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Is a Uniform Approach to Whistle-Blowing Regulation Effective? Evidence from the United States and Germany

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Abstract

The purpose of this study is to examine whether United States (U.S.)-style regulatory intervention to encourage whistle-blowing can be immediately effective if transplanted into another country with a distinctly different historical cultural background and institutional system. A total of 98 U.S. and 84 German accountants participated in a laboratory experiment relating to a case of financial statement fraud. The provision of anti-retaliation protection and monetary rewards for whistle-blowing were manipulated and participants were asked to assume the role of an internal auditor. We hypothesize and find that the provision of anti-retaliation protection and monetary rewards encourage U.S. accountants to blow the whistle. In contrast, among German accountants, where their country features a historical fear and distrust of whistle-blowers, U.S.-style regulatory interventions are less effective. Together, our findings provide strong support for the theory of path-dependence, suggesting that whistle-blowing regulation should not be uniformly transplanted without due consideration of the unique history and culture of a country.

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Notes

  1. Whistle-blowing is used within the business vernacular to describe an act whereby one exposes wrongdoing to parties who may be able to effect action (Near and Miceli 1985). Whistle-blowing can be classified as internal or external. External whistle-blowing occurs when the complaint recipient is outside of the organization, for example, law enforcement agencies and regulators, professional bodies, external “watch dog” organizations and interest groups, and the media (Near and Miceli 1995). Internal whistle-blowing is the reporting of wrongdoing to sources within the organization that can bring about change. This may include the board of directors, the audit committee, senior management or a designated complaint recipient within the organization (Finn 1995).

  2. In 2013, the EU proposed that member states introduce monetary rewards for whistle-blowers, see §36 of the proposal for the regulation against market abuse (http://db.eurocrim.org/db/en/doc/1961.pdf). In April 2018, the European Commission proposed a new law to strengthen whistle-blower protection across the EU, see https://eur-lex.europa.eu/resource.html?uri=cellar:a4e61a49-46d2-11e8-be1d-01aa75ed71a1.0001.02/DOC_1&format=PDF. This proposal includes whistle-blower protection rights and the implementation of whistle-blowing systems.

  3. In the U.S., cultural attitudes and values toward whistle-blowing, whistle-blowing regulation and the governance framework have developed together over many decades, whereas there has been a general lack of whistle-blowing-related regulation or a governance framework in Germany (described in detail in section “Whistle-Blowing Intention”). We are therefore effectively conducting a joint test of the type of whistle-blowing regulation and the impact of cultural attitudes and value orientation toward whistle-blowing fostered through decades of developments.

  4. The most important characteristic of a market-controlled system is that an active external market exists, which functions as an effective instrument for corporate control. For example, independent shareholders actively influence managerial decisions. In contrast, in a network-oriented system, other stakeholder groups, such as banks and employees, are influential over managerial decisions via networks and relationships (Weimer and Pape 1999).

  5. The German Democratic Republic was a socialist state from 1949 to 1990 in East Germany.

  6. In coordinated market economies, employees are assured of job positions if they invest in firm-specific skills (Hall and Gingerich 2009). Compared to the U.S., which is a liberal market economy, employees in Germany have longer job tenures and more rights to participate in firm decision-making (Aguilera and Jackson 2003; Groenewegen 1997).

  7. There are some relatively recent whistle-blowing cases involving German companies that also bear mention, namely Siemens and Volkswagen. At a glance, these are two German companies implicated in fraudulent activities brought about by whistle-blowers, which might perhaps be seen as reflective that a change has occurred in the culture toward whistle-blowing in Germany. Such a conclusion, however, should be tempered by the facts of these cases. It is true that both companies are headquartered in Germany. However, they are both multinational in nature, with subsidiaries dispersed around the globe, and each have their shares listed on the U.S. stock exchange, thus being governed by SEC rules. The whistle-blowers were able to access the Sarbanes–Oxley Act and Dodd–Frank Act provisions. Furthermore, the whistle-blowers were neither German citizens and nor were they working in Germany. Siemens’ whistle-blower, Meng-Lin Liu, a citizen and resident of Taiwan, was a former compliance officer working in Siemens China, a wholly owned subsidiary of Siemens. The whistle-blower in Volkswagen was Daniel Donovan, an information manager based in Michigan, and a U.S. citizen. Hence, while these whistle-blowing cases implicated German companies, we contend that they are not highly representative of a current shift in German attitudes toward whistle-blowing. Nevertheless, they may be a catalyst for a longer-term shift and had whistle-blowing regulations been available in Germany, perhaps these cases may have been detected earlier by German whistle-blowers.

  8. https://www.falseclaimsact.com/federal-false-claims-act.

  9. https://www.justice.gov/opa/pr/justice-department-recovers-over-37-billion-false-claims-act-cases-fiscal-year-2017.

  10. For example, the public interest law movement has been seen as a distinctively U.S. project (Cummings 2007).

  11. http://www.dw.com/en/germanys-dire-record-on-protecting-whistleblowers/a-17923312.

  12. See: http://www.anstageslicht.de/fileadmin/user_upload/Whistleblower/Arbeitsgericht-blacked_red_opt.pdf.

  13. Monetary rewards for whistle-blowing could lead to a crowding-out effect, which in turn reduces whistle-blowing intentions (Lobel 2012; Feldman and Lobel 2010; Engstrom 2014; Berger et al. 2017). The crowding-out phenomenon argues that different forms of regulatory intervention can differ in the extent to which they map onto an individual’s moral obligations (Goeschl and Perino 2012). Any mismatch between an individual’s moral views and the relevant regulatory instrument can create negative feelings, which can be responsible for the reversal in behavior (Koenigs and Tranel 2007; Pillutla and Murnighan 1996). Applied to the context of whistle-blowing, the provision of monetary rewards could crowd out an individual’s moral obligation to blow the whistle. Given this competing argument, it is important to validate the prior findings by testing the effect indicated in Hypothesis 3a.

  14. We considered individuals over the age of 25, employed in an accounting role and currently working in the respective countries to be a representative participant group (Andon et al. 2016).

  15. Related studies in the field of whistle-blowing have used Qualtrics to gather data from accountants (e.g., Andon et al. 2016).

  16. The U.S. Bureau of Labor Statistics reports that the majority of accountants and auditors are females. See Current Population Survey, “Table 11 Employed Persons by Detailed Occupation, Sex, Race, and Hispanic or Latino Ethnicity”. Available at http://www.bls.gov/cps/cpsaat11.pdf. German labor statistics similarly report that most accountants are females. See: https://statistik.arbeitsagentur.de/Statistikdaten/Detail/201703/iiia6/beschaeftigung-sozbe-bo-heft/bo-heft-d-0-201703-xlsx.

  17. Professional standards could affect a respondent’s perceptions toward misconduct and whistle-blowing. Since 2001, the American Institute of Certified Public Accountants (AICPA) Professional Ethics Executive Committee (PEEC) has been converging the AICPA Code of Professional Conduct with the International Ethics Standards Board for Accountants (IESBA) Code of Ethics for Professional Accountants (AICPA 2012). The AICPA is a member body of the International Federation of Accountants (IFAC), and agrees to have ethics standards that at a minimum meet the IESBA ethics standards. Effective December 15, 2014 “The revised AICPA Code is topically organized and restructured similar to that of the IESBA Code” (IESBA 2015, p. 2). Both the U.S. and Germany are member states of the IESBA (IMA 2017). To examine whether professional qualification affected respondents’ whistle-blowing intention, we included professional qualification as a covariate in our models. Our results (untabulated) remained robust and we did not find that holding a professional qualification significantly explained internal or external whistle-blowing intentions for U.S. or German accountants. This insignificant result (p > 0.10) between professional qualification and whistle-blowing is consistent with prior studies which do not find that professional commitment (i.e., the identification with the profession and the acceptance of professional ethics and goals) (Kaplan and Whitecotton 2001) affect whistle-blowing (Izraeli and Jaffe 1998; Kaplan and Whitecotton 2001).

  18. Several whistle-blowing studies also compared different countries using Hofstede’s theoretical framework (e.g., Tavakoli et al. 2003; Trongmateerut and Sweeney 2013; Zhuang et al. 2005). Besides Hofstede, other studies have documented similar differences between the U.S. and German culture (e.g., House et al. 2004; Schwartz 1999).

  19. Results of the Hofstede studies can be found at: https://geerthofstede.com/wp-content/uploads/2016/08/6-dimensions-for-website-2015-08-16.xls.

  20. Regarding the degree of individualism, it is useful to highlight the country’s differences regarding their loyalty towards the employer. Employees from individualistic countries (e.g., U.S.) look out for themselves whereas employees from collectivistic countries (e.g., Germany) focus on the in-group. A higher loyalty towards the employer is therefore expected in collectivistic countries (Tavakoli et al. 2003). The long-term orientation also gives important insights into the relationship between the employee and the employer. Individuals with a long-term orientation perceive a higher dependence on employers and place a greater importance on their employer’s and fellow employees’ interests than do managers from countries with a short-term orientation (Zhuang et al. 2005).

  21. Prior studies find internal and external whistle-blowing are affected by age, gender, educational level, and firm size of the organization the respondent worked for (see Andon et al. 2016; Bowen et al. 2010; Lee and Fargher 2013; Liyanarachchi and Adler 2011; Reckers-Sauciuc and Lowe 2010), as well as the perceived severity of misconduct (Andon et al. 2016; Schultz et al. 1993). While this list is not exhaustive of all factors known to impact whistle-blowing (see Lee and Xiao 2018 for a comprehensive review of factors that affect internal and external whistle-blowing), we examined pre-test differences with respect to these variables and found no significant differences (p > 0.10) across the four manipulated conditions. Consistent with scholarly recommendations (e.g., Kenny 1979; Rausch et al. 2003), these variables were not included in the model (i.e., reported in the model) as covariates because there were no pre-test differences. Nevertheless, additional tests indicate our results remain robust to the inclusion of these variables as covariates (see Sect. 5.5), which adds further support for internal validity.

  22. Academic accountants served as experts in reviewing the survey instrument. Following this, sixty practitioners consisting of auditors, accountants, and executives or partners from large public companies participated in piloting the survey questionnaire. The review and pilot testing phases resulted in some changes to the wording of the case scenario to better expound the case material.

  23. The German version of the survey can be obtained by contacting the corresponding author.

  24. Under the current U.S. legal definition of materiality, a “disclosure generally should be evaluated as material based on whether there is a substantial likelihood that the omitted or misstated disclosure would have been viewed by a reasonable resource provider as having significantly [emphasis included] altered the total mix of information available in making a decision” (FASB 2015). Based on the FASB definition, we used the same terminology in our case scenario, i.e., respondents read “This has had the effect of significantly increasing income and overstating assets.” In Germany, the definition of materiality (“Wesentlichkeit”) is similar and is part of the Generally Accepted Principles of orderly bookkeeping (“Grundsätze ordnungsmäßiger Buchführung”). Information is material if it would be relevant to assess the financial position and the results of an organization’s operations. See https://wirtschaftslexikon.gabler.de/definition/materiality-39363/version-262773.

  25. We asked participants to assess the extent to which Phillip would assess Martin’s action “To be harmful (e.g. shareholders and creditors)”; and “To be morally wrongful” using a seven-point scale anchored by 1 = not at all to 7 = to a large extent. Both U.S. (mean = 6.204, sd = 0.116) and German (mean = 6.012, sd = 0.117) accountants perceived the misconduct to be morally wrong. Similarly, U.S. (mean = 5.949, sd = 0.125) and German (mean = 5.905, sd = 0.125) accountants perceived the misconduct to be harmful. There were also no significant differences in perceptions between U.S and German accountants that the misconduct was morally wrong (p = 0.124) or harmful (p = 0.402).

  26. Three attention check questions were also included throughout the survey to ensure a further layer of reliability to the information collected. Failure to answer any attention check question correctly resulted in the participant being excluded from the analysis.

  27. Ethics-related studies can be affected by social desirability bias (Trevino and Youngblood 1990). We thus asked participants to respond to a six-item social desirability bias index (see Fischer and Fick 1993). We found no differences in social desirability between the U.S. and German accountants (t = − 0.912, p = 0.182).

  28. The internal whistle-blowing definition read: “Internal whistle-blowing refers to reporting wrongdoing within the company: that is, reporting either to a member of the company’s hierarchy, such as a senior manager, to the board of directors, or the audit committee” (Chung et al. 2004). The external whistle-blowing definition, based on Near and Miceli (1995), read: “External whistle-blowing refers to the reporting of wrongdoing to an authority outside of the company, such as media, professional associations, politicians or Government regulatory bodies and interest groups.”

  29. For internal (external) whistle-blowing, participants read the statement “What is the likelihood that Phillip would be willing to formally report Martin’s action internally (externally) to the company?” The three items which followed were: (1) “If his identity would be kept anonymous?”; (2) “If his identity would be known only to the investigator?”; and (3) “If his identity would be known to the company, the investigator, the wrongdoer and others?”

  30. Our results are also robust to constructing the internal and external whistle-blowing measures using principal components factor analysis. For ease of interpretation, we report the average-weighted measures.

  31. Contrary to expectation, the provision of monetary rewards for external whistle-blowing had no impact on U.S. accountants’ intention to blow the whistle. A possible reason for this is because of the extraordinary effort required to qualify for and get the rewards, and the risk of being retaliated and stigmatized. Monetary rewards alone may not be sufficient at encouraging whistle-blowers to report misconduct. For example, the 2015 Annual Dodd-Frank Act report stated that while 120 whistle-blowers had lodged award claims in 2015 alone, only 22 whistle-blowers received monetary rewards since the inception of the rewards program in 2011. Research also shows that 60% of whistle-blowers in the U.S. lost their cases, often because of failing to comply with the technical procedures of filing the report, and therefore did not receive a monetary reward (Patrick 2010). Another reason could be that the provision of monetary rewards may crowd out an individual’s intrinsic motivation to report fraud (Lobel 2012; Feldman and Lobel 2010; Engstrom 2014; Berger et al. 2017).

  32. As reported in Panel A of Table 6, the mean likelihood of German accountants’ intention to internally whistle-blow in the absence of both monetary rewards and anti-retaliation protection is 5.242 on a scale where 1 = Extremely unlikely and 7 = Extremely likely. This indicates that German accountants demonstrate a relatively high likelihood to internally whistle-blow in the absence of any regulation.

  33. This movement was pressured by the U.S. that forbid bribery payments from 1977 as enacted through the Foreign Corrupt Practices Act (FCPA). As a consequence of this came enunciations of the Organisation for Economic Co-Operation and Development (OECD) Anti-Bribery Convention (http://www.oecd.org/daf/anti-bribery/ConvCombatBribery_ENG.pdf). Each country that signed the convention was required to implement laws that criminalized bribery payments from February 1999. Germany and many other countries yielded to pressure of the U.S. (due largely to firms’ need in these countries to gain access to U.S. markets by cross-listing), signed the convention and duly passed laws that criminalized foreign corruption, including bribery (Wolf 2014).

  34. A similar reaction is observable after the German legislator extended the provisions against insider trading. Insider trading was a common practice in Germany. The first law against insider trading was introduced in 1994 after pressures from the U.S. – some German financial instruments were not admitted by the SEC due to the missing insider trading regulations in Germany. After the European Market Abuse Directive, Germany had to strengthen this law. However, insider trading practices did not change in the first years after the introduction of the new law (Dymke 2011).

  35. Siemens was alleged to have engaged in an elaborate scheme of systematic large off-the-books cash deposits related to bribing foreign officials.

  36. Prior to this, although Siemens by virtue of listing on the New York Stock Exchange was subject to not only the German anti-bribery legislation but also the full extra-territorial reach of the U.S. FCPA, their guidelines to ensure compliance on bribery were largely for cosmetic reasons and were not strongly enforced by the firm (Berghoff 2018). No employee was fired before 2006 for illegal activities relating to dubious payments. Some Siemens managers did not even realize that their practices were illegal (Wolf 2014). As a signal to the prevailing culture in Germany at this time, Siemens’ compliance system was not considered at all backward relative to other large German corporations (Berghoff 2018).

  37. A professional accountant is “An individual who is a member of an IFAC [International Federation of Accountants] member body” (IESBA 2018).

  38. Examples of NOCLAR that are covered by The Code include fraud corruption and bribery, money laundering, terrorist financing and proceeds of crime, securities markets and trading, banking and other financial products and services, data protection, tax and pension liabilities and payments, environmental protection, public health and safety (see section 360.5 A2).

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Acknowledgements

Funding for this study was received from Deutsche Forschungsgemeinschaft (The German Research Foundation, Project No. 315357377).

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Appendix: Case Scenario and Manipulated Treatments

Appendix: Case Scenario and Manipulated Treatments

Case Scenario

Phillip is the Internal Auditor at a large public company in the business of grain marketing and exporting. The company has an extensive international network of trading offices providing access to world markets for grain (e.g., wheat, canola, cottonseed, sunflower seed, and soybeans). Phillip’s career is progressing well and he has been working with the company for 4 years.

Martin is the company’s Chief Accountant and is very pleased with Phillip’s performance. However, one evening while working late on a set of files Phillip went through the accounting records carefully to see what had happened and whether he had made a mistake. After further investigation Phillip is quite sure that Martin had engaged in an unethical act of misreporting financial information.

Details of Phillip’s discovery are that late last year he believes that he did properly record several items related to building maintenance as expenses. However, after year-end, Martin then appears to have then posted a series of journal entries into the accounting system that inappropriately changed the classification of these items from expenses to ‘‘long-term assets.’’ This has had the effect of significantly increasing income and overstating assets.

Another problem is that Martin had not talked with Phillip before improperly changing the classification of these expenses. In further support of the act of misreporting financial information, Phillip also notes that the same items had been expensed in prior years. Therefore, Martin’s changes therefore appear to be clearly out of harmony with prior year reports.

After due consideration, Phillip is sure there is sufficient and appropriate evidence to support his conjecture. Indeed, Phillip is absolutely certain that Martin has intentionally and inappropriately changed the expense classification, which has resulted in a significant increase in income and overstatement of assets. This appears to have enabled Martin to meet the aggressive financial targets set for him by the company. Such an action would be considered fraudulent financial reporting and a felony under Federal Law.

Manipulated Treatments

Anti-Retaliation Protection ‘Absent’ and Monetary Rewards ‘Absent’

There are no explicit protections under Federal law against an employer retaliating against an individual presenting an allegation of illegal behavior either internally to their employer or externally to the relevant Government authority.

And

Under Federal Law, there are no explicit provisions for the paying of any financial bounty to any individual who volunteers original information to the relevant Government authority and which results in monetary sanctions being brought against the offending company.

Anti-retaliation Protection ‘Absent’ and Monetary Rewards ‘Present’

There are no explicit protections under Federal law against an employer retaliating against an individual presenting an allegation of illegal behavior either internally to their employer or externally to the relevant Government authority.

And

Federal Law will provide for a financial bounty to be paid to any individual who volunteers original information to the relevant Government authority and which results in monetary sanctions/fines being brought against the offending company.

Anti-retaliation Protection ‘Present’ and Monetary Rewards ‘Absent’

Federal Law prohibits any employer from taking retaliatory actions in any way against an individual presenting an allegation of illegal behavior either internally to their employer or externally to the relevant Government authority. If an employee believes that they have been retaliated against, they are able to take legal action against their employer and to gain reinstatement of their position and to be monetarily compensated for any losses or damages caused to them by the retaliatory action.

And

Under Federal Law, there are no explicit provisions for the paying of any financial bounty to any individual who volunteers original information to the relevant Government authority and which results in monetary sanctions being brought against the offending company.

Anti-retaliation Protection ‘Present’ and Monetary Rewards ‘Present’

Federal Law prohibits any employer from taking retaliatory actions in any way against an individual presenting an allegation of illegal behavior either internally to their employer or externally to the relevant Government authority. If an employee believes that they have been retaliated against, they are able to take legal action against their employer and to gain reinstatement of their position and to be monetarily compensated for any losses or damages caused to them by the retaliatory action.

And

Federal Law will provide for a financial bounty to be paid to any individual who volunteers original information to the relevant Government authority and which results in monetary sanctions/fines being brought against the offending company.

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Lee, G., Pittroff, E. & Turner, M.J. Is a Uniform Approach to Whistle-Blowing Regulation Effective? Evidence from the United States and Germany. J Bus Ethics 163, 553–576 (2020). https://doi.org/10.1007/s10551-018-4023-y

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