8 September, 2016
1. Domestic bribery (private to public)
1.1 Legal framework
Bribery of public officials is regulated under the PRC Criminal Code (the “Criminal Code”).
1.2 Definition of bribery
Under Articles 389, 390, 390A and 393 of the Criminal Code, bribery means giving money or property to an incumbent or former public official, or the person related to the public official (i.e., a close relative or any other person closely related to the incumbent or former public official) for the purpose of securing illegitimate benefits.
1.3 Definition of public official
The Criminal Code has a broad definition of public official. Public official refers to personnel performing public service in state organs, as well as the following:
- Personnel engaged in public service in state-owned corporations, enterprises, institutions and people’s organizations
- Personnel who are assigned to non-state-owned corporations, enterprises, institutions and social organizations by state-owned corporations, enterprises and institutions
- Other working personnel engaged in public service in accordance with law
1.4 Consequences of bribery
The Criminal Code establishes the penalties, as described below, for individuals and companies or legal entities committing bribery.
(a) For the individuals involved
Individuals or persons related to public officials who are found to be guilty of bribery are subject to:
- up to lifetime imprisonment;
- confiscation of property; or
- criminal fine.
Bribe recipients can also be liable. A public official who receives a large amount of bribes can be sentenced to imprisonment or the death penalty. A non-official bribe recipient (e.g., former public official or person related to the public official) can be sentenced to imprisonment.
(b) For the company / legal entity involved
Companies that offer bribes to public officials or persons related to public officials, as well as the responsible persons who are directly in charge of those companies and directly responsible for such offenses, are subject to:
criminal fine levied on the company; and
up to five years’ imprisonment and a criminal fine for the responsible persons in an official bribery case
1.5 Political contributions
There is no direct equivalent of the concept of “political contribution” under the Criminal Code.
1.6 Limitation applicable to hospitality expenses (gifts, travel, meals, entertainment, among others)
While the Criminal Code does not establish quantitative nor qualitative limitations on hospitality expenses, there is a threshold amount for the prosecution of official bribery, as follows: RMB10,000 for individual bribe-givers; RMB200,000 for corporate bribe-givers; and RMB5,000 for bribe-recipients. However, within the PRC central government, there is an internal regulation issued in 1995 applicable to public officials of central party and government organs, which provides reference for the limitation of gifts, as follows:
(a) Public officials shall hand over the gift to the government if the value of the gift exceeds RMB200 per person per occasion.
(b) If the cumulative value of all the gifts received by the public officials exceed RMB600 per person per year, the public official shall hand over such gifts to the government.
In other words, if a person or company provides to a public official of central party and government organs a gift or gifts the total value of which exceed the limitations set out as above, the gift(s) may be considered “in violation of state regulations” according to the 1995 internal regulation.
From our experience, due to inflation, RMB200 is no longer considered a sizable gift in the PRC. As a result, the 1995 internal regulation mentioned above has only been loosely followed. Whether a hospitality expense can be considered as bribery will need to be determined on a case-by-case basis, taking into account all the facts and circumstances surrounding the case, and applying 1.6(a) and 1.6(b) referred to above. In practice, most multinationals in China adopt a threshold amount of around RMB200 to RMB500 (approximately USD32 to USD81)
for courtesy gifts or entertainment by meal, per occasion, per person. Many companies also provide for a frequency limit; for example, no gifts can be given to the same person over three to four times per year. Some industry associations have set up benchmarking rules on gifts, meals and entertainment, for consideration by the members to level the playing field.
2. Domestic bribery (private to private)
2.1 Legal framework
Private bribery is regulated by the Criminal Code and the PRC Anti-Unfair Competition Law (AUCL).
2.2 Definition of private bribery
Under Article 164 of the Criminal Code, private bribery means giving money or property to any employee of a company, enterprise or other entity for the purpose of seeking improper interests and benefits.
Under Article 8 of the AUCL, private bribery means giving money or property, or secret and off-the-book kickbacks to a business counterparty or its employee, or using other means to bribe a business counterparty or its employee for selling or purchasing goods. The Interim Provisions on Prohibition of Commercial Bribery also describe the forms of private bribery under the AUCL, which include any money or property provided to the business counterparty or its employee for promotion, publicity, sponsorship, scientific research, labor, consultancy, commission, reimbursement, or any other benefits such as trips or visits.
2.3 Consequences of private bribery
2.3.1 Under PRC Criminal Law
The Criminal Code establishes the penalties for the individuals and the company/legal entities committing private bribery when the amount of the bribe is relatively large. The penalties are as follows:
(a) For the individuals involved
- Up to 10 years’ imprisonment
- Criminal fine
(b) For the company / legal entity involved
- Criminal fine for the legal entity
- Up to 10 years’ imprisonment and a criminal fine for persons who are directly in charge and other persons who are directly responsible for the offense.
2.3.2 Under the AUCL
The AUCL establishes administrative penalties for business operators committing private bribery in circumstances where the violations have not constituted criminal offences. The penalties are as follows:
- Administrative fine up to RMB200,000
- Confiscation of illegal gains
2.4 Limitation applicable to hospitality expenses (gifts, travel, meals, entertainment, among others)
The Criminal Code does not establish quantitative nor qualitative limitations on hospitality expenses.
Whether a hospitality expense could be considered as private bribery will need to be determined on a case-by-case basis, taking into account all the facts and circumstances surrounding the case, and applying 1.6(a) and 1.6(b) referred to above.
In the healthcare sector, a donation could be considered as private bribery if it is provided in an inappropriate way for purchasing or selling goods. The Administrative Measures on Accepting Donations for Public Welfare by Healthcare Entities (for Trial Implementation) (the “New Donation Rules”) promulgated in 2015 provide specific guidance on donations to healthcare and family planning entities for the non-profit purpose of public welfare such as training, academic or research. The New Donation Rules prohibit donations to these entities if used for any illegal or commercial purpose, or as commercial bribery or an incentive to purchase the goods.
3. Corruption of foreign public officials
3.1 Legal framework
Corruption of foreign public officials is regulated under the Criminal Code.
3.2 Definition of corruption of foreign public officials
Under Article 164 of the Criminal Code, corruption of foreign public officials means the giving of money or property to foreign government functionary or officials of international public organizations for the purpose of seeking improper commercial interests.
3.3 Definition of foreign public official
For the purpose of this offence, a foreign public official means:
- a foreign government functionary; or
- an official of an international public organization.
3.4 Consequences of corruption of foreign public officials
(a) For the individuals involved
- Up to 10 years’ imprisonment
- Criminal fine
(b) For the legal entity
- Criminal fine for the legal entity
- Up to 10 years’ imprisonment and criminal fine for persons who are directly in charge and other persons who are directly responsible for the offense
3.5 Limitation applicable to hospitality expenses (gifts, travel, meals, entertainment, among others)
The Criminal Code does not establish quantitative nor qualitative limitations on hospitality expenses.
Whether a hospitality expense could be considered bribery will need to be determined on a case-by-case basis,
taking into account all the facts and circumstances surrounding the case, and applying 1.6(a) and 1.6(b) referred to above
4. Faciliation payments
There is no direct equivalent of the concept of “facilitation payments” under the Criminal Code. Facilitation payments may be considered a bribe.
5. Compliance programs
5.1 Value of a compliance program to mitigate/eliminate the criminal liability for legal entities
The Criminal Code and the AUCL do not specifically recognize a compliance program as an instrument to mitigate or eliminate liability for legal entities. However, if a legal entity can prove that it had exercised due control over its employees by means of a compliance program or by any other means, a company can seek leniency or mitigate the risk of liability arising from the corrupt behavior of its employees.
5.2 Absence of a compliance program as a crime
The Criminal Code and the AUCL do not recognize the absence of having a compliance program as a criminal or administrative offense.
5.3 Elements of compliance program
(a) Legal framework
The Criminal Code and the AUCL do not recognize or regulate the elements of a compliance program.
(b) Recommended practice
the offense of bribery, it is recommended that legal entities adopt a robust compliance program to prevent internal corruption and bribery. It is also useful to draw a clear line between the legal entities’ liability and the employees’ individual liability in
6. Regulator with jurisdiction to prosecute corruption
The Public Security Bureau (PSB) has jurisdiction to investigate bribery related to non-public officials. The Procuratorate has jurisdiction to investigate and prosecute bribery related to public officials or private bribery. The Administration for Industry and Commerce has the power to investigate and sanction companies for private bribery.
For further information, please contact:
Mini vandePol, Global Head of Compliance & Investigations Group, Baker & McKenzie
mini.vandepol@bakermckenzie.com
