the only dependent
variable tested. Evidence for both hypotheses is found in a regression model that
378 M. J. Milne
generates an adjusted R 2 of 44%, with size, beta (risk) and leverage being the
significant variables. Social performance is also significant in the model.
Several issues arise from Belkaoui and Karpik (1989) that expose it as a weak
assessment of Watts and Zimmerman’s theory. Belkaoui and Karpik (1989, p. 38)
acknowledge that “image-building and public interest concerns may govern the
decision to spend for social performance and to disclose social information”.
However, they prefer to remain consistent with Watts and Zimmerman’s argument
and so emphasize that “specific and material expenditures are necessary to achieve
social performance goals. These same expenditures reduce net income.” The
key to Watts and Zimmerman’s argument, of course, is current income reducing
accounting choices undertaken by monopoly and large profit makers, and so
the key to Belkaoui and Karpik’s (1989) argument is the size of firms’ social
spending (relative to current earnings). Belkaoui and Karpik (1989), however, offer
no evidence of firms’ social spending whatsoever, and also choose to use measures
of firm size other than profits.
To test their argument Belkaoui and Karpik (1989) use an index of social
disclosure developed for the Ernst and Ernst 1970s surveys of Fortune 500 annual
reports, and a reputational ranking of firms’ social performance based on a survey
of business executives. Belkaoui and Karpik (1989) show these two variables to be
significantly correlated (r = 0.55), but doubts must remain about the extent to which
actual (as opposed to perceived) social performance relates to social disclosures
(Wiseman, 1982; Deegan & Rankin, 1996). More importantly, however, there is no
necessary reason why social performance (either actual or perceived) and/or social
disclosures should be related to levels of social spending. The Ernst and Ernst
index captures the variety of social programmes a firm claims to be involved in.
However, even if it were a true and accurate claim, why should a firm involved in
say ten different types of social responsibility programmes necessarily be spending
relatively more than a firm only involved in one type of activity10 ? Likewise, why
should having a reputation for doing “good” necessarily be a function of spending
levels? Not only might a reputation for doing good be based on non-cash donations
(e.g. staff time), there is also the prospect that the business executives’ reputational
index is based on what they read about each others’ companies’ social performance
as disclosed in annual reports. Belkaoui and Karpik (1989), then, while remaining
consistent with Watts and Zimmerman and arguing that levels of social spending
are a way for self-interested managers to reduce current period income, fail to test
this proposition.
A second aspect of Belkaoui and Karpik (1989) study, and indeed most other
(social) disclosure studies, is their failure to take the opportunity to establish
a wider basis for their findings. Clearly the intent of social disclosure studies
is to uncover management motives, and, in the case of positive accounting
theory, to uncover evidence of self-interested managers who are using social
expenditures and/or social disclosures to manipulate current reported earnings.
As such, then, we should expect these same managers to be exercising other
accounting method choices consistent with these aims (e.g. depreciation method
choices). Panchapakesan and McKinnon (1992), in fact, suggest using measures
of social disclosure as a proxy for political visibility in more traditional accounting
choice studies. So far, however, all the positive accounting theory studies (including
those discussed below) fail to show the coincidence of social spending, social
disclosure, and other income reducing accounting methods.
Concern Over “High Profits” Diminishes
Belkaoui and Karpik’s (1989) sample is limited to 23 very large US organizations

measured in 1973. Seven of these 23 were large oil companies. As with Watts and
Zimmerman (1978); Zimmerman (1983), and others, the extent to which results
are a function of US oil companies during the 1970s remains an issue. Watts and
Zimmerman (1986, p. 236, p. 239) point out that at that time, “. . . the “large” firms
tend to be the oil companies.” And “Besides the firm’s size, its industry probably also
affects its political vulnerability. Firm size proxies for industry because firms within
an industry have similar sizes (Ball & Foster, 1982, p. 183). Therefore, industry
membership is a confounding factor. Finding a statistical association between firm
size and choice of accounting procedures might be due to firm size proxying for
industry membership.”
Precisely how a firm’s industry membership “affects its political vulnerability” is not
made clear by Watts and Zimmerman. Are they suggesting that, consistent with their
original argument, certain industries contain large firms that make “large profits”
and so attract public and political attention (e.g. oil and gas)? Or, are they now
suggesting that certain industries, regardless of their profit making, attract public
and political concern (e.g. old growth forest loggers, chemical companies)?
Blacconiere and Patten (1994) seem to adopt this latter perspective when they
investigate environmental disclosures in the chemical industry. Unlike Belkaoui and
Karpik (1989), they do not tie their argument to high profits and abuses of monopoly
power, but refer to “regulatory costs” that might be expected to arise within the
chemical industry as a result of the Union Carbide Bhopal Disaster in India. They
suggest that investors might anticipate increased regulatory costs as a result of the
disaster and that consequently an adverse market reaction and decrease in firm
value is expected. Firms with extensive (positive) environmental disclosures prior to
the disaster, however, are hypothesized and found to experience significantly less
adverse stock market reaction. While Blacconiere and Patten (1994) suggest the
disclosures signal lower environmental risks, and that firms would be more likely to
release positive environmental news, they present no arguments or empirical tests
that tie such disclosures to self-interested management behaviour. To do so would
require that managers be shown to plan on such disclosures as a “hedge” against
future industry disasters and falls in firm value, which in turn are tied to (decreases
in) management compensation.
Cahan et al. (1997), in investigating the discretionary accruals and earnings
management (but not disclosures) of US chemical firms exposed to the potential
“Superfund” legislation, seem to argue it both ways. On the one hand, they (p. 44)
suggest:
Some members of congress suggested that profits in the chemical industry were
unreasonably high. These charges are consistent with the view that politicians, in choosing
targets for regulatory intervention or other wealth transfers, prefer industries with high
380 M. J. Milne
incomes because these industries can “afford” to pay for the political costs imposed on
them. . . . This suggests that one way chemical firms could appear less politically attractive
is by reducing income.
As well as this perspective, however, they (p. 44) also argue

In this study, however, we expect that the distribution of costs would not be equal across
firms within the industry. To be exact, the firm-specific cost of Superfund should be
positively related to the volume of taxed chemicals produced and the firm’s involvement
in hazardous waste sites.
This latter perspective led Cahan et al. (1997, p. 46) to formulate the hypothesis
that “Chemical firms with high cost exposure to Superfund were more likely to take
larger income-reducing discretionary accruals. . . ”. Note the twist in the arguments.
It is no longer “large profits” that create the need for income-reducing behaviour,
but being a large and potentially hazardous polluter. Furthermore, despite the
argument about large profits, Cahan et al. (1997) develop no empirical tests of that
argument. Instead they develop proxies for the magnitude of potential costs of the
legislation faced by each firm. They consider (1) the number of taxed chemicals
produced, (2) the ratio of revenues from chemicals to total firm revenues, (3) the
number of hazardous sites identified with the firm, and (4) the potential costs of
hazardous sites. But if the number and volume of chemicals a firm produces, and
the number of hazardous sites to which it is identified are driving the potential
costs (to the firm) of proposed legislation, how does managing (reducing) reported
income help11 ? If there is a link it is one that Cahan et al. (1997) fail to state,
and, furthermore, given their lack of concern over profit measures, it is one they
fail to test12 .
Panchapakesan and McKinnon (1992), in offering seven different potential
proxies for political visibility in addition to firm size, waver back and forth between
the “high profits” and monopoly abuse arguments and wider social interpretations
depending upon the particular proxy. “Market Share” and “Capital Intensity”, for
example, are clearly tied to concern over the size of profits. Yet when arguing for
“Industry”, “Number of Employees”, “Number of Shareholders”, “Social Responsi-
bility Disclosure” and “Level of Press Coverage” a raft of social pressure arguments
come to the fore, some of which may have a connection with increased spending
and so reduced profits, and some of which do not. For example, we are told:
. . . a firm with a large number of employees is likely to be more visible to trade unions and
the media. . . 13
. . . strong public opinion and lobbying, have over a sustained period imposed costs
on tobacco companies in the form of periodic increases in sales tax, restrictions on
advertising and sponsorship, and mandatory health warnings on cigarette packets.
. . . corporations with a large number of stockholders tend to be more in the public eye
and, as such, are more subject to pressure for accountability for their actions.
One way of establishing a favourable public image, or of moderating an already

unfavourable one, is to be seen to be voluntarily undertaking socially desirable activi-
ties. . . This voluntary investment in socially desirable activities may be viewed as a form
of “social taxation”. Firm management voluntarily commits resources to activities that it
perceives will be viewed favourably by society. Hence, the firm voluntarily taxes itself in an
attempt to avoid larger resource transfers imposed by outside agencies.
Panchapakesan and McKinnon’s (1992) argument for social responsibility disclo-

sures as a proxy for social spending clearly runs into the same problems already out-
lined against Belkaoui and Karpik (1989). However, it is also clear they interpret the
notion of political costs differently from Watts and Zimmerman (1978). While the out-
come of the interpretation differs little (i.e. exposed firms become subject to costly
regulation that eats away at future profitability), it is the source of concern that dif-
fers, and so do the firms identified as exposed and likely targets of such regulation.
Such distinctions are not only an issue for Watts and Zimmerman, and
Panchapakesan and McKinnon (1992) who ultimately seek to explain accounting
method choices, but also for social disclosure studies. If high profits are no longer
the only focus as sources of public and political concern, the arguments for income
smoothing strategies become weaker, since firms may now be attacked by the
public and politicians for a host of other reasons that have little or nothing to do
with profiteering. In the context of this study, though, for those seeking to explain
social disclosure behaviour, and especially for those who have chosen to singularly
focus on disclosure behaviour and singularly on the political cost hypothesis as an
explanation for such behaviour, major problems arise.
Tests of the Political Costs Hypothesis Blur with Social Explanations of Disclosures
Without Watts and Zimmerman’s other hypotheses (e.g. monitoring/contracting

costs and bonus plan), and/or evidence of other accounting choices to corroborate
the disclosure findings, it becomes extremely difficult to set the political cost
(size) hypothesis apart from other social explanations of disclosure behaviour
(e.g. stakeholder theory, legitimacy theory). As Belkaoui and Karpik (1989) had
recognized, without tying significant and material social spending to reductions
in current net income, “image-building and public interest concerns” could also
explain social spending, performance and so disclosure. These difficulties are best
illustrated by reference to the work of Deegan and several co-authors, and the work
of Lemon and Cahan (1997).
Deegan and Hallam (1991) adopt a political cost perspective and explore
corporate management’s incentive to voluntary disclose value added statements
in the annual reports. Specifically, they hypothesize that value added statement
disclosure is related to labour intensity, corporate tax payments, rate of return,
firm size and industry volatility. They find that size (absolute after tax profits and
market concentration), tax, and the industry to which a firm belongs are all related
to the incidence of value added statement disclosure. The arguments for market
concentration, tax payment, size and rates of return are all closely tied to Watts and
Zimmerman’s notion of high profits and monopoly abuses, and so proxy for firms
as targets of union activity due to profits. Labour intensity and industry volatility,
however, are argued more along the lines of proxies for vulnerability to unions and
relative union power. While two industry groupings are found to differ from five
others, neither of the hypothesized “vulnerability to unions” or “relative union power”
arguments could be supported. Generally, then, the arguments and evidence are
close to Watts and Zimmerman’s original arguments.
382 M. J. Milne
Deegan and Carroll (1993, p. 219) specifically aim “to determine whether those
companies that apply for an [annual reporting excellence] award appear to be
relatively more susceptible to wealth transfers in the political process.” In the process
of establishing political cost arguments, the paper makes the usual references to
the work of Watts and Zimmerman and other related studies (e.g. Hagerman &
Zmijewski, 1979). Five measures of political sensitivity are used: firm size, rates of
return, market concentration, tax and media exposure. Apart from media exposure,
the arguments for the other proxies are tied into large profits and monopoly power
abuses. For media exposure we are told (p. 223) “There is an expectation that
firms that are constantly in the media spotlight are more susceptible to political
transfers than firms that rarely receive media attention.” As with Panchapakesan
and McKinnon (1992), however, no reference is made of what might be the source
of the media attention (e.g. profiteering, polluting, plant closures), and the construct
is measured by reference to the total number of articles appearing on a firm in a
given year.
In addition to these usual arguments, Deegan and Carroll (1993) also make
reference to Trotman’s (1979) work on social disclosures. To quote in full from
Deegan and Carroll (1993, p. 222),
As Trotman (1979, p. 27) argued when examining the propensity of firms voluntarily to
disclose social responsibility information:
. . . social responsibility reporting may contribute to public image and this is turn may lead
to greater public acceptance, more identification and avoidance of confrontation such
as strikes and boycotts. . . by reporting social responsibility information companies are
showing that they are acting responsibly and that there is no need for further legislation to
force them to do so.
Consistent with Trotman’s discussion of social responsibility disclosures it is suggested
that being identified as an ARA winner may reduce the likelihood of confrontation, reduce
the arguments that the firm is not acting responsibly, and decrease the likelihood of
further specific legislation—actions which may be more likely to be taken against politically
sensitive firms.
Hence the central proposition of this [Deegan and Carroll’s] paper is

Firms subject to higher political costs will be more likely to apply for an Annual Report
Award than firms subject to low political costs.
Either Deegan and Carroll’s (1993) reference to Trotman (1979) creates the usual
untested assumptions noted earlier that disclosure proxy’s for social spending and
so reduced levels of current net income, or it is an indication of a wider definition of
political visibility and costs. Either way it is one that blurs the distinction of political
costs with stakeholder and legitimacy perspectives.
Further evidence of this blurring can also be found in Deegan and Gordon (1996)
which finds strong empirical associations between the environmental sensitivity of
a firm’s industry as determined by members of environmental pressure groups and
levels of firms’ (positive) environmental disclosures14 . Firm size is also found to be
associated with levels of disclosure, and especially so for firms in the most sensitive
industries. Now, however, Deegan and Gordon (1996), complete with the same
quotation from Trotman (1979), claim evidence to “support a view that environmental
disclosures are used to legitimize the operations of firms that operate industries
of concern to environmental groups.” And that “once an industry is deemed to be
environmentally damaging. . . larger firms create more environmental costs. . . unless
they provide evidence to the contrary.” Of course it is not difficult to imagine that
these size/industry/disclosure findings could have just as easily have been framed in
the same political cost arguments that have been used in other studies to explain like
findings. Indeed, upon finding the incidence of environment-related disclosures was
higher among oil firms than others, Ness and Mirza (1991) claim to have evidence
of Watts and Zimmerman’s positive accounting theory. Likewise, this is precisely
how Lemon and Cahan (1997) argue for a positive accounting theory explanation of
environmental disclosures.
Lemon and Cahan’s (1997) work needs examining in some detail because it
shows an awareness of many of the difficulties discussed so far, and yet in
many respects fails to avoid them. At the outset Lemon and Cahan (1997, p. 79)
suggest “one reason for the persistence of multiple views [of why firms make social
disclosures] is that researchers have not been very successful in developing tests
that allow them to assess the validity of different theories.” They acknowledge
legitimacy theory and critical theory, but their stated intent is clearly to establish
a political cost explanation for social disclosures. To do this they seek to examine
environmental disclosures both pre and post the introduction of a specific piece of
environmental legislation (New Zealand’s Resource Management Act). They also
allude to the inadequacies of other empirical results, however, and, as noted at
the start of this paper, point out that Patten’s (1991) legitimacy theory results are
entirely consistent with the political cost hypothesis. Patten’s (1991) arguments and
results are, of course, largely identical to Deegan and Gordon’s (1996), but Lemon
and Cahan’s (1997) observation is correct. Findings of size/industry/disclosure
relationships are not an adequate basis on which to distinguish between the two
positions, and especially so if positive accounting theorists do not insist on their
size/industry measures being related to “high profits” and monopoly behaviour, and
their disclosure measures to social spending.
Unfortunately, Lemon and Cahan (1997) fail to deliver an adequate test because
their arguments and research design lose touch with Watts and Zimmerman (1978)
and Belkaoui and Karpik (1989). In the process they blur with the very social
theories they so adamantly seem to reject. Lemon and Cahan (1997) acknowledge
that most political cost hypothesis studies focus on whether firms “reduce reported
income”, and correctly note that Belkaoui and Karpik’s (1989) argument is about
interest groups criticizing firms because of reported profits and firms using social
spending to reduce these. Yet they (p. 85) go on to say:
The political cost hypothesis postulates that a firm operates in society based on
upon explicit and implicit contracts with individuals and groups. These groups include
government, employees, consumers, special interest groups, and the public in general. . .
While annual reports are a key source of information used by governments in identifying
firms for wealth transfers (Wong, 1988), the causal link between political costs and
environmental disclosures is more tentative than the causal links associated with the
related debt/equity and bonus plan hypotheses. This study assumes that public members,
in particular environmental activist groups, will pressure government officers to impose
costs on firms with poor environmental records. Consequently, firms that are subject to a
384 M. J. Milne
high level of scrutiny by the public about their environmental programmes, or are politically
visible, would have more incentive to disclose information to the public.
These statements encapsulate many of the issues already raised about partial ex-
aminations of positive accounting theory, but they also clearly indicate the confusion
of political costs with legitimacy theory. Patten (1991, p. 298), for example, states:
To a great extent, legitimacy theory has a basis in the notion of the social contract.
According to Shocker and Sethi (1974, p. 67), “any social institution [including business]
operates in society via a social contract, expressed or implied. . . ”
Thus a business can use social disclosure to attempt to affect public policy. Such
disclosures may address policy issues themselves or, alternatively, may be used to
attempt to create an overall image of social responsibility for the firm. The goal is to deal
with what Miles (1987) calls throughout his book the “exposure” of a business to both the
social environment and the political environment. . .
Interestingly, Jantadej and Kent’s (1999) study of BHP Australia’s disclosures

around the period of the Ok Tedi Copper Mine disaster in Papua New Guinea
contains extensive and broad arguments regarding the political costs hypothesis,
yet goes on to argue and claim to have tested a legitimacy perspective. In fact,
they suggest (p. 76) “legitimacy theory relating to the explanation of incentives for
environmental disclosures is an extension of the political cost framework. This is
because legitimacy theory relates not only to economics and political factors, but
also to social factors.” Of course, they in no way establish links between legitimating
behaviours and self-interested managers’ wealth maximizing—a behaviour that
lies at the core of Watts and Zimmerman’s political cost hypothesis. Nonetheless,
a broadening of the notion of political costs in the manner that Panchapakesan
and McKinnon (1992); Deegan and Carroll (1993) and Lemon and Cahan (1997)
suggest, creates problems for positive accounting theorists seeking to distinguish
themselves from other social theories of disclosure behaviour.
Lemon and Cahan’s (1997) study, however, also falls down on method. Noted
early in this discussion is that Watts and Zimmerman’s original study is largely about
predicting accounting method choices and lobbying behaviour to avoid or reduce
wealth transfers. Also noted was American Electric Power’s successful attempt to
stall the Clean Air Act standards by way of advocacy advertising. Cahan et al. (1997,
p. 42) also examined the behaviour of US chemical firms in 1979—a time they
say when “the outcome of the [Superfund] legislation was still uncertain, creating a
setting where firms with chemically related operations would have incentives to take
actions influencing the outcome of the political deliberations.” Whether political costs
are defined broadly or narrowly, in all cases, as with legitimacy theory, the purpose
of the firms’ reactions is argued to reduce or avoid political intervention, regulation
and costs. Given this pre-emptive element, then, one might have expected Lemon
and Cahan’s (1997) study to focus on the behaviour of firms before the Resource
Management Act came into force.
In fact, their test is based on increases in disclosure after the Act came into
force, showing that for a group of companies in environmentally sensitive industries,
disclosure increased as a result of the RMA. As a test of political costs this seems
illogical. The politicians by passing the Act have already imposed the costs on all
firms. It is true that, as Lemon and Cahan (1997) point out, the RMA does have
the potential to impose fines upon firms (and imprison directors) breaching the
regulations, but these are not costs self-interested politicians can impose, they are
determined by the regulators and courts15 . A consistent and more appropriate test
of the argument would be to examine disclosure behaviour in the time period leading
up to the passing of the Act, when firms had an opportunity to stall or influence the
final shape of the legislation. This seems particularly appropriate in the case of the
Resource Management Act because it was the result of a unique and almost 4-
year long Resource Management Law Reform process that resulted in extensive
public consultation, submissions, round tables, workshops, discussion documents,
and finally the Resource Management Bill (Gow, 1991). If there was a time for
firms and managers to be involved in lobbying for their self-interest it was during
this period and not after the Act was passed. Lemon and Cahan’s (1997) study,
then, suffers from both a lack of theoretical clarity and weaknesses of method that
render its results largely suspect as a basis to establish evidence for Watts and
Zimmerman’s notion of political costs.
Summary and Conclusions
This paper has set out to critically review the positive accounting literature as it
relates to social disclosure analyses. In the process of doing so it has paid careful
attention to the arguments presented in Watts and Zimmerman’s (1978) original
positive accounting theory paper and several of their subsequent reviews (1986,
1990). Watts and Zimmerman (1978) are often cited as the theoretical basis for the
empirical social disclosure studies. Such a review shows that Watts and Zimmer-
man’s theory is largely concerned with three joint predictors of lobbying behaviour
and accounting method choice based on assumptions of self-interested managers’
wealth maximizing. Managers of firms making large profits and potentially abusing
monopoly powers, it is hypothesized, are likely to use a raft of accounting method
choices to reduce reported earnings. Their own reference to social responsibility
disclosure and its relationship to their main arguments is obscure. Most likely their
reference to “social responsibility campaigns in the media” relates to the common
practice in the US at the time of advocacy advertising. Advocacy advertising was
a tactic used by several companies, but most notably Mobil Oil, to counter media
news reports and influence public policy and political debates.
In reviewing the subsequent social and voluntary disclosure studies that have
relied on Watts and Zimmerman (1978) for their theoretical base, several things are
noted. First, none of the studies provide the full arguments of Watts and Zimmerman
as they relate to discretionary management behaviour. That is, none of the studies
employ all three of the (joint) hypothesized predictors of behaviour. Most, in fact,
only use the size or political cost hypothesis, and for this reason alone they must be
considered weak tests of the original argument. Second, none of the studies take the
opportunity to examine management behaviours other than the chosen disclosure
variable that one might expect to exist if self-interested income reducing strategies
were being adopted as hypothesized, therefore further weakening the tests.
386 M. J. Milne
The need for corroborating evidence seems vital when the stated rationale for
disclosure seems so obscure in the first place. Indeed, the arguments regarding
the purpose of social (or other voluntary) disclosures are not consistent among the
positive accounting literature. Belkaoui and Karpik (1989), and Panchapakesan and
McKinnon (1992) on the one hand, do not see a direct role for social disclosures. To
them disclosure is merely the by-product of social responsibility expenditures, which
in turn are argued to result in reported income reductions. This line of argument is
most consistent with Watts and Zimmerman’s (1978) original concerns with high
profit takers and abusing monopolists. In the absence of data on social spending,
however, Belkaoui and Karpik (1989) rely on social disclosures as a proxy for social
spending, and so largely fail in their tests.
On the other hand, several studies (e.g. Deegan & Hallam, 1991; Lemon & Cahan,
1997; Jantadej & Kent, 1999) focus directly on disclosure itself as management
behaviour, yet the purpose of such disclosures is often left vaguely specified.
Showing that such disclosures were consistent with other accounting method
choices would help, but there is an added problem for these studies, and that
is that all of them fail to argue how such disclosures relate to reductions in
profits. Consequently, they move away from Watts and Zimmerman’s (1978) original
arguments and extend the notion of political costs. In the process, however, they
blur their arguments with other social theories of disclosure, and so fail to rule out
alternative explanations. Moreover, they fail to convince or provide any evidence on
how such disclosures might serve as a lobbying device. That advocacy advertising
(a targeted, timely, often repeated, and widely publicly disseminated message)
might have the ability to persuade the public and politicians to keep their distance
seems inherently more plausible than annual report disclosures. This seems likely
regardless of whether one believes firms are targeted for anti-trust monopoly
behaviour, pollution, labour exploitation or any other social wrong.
This review reaches the same conclusion as Gray et al. (1995) that positive
accounting studies have little to offer our understanding of firms’ social disclosure
behaviour, but for different reasons. Rather than reject their arguments on their
assumptions, it shows positive accounting theorists have failed to offer any
substantive evidence whatsoever to support the view that firms’ managements use
annual report social disclosures in pursuit of their own wealth interests. In fact, in
almost all cases the empiricists setting out to examine positive accounting theory
as a basis for social disclosure behaviour have failed to follow the arguments of
Watts and Zimmerman’s original thesis. Furthermore, and contrary to positivism in
the methodological sense, in all cases so far, the studies have failed to generate
adequate tests of the arguments they do present.
Acknowledgements
The author would like to thank Alan MacGregor, Carolyn Stringer, Gregory
Liyanararchchi, Ros Whiting and an anonymous conference reviewer for their
helpful comments on earlier drafts of this paper. Thanks are also due to
seminar participants from the Department of Accounting and Finance, University
of Aberdeen, Scotland, and to conference participants at the 2001 BAA Annual

Conference at the University of Nottingham, as well as to two anonymous referees
for Critical Perspectives on Accounting.
Nots
1. See, for example, Kelly (1981); Trotman and Bradley (1981); Belkaoui and Karpik (1989); Patten
(1991); Panchapakesan and McKinnon (1992); Adams et al. (1995, 1998); Deegan and Gordon
(1996); Hackston and Milne (1996); Lemon and Cahan (1997).
2. As Sterling (1990, p. 117, emphasis in original) and others (e.g. Chambers, 1993) make clear,
understanding why firms choose certain accounting methods is not at issue. Utility maximization
is always the answer according to the assumption of Watts & Zimmerman. The research objective
is to demonstrate a set of relationships consistent with that assumption. Of course, “self-interest”
could, quite reasonably on the available evidence to date, be claimed to lie at the heart of all
voluntary disclosure behaviour, even where such disclosure behaviour is made to appease certain
constituents and retain organizational legitimacy. Watts and Zimmerman’s, assumption, however, is
that accounting manipulations serve managers’ economic self-interest.
3. See their web-based publication lists at: http://www.simon.rochester.edu/fac/zimmerma/html/
pubs.html, and http://www.simon.rochester.edu/fac/watts/html/publicat.html.
4. During the 1970s several books were released critically examining the oil industry. See, for example,
Blair’s (1976) The Control of Oil, Sampson’s (1975) The Seven Sisters and Engler’s (1977) The
Brotherhood of Oil. The thrust of many of these analyses was abuse of power, collusion and
profiteering.
5. While the adverts shown in the appendix have been selected to illustrate the arguments here, Sethi
(1977b, p. 16) provides ample evidence that such advertising was dominated by oil companies,
and especially so during the 1970s. For example, he states “In 1971, of the top ten companies
running institutional advertising, one was an oil firm, three were public utilities, and one was an
automobile concern. By 1972, the number of oil firms had risen to four, utilities decreased to one,
as did automobile manufacturers. . . in 1974. . . five of the top ten corporate advertisers were oil
companies. . . ”. The content of such adverts were tracked by Benson and Benson, and during
1975 typically covered energy (40%), economics/regulation (20%), ecology (15%), corporate social
responsibility (10%) and capital investment (9%). Oil companies and utilities dominated the energy
advertisements, with Mobil and American Electric Power dominating the economics/regulation
advertisements, and 60% of all corporate social responsibility advertisements were accounted for
by four oil companies: Mobil, Gulf, Arco, and Exxon (see Sethi, 1977b, p. 55).
6. The more general point that Watts and Zimmerman’s theory is largely only applicable to the US has
been made before by others. See, for example, Lowe et al. (1983) and Peasnell and Williams (1986).
7. See Sterling’s (1990) remarks in his foonote #24, for example.
8. These included, for example, political costs, risk, analyst following, liquidity, management ability,
expected returns, trading frequency, bankruptcy likelihood, and social responsibility disclosure. It is
notable in some cases, however, that Bujaki and Richardson have confused empirical associations
found between size and other measures (e.g. number of social disclosure pages/words) as evidence
of the use of size to proxy for such constructs/measures.
9. See, for example, Zmijewski and Hagerman (1981); Holthausen and Leftwich (1983); Watts and
Zimmerman (1986); Deegan and Hallam (1991); Panchapakesan and McKinnon (1992); Deegan
and Carroll (1993); Lemon and Cahan (1997).
10. Ernst and Enrst’s surveys of the 1970s involved analysing the content of the Fortune 500 annual
reports against an index of social responsibility activities (e.g. waste recycling, pollution abatement,
training minorities, drug addiction control). Early surveys identified 14 such items, while the later
surveys listed 27 such items. In most cases, however, companies either failed to disclose the level of
expenditures involved or confined such disclosures to specific activities (Beresford, 1974; Beresford
& Feldman, 1976). Beresford (1974, p. 43, also see Elias & Epstein, 1975, p. 37), for example,
notes that “. . . disclosure of expenditures for social purposes is still quite small. The number was
73 [out of 500] in 1972 and 53 in 1971. Nearly 90 percent of the expenditure disclosures related
to environmental controls, with the remaining 10 percent relating mainly to charitable contributions.
388 M. J. Milne
None of the other categories referred to above included any significant number of companies which
reported their socially responsible actions in dollar amounts.” Beresford also noted at that time “most
present disclosures can be characterized as imprecise, verbal rather than quantitative, selective,
non-normative and non-comparative.”
11. Watts and Zimmerman’s other two hypotheses, of course, predict that self-interested managers
would want to increase reported income to derive larger bonuses. Consequently, if politicians’
concerns are no longer argued to be about abusing monopolists making too much money, it seems
that the incentive to reduce reported income, and so avoid the costly legislation is weakened.
12. Cahan’s et al.’s study was also set around 1979, and its sample of 43 “chemical” companies included
at least nine major oil and petroleum companies. Consequently, the possibility remains that Cahan et
al.’s (rather poor) R 2 results may be a function of the behaviour of the same large US oil companies
during the 1970s as have appeared in so many other positive accounting studies.
13. Watts and Zimmerman, of course, as we saw earlier had argued that it is large profits that attract
union demands for higher wages.
14. It is well known that the vast majority of disclosures are positive, and this was so in this study too.
This result would likely be unchanged if all disclosures were tested rather than just the positive ones.
It is the level of disclosures that is driving the result rather than the nature of the disclosures.
15. Several other authors seem to adopt this broader interpretation of “political costs” including
Blacconiere and Patten (1994) (although they refer to “regulatory costs”), and Jantadej and Kent
(1999).
Appendix
Selected Advocacy Advertisements from Sethi (1977b)

390 M. J. Milne
Appendix (continued)
392 M. J. Milne
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Positive accounting theory, political costs And social disclosure analyses: a

Article in Critical Perspectives on Accounting · June 2002

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POSITIVE ACCOUNTING THEORY,

Watts and Zimmerman (1978) and Social Responsibility

A review of Watts and Zimmerman’s original positive accounting theory papers

Political Costs and the Size Hypothesis

Oil Companies and Advocacy Advertising

Some insights into Watts and Zimmerman’s reference to social responsibility

In the context of Watts and Zimmerman, Sethi’s work on advocacy advertising is

Testing Watts and Zimmerman’s Positive Accounting Theory

Before turning to studies of voluntary disclosure, several useful insights to testing

Disclosure Studies and Watts and Zimmerman’s Theory

Belkaoui and Karpik (1989)

Concern Over “High Profits” Diminishes

Belkaoui and Karpik’s (1989) sample is limited to 23 very large US organizations

As well as this perspective, however, they (p. 44) also argue

One way of establishing a favourable public image, or of moderating an already

Panchapakesan and McKinnon’s (1992) argument for social responsibility disclo-

Without Watts and Zimmerman’s other hypotheses (e.g. monitoring/contracting

Hence the central proposition of this [Deegan and Carroll’s] paper is

Interestingly, Jantadej and Kent’s (1999) study of BHP Australia’s disclosures

Summary and Conclusions

of Aberdeen, Scotland, and to conference participants at the 2001 BAA Annual

Selected Advocacy Advertisements from Sethi (1977b)

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