Since we have been discussing what may have made Bob want to have the HuffPo Op-Ed pulled, I thought I would contribute a primer on the United States' chief foreign anti-graft law; The Foreign Corrupt Practices Act (FCPA). While I am not saying that The Walt Disney Company has made illegal payments to government officials, contractors, or its state-owner partner, the Shanghai Shendi Group, I felt it would be important to discuss the consequences of such actions and the changes it could bring to the company.
Before the passage and ratification of the FCPA, American multi-national corporations had little oversight from the federal government over payments made to officials of foreign governments and no recourse for prosecution as bribes to foreign officials were not illegal. As American corporations had unrivaled control over key global industries in the wake of WW II, unscrupulous methods for obtaining business from foreign governments became a common practice. According to a congressional report from 1977, American corporations had given "$300 million to foreign government officials, politicians and political parties.”[1] Two of the biggest scandals associated with graft involved the produce and aerospace industries.
In the early seventies, the largest Central and South American banana exporting nations created a trade bloc called the Union of Banana Exporting Countries (UBEP) in an attempt to gain leverage against the North American banana exporters who grew the bananas, controlled their export to market and had lobbied hard against increasing export taxes on each box of bananas. After the government of Honduras increased export taxes on boxes of bananas from 25 cents to 50 cents, the American based exporter United Brands paid the then president of Honduras, Oswaldo López Arellano, $3 million to return the tax to 25 cents. The trade group fell into disarray and United Brands and its fellow exporters saved millions on their tax bills. At this point, the federal government could not investigate or take the company to trial for bribing a foreign official. However, it was illegal under American securities law for corporations to hide bribes from their stockholders as hiding bribes would give them an inaccurate understanding of the company’s expenses. In Honduras, news of the bribe led to the overthrow of the military government which had placed Arellano as President. [2]
The second and much more important instance of bribery involved aerospace company Lockheed. From the fifties to the seventies, the company had a well funded operation to bribe foreign governments to purchase its military and commercial products. Countries which were bribed to buy such product included Italy, Japan, The Netherlands, Saudi Arabia and West Germany. The Japan case is interesting given Japanese officials were used by Lockheed to pressure non state-owned airline All Nippon Airlines into purchasing their jets. [1] Public outrage in these countries as well as the United States led to the forced resignation of Lockheed's chairman, president and other key management in December 1976.[2]
As a result of these major scandals and lingering public outrage over the Watergate scandal, The Foreign Corrupt Practices Act was signed into law by President Jimmy Carter the following year in 1977. The FCPA defines bribery as the following
It shall be unlawful ... to make use of the mails or any means or instrumentality of interstate commerce corruptly in furtherance of an offer, payment, promise to pay, or authorization of the payment of any money, or offer, gift, promise to give, or authorization of the giving of anything of value to--
(1) any foreign official for purposes of--
(A) (i) influencing any act or decision of such foreign official in his official capacity, (ii) inducing such foreign official to do or omit to do any act in violation of the lawful duty of such official, or (iii) securing any improper advantage; or
(B) inducing such foreign official to use his influence with a foreign government or instrumentality thereof to affect or influence any act or decision of such government or instrumentality,
in order to assist such issuer in obtaining or retaining business for or with, or directing business to, any person;
(2) any foreign political party or official thereof or any candidate for foreign political office for purposes of--
(A) (i) influencing any act or decision of such party, official, or candidate in its or his official capacity, (ii) inducing such party, official, or candidate to do or omit to do an act in violation of the lawful duty of such party, official, or candidate, or (iii) securing any improper advantage; or
(B) inducing such party, official, or candidate to use its or his influence with a foreign government or instrumentality thereof to affect or influence any act or decision of such government or instrumentality.
in order to assist such issuer in obtaining or retaining business for or with, or directing business to, any person; or
(3) any person, while knowing that all or a portion of such money or thing of value will be offered, given, or promised, directly or indirectly, to any foreign official, to any foreign political party or official thereof, or to any candidate for foreign political office, for purposes of--
(A) (i) influencing any act or decision of such foreign official, political party, party official, or candidate in his or its official capacity, (ii) inducing such foreign official, political party, party official, or candidate to do or omit to do any act in violation of the lawful duty of such foreign official, political party, party official, or candidate, or (iii) securing any improper advantage; or
(B) inducing such foreign official, political party, party official, or candidate to use his or its influence with a foreign government or instrumentality thereof to affect or influence any act or decision of such government or instrumentality,
in order to assist such issuer in obtaining or retaining business for or with, or directing business to, any person.
[3]
So here we have the US Federal Government’s core definition of bribery. However, the FCPA was updated in 1998 by the International Anti-Bribery Act of 1998. The most notable change to the law was that foreign businesses operating within the United States could not bribe foreign officials. However, the other big change was the law being brought into compliance with the OECD Anti-Bribery Convention. After the passage of the FCPA, other rich industrialized democracies, who make up the OECD, began to work on a framework for a universal anti-bribery policy. This will be more important in a little bit, but for now the Anti-Bribery Convention laid out a universal definition for what constitutes a “foreign official".
- “foreign public official” means any person holding a legislative, administrative or judicial office of a foreign country, whether appointed or elected; any person exercising a public function for a foreign country, including for a public agency or public enterprise; and any official or agent of a public international organisation
[4]
How does the OECD define public enterprise?
A “public enterprise” is any enterprise, regardless of its legal form, over which a government, or governments, may, directly or indirectly, exercise a dominant influence. This is deemed to be the case, inter alia, when the government or governments hold the majority of the enterprise‟s subscribed capital, control the majority of votes attaching to shares issued by the enterprise or can appoint a majority of the members of the enterprise‟s administrative or managerial body or supervisory board.
[4]
So employees of a public enterprise are considered by the OECD convention, which FCPA is compliant with, to be foreign officials. For further clarification, from the Department of Justice’s guide to the FCPA.
When a foreign government is organized in a fashion similar to the U.S. system, what constitutes a government department or agency is typically clear (e.g., a ministry of energy, national security agency, or transportation authority). However, governments can be organized in very different ways. Many operate through state-owned and state-controlled entities, particularly in such areas as aerospace and defense manufacturing, banking and finance, healthcare and life sciences, energy and extractive industries, telecommunications, and transportation. By including officers or employees of agencies and instrumentalities within the definition of “foreign official,” the FCPA accounts for this variability.
In China, everything is owned by or to some degree controlled by the state. For foreign multinational corporations, like Disney, to operate in PRC, they must enter a joint-venture with a local state-owned corporation, like SHENDI. So if these multinational companies are doing business with state-owned corporations in a country with a graft problem, it appears it would be incredibly difficult for a multinational corporation like a Disney or a General Motors to have tripped over the Foreign Corrupt Practices Act in their day to day operations. While that last statement may make it seem as though I am accusing those specific companies of bribery, I am not, it just seems implausible that a someone, either an official directly from the state or an employee from a state-owned enterprise, would not come along and demand to skim a little bit of money off the top.
However we are not talking solely about American corporations because the rules that govern bribery of foreign officials have been aligned in most of the industrialized world. Recall the OECD Anti-Bribery Convention I referred to for the definition of “public enterprise”? Every standing member of the OECD has signed that treaty and has implemented legislation in their respective countries to enforce those standards. [6] (China considers itself an “observer’ to this pact)
This brings us to the significance of the graft problem in the People’s Republic. The issue of graft tends to come up in the infamous case of the coked-out son of a senior party official who crashed a Ferrari. [7] While embarrassing given that party officials salaries on paper are quite low, much bigger problems abound. From the Central Government’s perspective there are two main issues. First, the Party sees corruption as an issue that offers domestic opponents/dissidents a platform which could give rise to strong movement against their single party rule of the country. To prevent a situation like this from getting out of hand, the party must prove to the people that it deserves to have complete control and its rule will serve the public most effectively. This is why Xi Jinping’s anti-graft campaign is so ruthless. The state isn’t just addressing a problem that is out of hand, but rather purging all the weeds to prevent an infestation. The other major issue is foreign investment into the country. If you have been following world news for the past couple years, concerns over a slowdown of economic growth in China has been one of the constant stories. China has had almost 40 years of economic growth at a rate that has never been seen before in history, but there has been a slow down over the past couple years. All economies need to have market corrections or recessions to preserve the health of the economy for the long term. In these circumstance, especially given how over extended the Central Government is, foreign investment is a very important lifeline and would be that more vital if the economy were to enter a recession. The opportunity in China for foreign corporations to do well, provided they understand the country and its people see Disney CEO Fumbles Entry To China, is so tremendous it is hard to resist. No matter how large that opportunity may be, corporations do not want to do business in a country where the risk of violating the law in their home countries is high. Those nations anti-bribery laws are very strong and these companies cannot shrug their shoulders and say graft is the price of doing business. Execs love money, but they certainly don’t want to go to jail either.
Now lets talk about the single largest foreign investment into the People’s Republic of China of all time, Shanghai Disneyland.
So how would this effect Disney?
Let's play a name association game. If I say sweatshops, you say....
Nike?
Apple?
Both companies are industry leaders who took the brunt of the public outrage over working conditions that plague their entire industries because they were highlighted by the media since they were prominent targets. They have become the so called posterchilds of sweatshop labour.
IF The Walt Disney Company or Shanghai International Theme Park Company, SDR’s legal name, or the resort’s Disney controlled management company have violated the FCPA or investigate by the DOJ and SEC, the two departments who administer FCPA, or called to a congressional hearing, its actions will have tremendous consequences.
- Iger and Company would be gone.
- Central Government would begin an aggressive purge of the state-owned corporations involved with SDR.
- Most importantly, Disney is permanently associated with bribery, much in the way Nike and Apple have been with sweatshop labor. This leads to a permanent scar on the company and the BRAND from which they may never fully recover from.
Does that sound really terrible? You betcha! Yet at the same time, I am very optimistic because a lot of good can come from it. For China, this may help them move past their graft culture making the business climate there much better for entrepreneurs and executives from home and abroad. For Disney, and by extension us fans, may get what we have wanted for so long; a good scrubbing of the company and new leadership that can take the company to infinity and beyond as the saying goes. The brouhaha over Mrs. Bob Iger’s role in the removal of the HuffPo article Disney CEO Fumbles Entry To China while serving as the head of USC’s Annenberg School of Journalism has given us our best ever shot at Iger. With the potential of graft at Shanghai Disney Resort, we can get rid of the whole d a m n bunch too. Let’s not let a good opportunity go to waste!
Sources:
[1]
http://www.justice.gov/criminal/fraud/fcpa/history/1977/houseprt-95-640.pdf
[2]
http://www.ghi-dc.org/files/publications/bulletin/bu053/bu53_007.pdf
[3]Foreign Corrupt Practices Act
http://www.justice.gov/criminal/fraud/fcpa/docs/fcpa-english.pdf
[4]OECD Anti-Bribery Convention
http://www.oecd.org/daf/anti-bribery/ConvCombatBribery_ENG.pdf
[5]Department of Justice Guide to The Foreign Corrupt Practices Act
http://www.justice.gov/criminal/fraud/fcpa/guidance/guide.pdf
[6]OECD Anti-Bribery Convention Ratification Status
http://www.oecd.org/daf/anti-bribery/WGBRatificationStatus.pdf
[7]
http://www.theguardian.com/world/2012/sep/03/china-scandal-fatal-ferrari-crash