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Global

investigations:
reading the
signals
As the global economy recovers, how
will regulators respond? Experts provide
perspectives on trends in regulatory and
corporate investigations
Front Cover: dbimages / Alamy. Inside Front: Simon Belcher / Alamy
James Killick
Partner, Competition,

Global trends
White & Case, Brussels
E jkillick@whitecase.com

in regulation
In the wake of the financial crisis, there has
been a sustained rise in the number and variety Darryl Lew
of investigations and enforcement actions taken Partner, White Collar,
White & Case, Washington, DC
by regulatory authorities globally. Multinational E dlew@whitecase.com

corporations and financial institutions are now


more likely than ever before to find themselves
subject to cross-border investigations conducted
in parallel by multiple authorities

R
egulatory authorities around the world are continuing to investigate and Michel Beaussier
prosecute business conduct aggressively and to impose record-setting Partner, White Collar,
White & Case, Paris
penalties in the process. There is no sign that this trend will abate. Quite E mbeaussier@whitecase.com
the contrary. And, while US authorities remain in the vanguard of such initiatives,
now more than ever non-US authorities can be expected not only to cooperate
with and facilitate US enforcement initiatives, but also to pursue their own
criminal or regulatory investigations and to exact their own significant penalties.
This trend of global scrutiny toward and enforcement against certain business
conduct is facilitated by the broad jurisdiction of anticorruption laws such as
the US Foreign Corrupt Practices Act and the UK Bribery Act as well as various
antitrust, sanctions and anti-money laundering regimes. Enforcement authorities,
particularly in the United States, have used such laws and accompanying legal
doctrines to prosecute corporate and individual misconduct in far-flung markets
Nicole Erb
that may have little apparent nexus, for example, to the United States. Partner, International Trade,
For this report, we invited a number of experts to provide different perspectives White & Case, Washington, DC
on this changing regulatory landscape and what it means for business. The E nerb@whitecase.com

articles consider what the current challenges are, how things might develop in the
future, and what the implications are for financial institutions, corporates and their
officers, directors and employees around the globe. We also look at the US and EU
sanctions levied as a result of the crisis in Ukraine.
We hope that you enjoy this report, and we welcome the opportunity to discuss
these subjects with you in greater depth.

Charles Balmain
Partner, Commercial Litigation,
White & Case, London
E cbalmain@whitecase.com

Global investigations: reading the signals 1


In no
uncertain terms
Regulatory uncertainty rather than
complexity is the biggest challenge facing
general counsel of multinationals

Franois Garnier
Chief Counsel International Platform, Pfizer

U
ncertainty can be the the US Foreign Corrupt Practices company, but these challenges
biggest regulatory Act and the UK Bribery Acthave are manageableand they pale in
challenge facing the general extraterritorial jurisdiction and thus comparison to uncertainty.
counsel of multinational companies. apply to virtually every company Emerging markets pose the
Give me enough certaintyclear trading internationally. greatest challenges. Regulations in
rules and guidanceand I can We have to ensure that were these countries can be ambiguous,
structure my operations for success. doing the right things at the regional, and guidance from rule makers
But when regulations are unclear or national and global levels. And we $216bn can be vague or non existent. Even
unstable, it can be almost impossible have to be as vigilant with partners Estimate of
worse, regulations may change
to develop reliable compliance or as we are with ourselvesvendors regulatory frequently and unexpectedly in these
business strategies. and providers must undergo the costs imposed countries, leaving companies unsure
on US
As the Chief Counsel International same checks and controls that we how long their compliance strategies
economy by
Platform at Pfizer, Im familiar with apply internally, and they must the federal will be effective or relevant.
the challenges posed by regulatory understand that Pfizer has zero government Separation of powers and due
complexity. The pharmaceutical tolerance for non compliance. in 2012 process are critical in the regulatory
industry is highly regulated, and Its possible to overdo it. Excessive context, as elsewhere. Authorities
Source:
Pfizer has operations in every major controls can slow business down American have the power to grant market
trading country around the globe. and stifle innovation. It is important Action Forum access and regulate operations, but
Each of these countries has its to find the right balance. But in many jurisdictions they also act as
own regulatory framework that can uncertainty is a bigger problem still. police and judge. I would like to see
include complex and multi layered As long as I know what is required a better balance of power between
systems of controls. Regions within of me, I can deal with even the the regulator and industry, but in
countries may also be subject to most stringent requirements. It many cases this will depend on the
different regulations. And antitrust may be costly, introducing complex local judicial authority.
and anticorruption lawssuch as and excessive bureaucracy to the Theres reason to believe that
regulatory activity will increase
across industries and countries in the
foreseeable future. If that happens,

27.4bn regulations will play an increasing


role in setting competitive conditions
Estimate of and determining opportunities for
cost to UK growth. In such an environment, the
Regulatory uncertainty not only economy of
top 100
need for clarity and consistency is
all the more important. Regulatory
makes it difficult for companies to EU laws
uncertainty not only makes it difficult

do business, it reduces their ability Source: for companies to do business, it


Open Europe reduces their ability to comply. Thats

to comply a loss for businesses, regulators and


society in general.

2 White & Case


Scoring a common
goal: cooperation
between agencies
Antitrust agencies are waking up to the idea that
fighting bribery is essential to the maintenance
of competitive markets

David Vascott
Editor, Global Investigations Review

I
t might seem obvious that such, the event is a bellwether for Office and the Competition Markets
corruption hurts competition. developments in the field. Authority detailing mutual cooperation
Yet historically, anticorruption The root of the problem is the in criminal cartel proceedings may
and antitrust agencies in most fact that agencies often do not be a sign of things to come. Greater
countries rarely work together. That share information, even when doing cooperationfrom gathering evidence
may be about to change. so would enable them to achieve and sharing information to extending
Discussions at the Organisation common objectives. Most antitrust cartel leniency agreements to cover
for Economic Co-operation and agencies carry out dawn raids to corruption issuesmay be both
Development (OECD) 2014 Forum investigate antitrust violations. desirable and achievable for authorities.
on Competition suggest that Information discovered during This could have significant
antitrust agencies increasingly their investigations could often be implications for business. If
recognize that they need to play evidence of corruption, but antitrust competition enforcers carrying out a
their part in eradicating corruption. investigators may not be trained to dawn raid are also on the lookout for
Several speakers called for greater recognize it as such. In addition, it may potential corruption issues in the target
cooperation with their anticorruption be difficult to share findings across company, that companys counsel may
counterpartsemphasizing, for agencies for both institutional reasons find they have an entirely new front to
example, that it is impossible to and other factors such as different defendone that potentially ramifies
maintain competitive markets unless standards of evidence gathering. far beyond the immediate antitrust
bribery laws are enforced. It is unlikely that we will see issue. With the extraterritorial reach
Obiageli Ezekwesili, co-founder mergers between antitrust and of the US Foreign Corrupt Practices
of Transparency International, an anticorruption agencies due to the Act, the UK Bribery Act and other
anticorruption organization, summed up institutional and legal obstacles far-reaching national bribery laws, an
the emerging consensus: Everything that would need to be overcome. investigation launched on the back of
that corruption likes, competition However, the recent signing of a a domestic antitrust issue could quite
dislikes, she said. Corruption wants to memorandum of understanding foreseeably open up a Pandoras box of
do things in a clandestine environment, between the UKs Serious Fraud cross-border, anticorruption probes.
butthe more transparency, the
greater the competition. Corruption
does not care for value for money, but
competition is about value for money.
Corruption does not care about the
interests of the greater majority, but
competition cares about the interests
of the greater majority. The root of the problem is the fact that
The Forum, which is held
every year at the OECDs Paris
agencies often do not share information,
headquarters, convenes national even when doing so would enable them
representatives from competition
agencies around the world. As to achieve common objectives

Global investigations: reading the signals 3


The inexorable
rise of EU fines
Tough EU financial penalties alone may
not be acting as an effective deterrent to
anticompetitive behavior, and are instead
having other unwelcome impacts

4 White & Case


EU authorities use the size
of fines to show they are
doing a good job
James Killick, Partner, White & Case, Brussels

T
he European Union last Motta, now chief economist at race to the top in terms of EU
year handed down record the EUs Directorate-General for fines, without much reflection
fines for anticompetitive Competition, concluded that even on whether this alone, without
behavior totalling 1.9 billion or $2 very large corporate fines may not reflecting companies specific
billion. Thats more than double the be able to achieve deterrence. compliance systems, really serves
fines imposed by antitrust authorities Indeed, cartels continue to form, as a deterrent, he says. There may
in the United States and ten times and each year the EU launches even be an international trend to
more than those in China. a number of new investigations, impose giant fines on corporations
In the last five years, the EU has ultimately imposing large fines on a as a sort of competition among
imposed antitrust fines of more number of companies. enforcement agencies.
than 8.6 billion in ever-increasing EU authorities have a tendency to That said, in the United States,
amounts and has the ability to levy use the size of fines as a benchmark which has a long history of antitrust
fines of up to ten per cent of a to show they are doing a good job, enforcement, fines are much lower
companysor its groupsannual says James Killick, a competition law due to more sophisticated types
global turnover. partner at White & Case in Brussels. of punishment, involving fines
This year looks set to be another The underlying idea is that the and criminal sanctions against
bumper year with ongoing probes into best way to get people to comply is the individuals guilty of violations,
the auto parts industry, among others. to fine their companies increasing according to Dr Kasten.
The scope and targeting of the EUs amounts of money. On top of Individuals who fix prices or
fining policy is also being expanded. allocate markets as a way of
This year, for the first time, a private ensuring business outcomes, for
equity fund was fined just over 37 example, which may not actually

8.6bn
million by virtue of its controlling be in the companys interest, are
stake of a suspected cartelist in the subject to criminal sanctions under
power cables case, without there national law in the United States,
being any evidence that it was aware the UK and several other EU
Amount of EU antitrust fines in
of any infringement. member states. A fine of double
last five years
In what is a clear warning to a managers annual earnings or
private equity firms, European Source: possible incarceration would act as a
Commissioner for Competition European Commission deterrent, he says.
Joaqun Almunia highlighted Large EU fines on companies also
the responsibility of groups of impact economic growth. Research
companies up to the highest level by Oxford Economics shows that
of the corporate structure to make that, each successive competition the most likely resulting scenario is
sure that they fully comply with commissioner wants to show the company will reduce the amount
competition rules. they are more successful than the it spends on investment. This will
These responsibilities are the same previous one, so there is a tendency generally mean fewer jobs are
for investment companies who to increase fines. created within that company.
should take a careful look at the But the outcome is that Firms will also purchase fewer
compliance culture of the companies competition fines are far higher and inputs from their suppliers who, in
they invest in, he said. disproportionate compared with turn, will employ fewer people. And
In response to criticism, EU chiefs those imposed for other regulatory these suppliers will themselves
continually insist their regime of breaches, such as health & safety, purchase less from their own
Tim Graham / Getty Images

tough financial penalties acts as a violation of consumer protection suppliers, and so on, with additional
deterrent. The bigger the fine, the rules or major environmental effects on potential employment and
bigger the deterrent, the story goes. damage, for example. household spending.
But not everyone is convinced. Boris Kasten, head of competition Therefore, a large fine on cartel
In a 2013 paper entitled Antitrust law at global elevator and escalator participants will have a knock-on
fines in times of crisis, Massimo group Schindler, agrees. Its a effect across the economy as a

Global investigations: reading the signals 5


the EU Commission and courts
Reading the signals have begun to argue that parent
companies should be liable
Antitrust compliance measures precisely because of parental
crime prevention programs, as
With competitors In trade association meetings
their existence showed influence
Dont discuss prices or sales Obey the same rules on group companies. Instead,
Dont discuss rebates, discounts or If others break the rules, make an the emphasis should be on the
other pricing terms objection and leave the meeting individual if you can show they
Dont discuss production capacities, have been properly trained in
investments or stocks With customers and suppliers compliance, but still choose to
Dont terminate supply or distribution break the rules.
Dont discuss or engage in concerted
action contracts without first checking with Commercial litigation partner
the legal department Charles Balmain adds: I think
Dont discuss customers or suppliers
Dont force customers to maintain the EU should recognize when
Dont discuss marketing resale prices or respect set margins companies have really done a
Dont exchange sensitive business data proper job in trying to get their
Dont restrict where and to whom your
customers may sell workforce to respect the rules.
Always be prudent
There should be a lot more focus
Dont require a customer not to buy
on the individual who has done
competing goods
something wrong. There is now
criminal law at a national level,
which is a way of making the
whole, also impacting firms and full review by the court. The court punishment fit the crime when it is
workers who were not involved in in Luxembourg is just engaged in a the individual who was at fault.
the original offense. plausibility check. The appointment of the new
According to Oxford Economics, In the current environment, it is even European Commission president
a 250 million fine on a European more critical for companies to embed and team of commissioners offers
manufacturing firm could result in a robust compliance program. an opportunity for reform. As Dr
potential employment losses across Dr Kasten recommends the Kasten concludes: Hope rests with
a national economy of more than Antitrust Compliance Toolkit compiled the new Commission taking notice
2,000 jobs. by the International Chamber of of what research clearly shows
However, despite imposing such Commerce, which, if implemented, the present system of giant
high fines, the EU system does not would show a company or corporate fines while disregarding
afford companies the usual criminal corporations strong commitment to compliance within organizations
due process guarantees. implementing a robust and credible and the guilt of individual
The same officials act as compliance program. perpetrators is not achieving the
prosecutor, investigator, judge and Before imposing a heavy fine, he desired level of deterrence.
ultimately jury, deciding whether urges the EU to take into account
youre guilty and how much you whether a company has introduced
should be punished. Im not saying an appropriate compliance program,
that the officials dont try to do arguing that such a compliance
their job honorably, but they have defense should allow for smarter
too many inconsistent roles, says and more rational, balanced
Mr Killick. And the final decision sanctions.
is taken by a political body that is Trade associations and
sensitive about whether the press consultancies should also consider The EU should
portray them as tough and effective. compliance programs to ensure
Dr Kasten adds: Separation of their clients stay on the right side of recognize when
powers is lacking, and we know antitrust rules. Swiss consultancy
from history that this tends to lead firm AC Treuhand is currently companies have
done a proper
to flawed decisions. This is not to battling against a fine imposed on
say that the European Commission it by the Commission for facilitating
deliberately makes incorrect decisions,
but due to human nature, you cannot
a cartel in the chemical industry
despite not being active in the job in trying
rule out prosecutorial bias in the
Commissions decisions. There are no
market itself.
If an organization has engaged to get their
appropriate checks and balances.
In addition, the appeal process
in compliance to the maximum
degree, then it makes little sense
workforce to
before the EU Court of Justice in
Luxembourg is inadequate, he says.
in terms of general prevention to
still fine the company but take no
respect the rules
It is clearly flawed because there action against guilty individuals, Charles Balmain, Partner,
is no hearing of witnesses and no Dr Kasten says. Paradoxically, White & Case, London

6 White & Case


The long arm of the law:
exporting US justice
As individual jail terms and corporate fines continue
to increase, many companies and executives
outside the United States are left wondering:
How are US laws able to reach so far outside
US borders? The United States has some
fundamental legal principles that can allow
its enforcement authorities to apply its
laws well beyond US borders. White &
Cases White Collar team explains

I
n recent years, the press has mitigate those risks. For
been full of reports of non-US example, US regulatory
companies being investigated and enforcement officials
and, at times, prosecuted by often take the position that the
enforcement authorities in the United mere transit of emails through
States for a host of alleged violations the United States - sent from one
of US law. Individuals, too, have been person outside the United States to
charged, extradited and gone to jail
in the United States, all without ever
another outside the United States
- is enough to reach the conduct
US
citizen
52% Dual-
national 5%
setting foot in the United States
during the alleged misconduct.
required under US criminal law.
Similarly, US authorities may
Non-
national 39% Unknown 4%
US enforcement authorities assert that transit of money
are aggressively interpreting through the United States on its
and applying US criminal laws to way from one non-US location to
companies and individuals outside another non-US location is enough Reading the signals
the United States, including to create US criminal jurisdiction.
for conduct with little apparent This application of US criminal law The reach of US law
nexus with the United States. can result in significant fines and Any communication or movement of funds
Exposure to potential violations of penalties, including imprisonment. in the US may be sufficient to create
US law can arise from a number Given the potentially long reach US jurisdiction
of circumstances, and it is more of US law, non-US companies
critical than ever to identify and and individuals should manage Money transiting through the US may be
their legal risk in advance of sufficient to create jurisdiction
any potential issues. One of
US law may apply to the conduct of US
the best ways to address these citizens outside of the US. See also US
risks is regularly undertaking risk sanctions programs on page 16 for further
assessments to determine where definition of a US person
there may be exposure to US
laws. Another is to create and A parent company can potentially be liable for
implement appropriate compliance the acts of its subsidiary if the latter acted on
US enforcement policies and procedures to conduct
its behalf
transactions in accordance with all
authorities know applicable laws. Once appropriate
US law may apply to acts outside the US of
a non-US agent of a company or individual
no borders in their policies and procedures are in
place, relevant personnel should
subject to US jurisdiction

pursuit of illegally be trained on a regular basis, A coconspirator may be liable for the acts of
its conspirator
including on changes in the law and
obtained funds emerging risk areas.

Global investigations: reading the signals 7


How US laws
can apply
MEANS OR INSTRUMENTALITY coconspirator. If the United States
$2,210m
Energy
OF INTERSTATE COMMERCE can establish jurisdiction over a
single conspirator, it may have
Many US lawsincluding the jurisdiction over all conspirators,
Foreign Corrupt Practices Act whether companies or individuals,
(FCPA) in certain circumstances wherever they may be found.
and various antifraud statutesmay In certain circumstances, a
establish jurisdiction over a crime conspirator need not have participated
whenever it involves the use of in or even known about the underlying
any means or instrumentality of criminal offense committed by a
interstate or foreign commerce. coconspirator to be liable. Moreover,
The term is broadly defined by unlike conspiracy law in some other
US authorities and may cover any countries, under US criminal law,
communication or movement a company can conspire with its
that crosses state or international employees, so corporate crime in
borders, including wire transfers, the United States may result in a
emails, phone calls, mail and prosecutable conspiracy.
travel. Given the reach of US
commerce, from free email servers AGENT LIABILITY
to correspondent banks that
clear US dollars for non-US based A company or an individual also
banks, such a broad definition can may be prosecuted under some US
significantly increase the reach of laws, if the company or individual is
US law. Furthermore, according found to have acted as the agent
to US authorities, a defendant of a company or individual that falls
company or individual need not use
the means or instrumentality of
under US jurisdiction. For example,
a Japanese trading company was $882.74m
interstate commerce themselves recently prosecuted for violating Consulting
it may be enough for them to the FCPAs anti-bribery provisions
have caused the use, such as as the agent of a US company,
an instruction being sent to one even though the trading company
person, who then forwards it to did not act within the United
another, through email servers in States. A company potentially
the United States. also may be liable for third parties
actions if those third parties acted
CONSPIRACY on the companys behalf and for
the companys benefit. Similarly,
Conspiracy law may subject non-
US companies or individuals who
under the principle of respondeat
superior, a company employee
Transit of money through
have not committed an act within who is acting within the scope the United States on the way
the United States to US criminal of his or her employment, and
jurisdiction. Under long established for the benefit of the company, from one non-US location
principles of criminal liability, a
conspirator may be liable for a
is considered an agent of the
company. If they commit a crime
to another non-US location
coconspirators acts, as well as
for any reasonably foreseeable
connected to their employment, the
company may be criminally liable
may be enough to create US
offenses committed by a as well. criminal jurisdiction

8 White & Case


PIERCING THE VEIL FOLLOWING THE MONEY: MONEY money laundering laws to applythe
LAUNDERING AND SANCTIONS dollars being cleared through a US
A company may be liable for anothers correspondent bank, for example
conduct under the corporate US law makes it a criminal offense and there are dollar-denominated
liability principles of alter ego or to engage in or attempt to engage in a transactions that have no such tie, US
piercing the veil. For example, a financial transaction involving funds that enforcement authorities increasingly
parent company may be liable for its are known to be the proceeds of certain operate on the assumption (unless
subsidiarys acts if it can be shown unlawful activities, or to engage in a convinced otherwise) that they
that the subsidiary was acting as the financial transaction that provides funds have jurisdiction for such offenses
alter egoor under the control for the commission of a crime (such as whenever a suspect transaction is
ofthe parent. If a subsidiary outside terrorist financing or sending a bribe denominated in US dollars.
the United States is determined to payment). This offense is called money The jurisdiction potentially created by
be an alter ego of the parent, US laundering, and non-US corporations clearing US dollars through a US bank
authorities may be able to pierce and foreign nationals may be subject can also significantly extend the reach
the veil of legal separation between to prosecution under US federal anti- of US sanctions laws. Sanctions can
the companies, and, if so, the foreign money laundering statutes if they are prohibit or restrict doing business with
companys actions can be treated involved in the transfer or attempted countries (such as Cuba, Sudan, and
as if they were committed by the transfer of illegally obtained funds or Iran), individuals or companies referred
US company. Once an alter ego funds used to further criminal activity. to as specially designated nationals
relationship is shown to exist, either Money laundering offenses can be as or SDNs, which are blocked
in general or in a specific instance, the serious as the underlying offenses they parties subject to a US asset freeze,
subsidiarys conduct and knowledge promote. Each financial transaction can and entities placed on the Sectoral
may be attributed to the parent. be considered a separate offense and Sanctions Identifications List (SSI
is punishable by substantial fines and List), as in the case of the Ukraine-
possible imprisonment. Additionally, related sectoral sanctions. Sanctions
funds and other property involved in regimes typically cover all US persons,
FCPA penalty by sector money laundering may be frozen or but what qualifies as a US person may
seized by US enforcement authorities, change from one sanctions regime to
Source: DOJ, SEC, FBI, Raconteur
or subject to forfeiture. the next, as each set of sanctions varies
In prosecuting money laundering slightly. Generally, it includes any US
$50.8m offenses, the US Department of Justice citizen or permanent resident and any
takes the position that jurisdiction US company, wherever they are in the
Agriculture exists over a financial transaction if world, as well as any person physically
the laundering is completed by a US in the United States. In addition, in
$148.1m citizen anywhere in the world, or by a certain instances US sanctions may
foreign national or non-US corporation reach non-US subsidiaries of US
Infrastructure
if the criminal conduct occurs in part in companies. This may mean that the
the United Stateseven if the foreign clearing of dollars through a US bank
individual or company never themselves may be enough to create US jurisdiction
$225.5m took an action in the United States, or over subject transactions.
intended for an act to occur there. The location of funds outside the
Manufacturing This broad jurisdiction can greatly United States does not necessarily
expand the reach of the US money mean they are beyond the reach of
laundering statutes. For example, US enforcement authorities. Under
US corporations and individuals US law, the proceeds of criminal
potentially may be prosecuted for offensesincluding some offenses

$231.2m money laundering offenses involving


financial transactions that occur
that occur entirely overseasmay
be subject to forfeiture and may be
Health wholly outside the United States. US frozen and eventually seized by US
courts have held that the financial authorities through forfeiture actions
transaction requirement is satisfied initiated in US courts. With a judgment
$313.2m for a wholly foreign transaction if of forfeiture issued by a US court in
the defendants conduct affected hand, US authorities may be able
Telecommunication foreign commerce with the US to freeze not only funds located in
such as in antitrust matters. Virtually US bank accounts, but also funds
every dollar denominated transaction deposited in foreign bank accounts
$457.09m potentially implicates US commerce in view of the increasing cooperation
Defense & Aero with other nations. While there does among and between enforcement
need to be an actual US nexus for authorities in different countries.

Global investigations: reading the signals 9


Global investigations
legislation & enforcement
Anticorruption legislation

National legislation with global coverage (FCPA, UK Bribery Act) Recent national anticorruption legislation No data

OECD convention signatories UNCAC states parties UNCAC not signed or ratified UNCAC signatories

Source: 2014 Business Anti-Corruption Portal

Impact of anticorruption regulations Corporate-cartel fines imposed


on company policies & procedures by the US Department of Justice
No impact Minor impact Major impact Number (left) Amount, US$m (right)

Increased enforcement of FCPA


125 1,000
18% 30% 53%
Bribery Act 2010 100 800

14% 36% 49%


75 600
Local/other regulations
13% 42% 45% 50 400

Dodd-Frank Act
31% 41% 28% 25 200

FACTA
0 0
34% 39% 27%
1980 1990 2000 2011

Source: State of Anti-Corruption compliance survey, Dow Jones, 2013 Source: US Department of Justice: The Economist

10 White & Case


Total US and non-US bribery enforcement Foreign bribery enforcement actions
actions by industry 19772013 by country
19772012 2013ongoing
United States

0 20 40 60 80 100 120
316
United Kingdom

Extractive
113 46
Industries 127 Germany
20
113
Manufacturer Denmark
Service Provider 115
15
88 South Korea
Aerospace
Defence Security 95
11
Netherlands
80 11
Health Care
83 Source: TRACE International: Global Enforcement Report 2013

56
Engineering
Construction
FSA and FCA fines
63
*in millions
57 474
Transportation
Communications 60

34
311
Financial Service
42

28
Technology
Software 35
93
69
24 25 37
20 20 16 8
Agriculture Food
26
2004 2005 2006 2007 2008 2009 2010 2011 2012 2013

Source: Bloomberg FCA, FSA


8
Entertainment
Film 16

Criminal anti-trust fines imposed by


8 EU Commission* vs. US Department of Justice
Retail
11
*not adjusted for Court judgments EU US

6
0m
Real Estate ,70
8 $3

6 0m 9m
,42 ,42
Advertising $2 $2
7

5 0m 0m
,10 ,10
Non-Profit m $1 $1
92
7
55
m $7 24
m
$5 $5
3
Pharmaceutical
7 2010 2011 2012 2013

Source: 2014 Business Anti-Corruption Portal Source: EC / DOJ / Raconteur

Global investigations: reading the signals 11


Challenging sanctions
designations: politics
and the judiciary collide
Given the potential impact of political sanctions, it makes
sense to ask if there is anything designees can do to
challenge the decision to impose sanctions on them.
White & Cases EU and US sanctions teams
provide some details about the
potential for challenging an asset
freeze designation in Europe
and the United States

United Nations
Security Council
(UNSC) hold
meeting, New York

12 White & Case


Andrew Burton/Getty Images

Global investigations: reading the signals 13


E U and US restrictions The EU has jurisdiction in the
imposed in response to following five situations: UN General
Assembly at the
the Ukraine crisis serve United Nations
headquarters
as a reminder that sanctions can
1
in New York
materialize unexpectedly and expand
rapidly. Their effects deliberately
extend beyond the designated
organizations and individuals within the EU territory
themselves, presenting challenges
for the entities with which they do
business and often for nations and
the global business community in 2
general. Given the potential impact
of political sanctions, it makes sense
on board any aircraft or vessel under EU
to ask if there is anything designees Member State jurisdiction
can do to challenge the decision to
impose sanctions on them.
In both Europe and the United
States, judicial recourse is
available to enable organizations
3
and individuals to challenge their
designations, but the processes nationals of EU Member States (even if
differ depending on which body outside the EU)
issued the sanctions. Recent
cases in Europe and to a limited
extent, the United States, suggest
that it is possible to mount a 4
successful challenge. Its never
easy, particularly because the
processes for designating sanctions entities incorporated or constituted
under the law of a Member State
targets is conducted in secret, often
EMMANUEL DUNAND/AFP/GettyImages

using classified information that


is not publicly divulged even after
sanctions have been issued. Thus it
can be difficult even to determine
5
the basis for a designation.
However, some designees have
entities in respect of any business done
had success getting their status in whole or in part within the EU
changed in Europe, and US courts
have recently issued limited but
notable decisions that may open
the door to successful challenges. the prohibited party of available legal owned Commercial Bank of Syria
Even successful challenges can remedies (i.e., either request that and its subsidiary Syrian Lebanese 1. See Judgment
in Case
take years to play out, but the the Council reconsiders the listing Commercial Bank) to circumvent EU T-293/12, Syria
cost of an asset freeze can be or challenge the sanctions before sanctions by facilitating transactions International
extraordinary, and many designees the General Court of the EU). While for their (non-listed) account holders.1 Islamic Bank
PJSC v. Council
will consider mounting a challenge there may be important security A series of judgments arising from (June 11, 2014).
despite the difficulties. concerns that warrant these secret challenges to the EU listing of Mr
and swift practices, fundamental Yassin Abdullah Kadi listed by the 2. See Judgment
in Joined Cases
Challenging designations due process rights can also weigh UN Sanctions Committee based on
C584/10 P,
Both at the UN and national (or against such sweeping government his alleged association with Osama C593/10 P and
regional) level, asset freeze listings authority. Challenges to these Bin Laden and the Al-Qaeda network C595/10 P,
are determined through the use of listings can therefore be important. inform the value of the judicial European
Commission and
secret information and without prior Lately, there has been a string of review process. The judgments in Mr Others v. Yassin
legal proceedings. In the EU, for EU court decisions annulling EU asset Kadis case have been instrumental Abdullah Kadi
example, the Member States adopt freeze listings, chiefly because listing in shaping the EU sanctions (July 18, 2013).
asset freezes in closed Council criteria were not met. For example, framework by increasing the judicial
3. Kadi v.
meetings, and the identity of listed a June 2014 court decision annulled scrutiny of Council decisions Geithner,
parties is not publicly known until the listing of Syria International imposing asset freezes. --- F. Supp. 2d
relevant Decisions and Regulations Islamic Bank for insufficient grounds, The Kadi judgments have not ----, 2012 WL
898778, at *19
are published in the Official Journal where the listing was based mainly only confirmed the availability of (D.D.C. Mar. 19,
just before entering into force. A on allegations that the bank had judicial review of EU measures 2012)
separate notice will simply inform allowed other listed banks (state- implementing UN Security Council

14 White & Case


and judicial review is available
to those who believe they have
been erroneously placed on the
Specially Designated Nationals and
Blocked Persons List (SDN List)
in connection with US economic
sanctions programs. The SDN List is
maintained by the US Department
of the Treasurys Office of Foreign
Assets Control (OFAC)the agency
that administers and enforces US
economic sanctions programs.
It is not settled whether an SDN
must first petition OFAC to be
delisted before seeking judicial
review of the designation. Whether
the SDN petitions and is denied, or
goes directly to court, a US court
will overturn OFACs decision only
if it was arbitrary, capricious, an
abuse of discretion, or otherwise not
in accordance with law.4 This is a
high standard for an SDN to meet,
particularly where the SDNs access
to OFACs supporting evidence may
be restricted by national security or
foreign policy concerns.
Judicial precedent concerning
delisting petitions remains sparse,
which is likely attributable to the
fact that few aggrieved parties
challenge OFAC or take their case
to court. However, some limited but
notable developments in challenging
OFACs designation process have
occurred in recent years through
judicial review. In 2011, for example,
a US federal court of appeals held
in Al Haramain Islamic Found., Inc.
v. US Dept of Treasury 5 that the
due process rights of the blocked
asset freeze resolutions, but also entity (a Specially Designated Global
4. Zevallos v. that the listing grounds specified Terrorist, SDGT) had been violated
Obama, CV 13-
0390 (RC), 2014 by the Council must be individual, where OFAC had failed to mitigate
WL 197864 specific and concrete. In addition, the SDGTs inability to view the
(D.D.C. Jan. 17, the ECJ confirmed that the listed classified information underpinning
2014) (quoting
5 U.S.C.
partys rights of defence will require the designation: Without disclosure
706(2)(A)). the Council to disclose the evidence of classified information, the

5. Al Haramain
supporting the listing decision to
allow the listed party to submit
However, some designated entity cannot possibly
know how to respond to OFACs
Islamic Found.,
Inc. v. U.S. observations.2 By sharp contrast, limited but notable concerns. Without knowledge
Dept of Mr Kadi was less successful in of a charge, even simple factual
Treasury, 686
F.3d 965, 983
challenging his US designation.3 developments in errors may go uncorrected despite
(9th Cir. 2011). In this case, Kadis claims were
dismissed and it was found that
challenging OFACs potentially easy, ready, and
persuasive explanations.
substantial evidence supported
OFACs continued designation of
designation Such mitigation was held to include
providing an unclassified summary
Kadi as a Specially Designated process have or giving access to classified material
Global Terrorist (SDGT). Notably, to the SDGTs lawyers possessing
Mr Kadi voluntarily dismissed his occurred in recent the requisite security clearance.
appeal of the lower courts rejection
of his OFAC petition.
years through OFAC was faulted by the Court for
waiting seven months before giving
In the United States, administrative judicial review any reason for the designation and

Global investigations: reading the signals 15


brokering a negotiated solution with
US SANCTIONS PROGRAMS frozen if they come within the OFACfor example, by agreeing
United States or the possession, to implement new compliance
US sanctions programs are custody or control of a US procedures and systems and
country-based (e.g., the Iran, person wherever located and alter their activities in exchange
Syria and North Korea programs) US persons are prohibited from for delisting. For example, Elaf
or list-based (e.g., programs having any dealings with you or Islamic Bank, a private Iraqi financial
targeting those engaged in your property. Depending on the institution listed on the Part 561
various activities such as US sanctions program at issue, list, was successfully delisted by
terrorism, narcotics trafficking the phrase US person can OFAC in May 2013 reportedly upon
and efforts to undermine include US citizens worldwide, change in behavior.8
democratic processes such green card holders, persons
as the recent Ukraine-related or entities within the United Lessons learned
sanctions). Designation as a States, US incorporated entities, As shown by the US and EU
blocked person on the SDN including their foreign branches examples given above, certain
List means that your property and in more limited cases, their challenges to asset freeze listings
and property interests must be foreign subsidiaries. have been vital in increasing judicial
scrutiny of the relevant government
authorities, or decision making
providing only one document in four persons file judicial challenges, as process, and more generally in
years that could be viewed as providing noted in Al Haramain Islamic Found., structuring the developing sanctions
some reason for the designation. v. U.S. Dept of Treasury. Instead frameworks. While the sanctions
Similarly, in KindHearts for Charitable designated persons, particularly tool is a powerful means of exerting
Humanitarian Dev., Inc. v. Geithner,6 those designated under secondary, political pressure, crucially, it must
the court found OFAC had violated extraterritorial sanctions, have afford due process to those it
procedural due process by waiting experienced greater success in affects directly.
15 months to provide the SDN with
a largely uninformative, unclassified
record of the basis of the designation.
The court agreed that one of
OFACs bases for designating
the charity was not supported by
substantial evidence. In addition, the While the sanctions tool is a powerful
means of exerting political pressure,
court found that OFAC had violated
the SDGTs Fourth Amendment right
to be free from unreasonable seizure
by failing to obtain a warrant before
crucially, it must afford due process to
issuing a blocking order freezing the
SDGTs assets.
those it affects directly
Although the court ultimately
concluded that the due process
violation was harmless and other
6. KindHearts reasons supported OFACs continued
Reading the signals
for Charitable
designation, the case demonstrates Steps to comply with sanctions and limit exposure
Humanitarian
Dev., Inc. v. that OFACs discretion, while broad,
Geithner, 647 is not unfettered. Courts in other Screen parties to transactions (e.g., customers, suppliers, distributors,
F. Supp. 2d 857, circuits have shown a willingness to transportation companies, banks) against comprehensive designated
906-08 (N.D.
test OFACs evidence in camera party lists
Ohio 2009).
but thus far there are no reported Perform due diligence with respect to ownership of parties to
7. Zevallos v. judicial decisions reversing an OFAC transactions, including beneficial ownership
Obama, CV
13-0390 (RC),
designation. By way of example, Perform heightened due diligence with respect to transactions
2014 WL in Zevallos v. Obama,7 OFACs where there are red flags or otherwise may be a reason to believe a
197864, at **9, designation of an individual as a designated entity is benefiting from a transaction that on its face does
14-16 (D.D.C. not involve one
Significant Foreign Narcotics
Jan. 17, 2014).
Trafficker was found to be supported Consider additional contractual language and other protections in
8. OFAC by substantial evidence and that contracts and transaction documents to cover current or future sanctions
announcement, due process had been followed,
July 31, 2012, Review and ensure that compliance programs are robust and
available at http:// despite finding OFACs three years of effective, with adequate procedures and training programs, and are
treasury.gov/ radio silence to be troubling. The updated to account for evolving sanctions
resource-center/ decision is currently pending before
sanctions/OFAC-
Monitor and anticipate possible future sanctions
the D.C. Circuit Court of Appeals. This
enforcement/ Seek OFAC or other authorization, wherever necessary
pages/20120731. general silence is largely attributable
aspx. to the fact that few designated

16 White & Case


Sanctions and
export controls
can hit hard and fast
International crises, most recently in Ukraine, Syria and
Iran, have resulted in largely US-led sanctions imposed
against offending statesrequiring businesses to Tom Blass
comply with trade embargoes or face penalties Editor, WorldECR

W
ith Ukraine in turmoil, close to the top of the compliance agencies intervene or a business
the United States agenda for many businesses. commissions an investigation into
government and In the last two years, US its own activities having got wind
the European Union announced agencies, including the Office of a potential violation or violations,
the designation of a number of of Foreign Assets Control, the with the intention of making
Ukrainian individuals, in response Department of Justice and the voluntary self-disclosure to the
to the tumultuous events unfolding. Securities Exchange Commission, authorities. But agencies can also
By the middle of March, Russias have imposed swingeing fines and order that a business undertake
duma had welcomed the Crimea settlement agreements on US and such an investigation as part of its
into its fold, in effect annexing the non-US banks and corporations undertakings on making a settlement.
largely Russian-speaking peninsula. for alleged sanctions and export Commissioning or submitting
Again, the West responded rapidly, control violations. to a sanctions investigation is not
targeting more individuals and,
in the case of US sanctions, the
businesses they own or control.
Though limited and uncertain
in extent, the development was
a picture-perfect illustration of
how, while other legislation can
take years or decades to draw up,
It is not only the severity of the potential
sanctions tend to be imposed with
abrupt rapidity.
fines, but also the reputational impact
Sanctions and economic of these actions that have convinced
embargoes have been used as a
tool of foreign policy for millennia, business to take sanctions seriously
though never before has it been
as complex and multilayered as
today, with companies and financial It is not only the severity of for the faint-hearted. If it is to be
institutions needing to implement the potential fines, but also the effective and convincing, it requires
compliance programs that reputational impact of these actions the utmost candidness. It is time-
accommodate tiers of sanctions, not that have convinced business consuming and often expensive.
only those imposed by the United to take sanctions seriously, and Given the ever-widening scope
Nations, but also at the regional to put in place sophisticated both of international business and
level, the EU, for example, and internal compliance procedures, sanctions, which as recent events
the unilateral sanctions regimes of training programs and screening have proven can hit hard and fast, it
individual states. mechanisms to ensure theyre is likely that an increasing number
But it is the fear of falling foul of the not conducting business with of businesses will either consider
agencies responsible for enforcing sanctioned parties. commissioning investigations into
the US Iran and Syria sanctions Investigations typically arise their own activitiesor be left with
legislation that has put the issue through one of two scenarios; either little choice but to do so.

Global investigations: reading the signals 17


High-frequency trading:
under the watchful eye
of global authorities
High-frequency trading has come under intense
scrutiny in recent months. White & Case explores
this latest global investigations trend

H
igh-frequency trading This increased regulatory and Times, October 15, 2012.) In the
(HFT), which relies legal scrutiny has put a spotlight wake of the increased media and
on high speed data on previously unknown and little- public attention triggered by Lewiss
transmission technology and understood trading practices, and incendiary assertions regarding HFT,
computer algorithms to trade demonstrates how technological US regulators (and, indeed, other
securities in fractions of a second, advancement often outstrips regulatory bodies around the world)
has come under intense scrutiny investigatory and regulatory priorities have stepped up their scrutiny of
following the publication earlier and resources. such trading practices in an effort
this year of Flash Boys: A Wall to allay concerns that HFT exploits
Street Revolt, by Michael Lewis. Shining a light on dark pools ordinary investors and increases
In Flash Boys, Lewis contends Since its emergence roughly a market instability. This increased
that high-frequency traders, decade ago, HFT has been largely regulatory focus has resulted in
along with complicit brokers and unregulated and dominated by a few proposals by the SEC (and other
stock exchanges, have essentially specialized and unknown proprietary regulators, notably in Europe) that
rigged the equities markets trading shops. At its peak in 2009, it would require high-frequency traders
by using superior technology to was estimated that HFT accounted to, among other actions, register
beat non-HFT investors orders for about 60 percent of average with regulators as broker dealers,
to market. Federal government daily trading on US stock exchanges, thereby subjecting themselves to
regulators and the plaintiffs bar, bringing in an overall profit of almost the compliance requirements and
seizing upon Lewiss allegations, US$5 billion. Although profits controls of these regulatory agencies.
have initiated investigations of and have declined in recent years, Regulators have also now trained
lawsuits against high-frequency HFT still accounts for a significant their sights on so-called dark
traders, financial institutions, percentage of average daily trading poolsunregulated, private
exchanges and alternate trading in US markets. (Declining US exchanges, often owned and
venues, known as dark pools. High-frequency Trading, New York operated by large investment banks,
where an estimated 40 percent of
US equities are now traded and
which have facilitated the growth of
HFT. (SEC Chairman Targets Dark
Pools, High-Speed Trading, Wall
Street Journal, June 6, 2014.)
As part of its call for greater
Increased regulatory and legal scrutiny transparency in the operation
of dark pools, the SEC has
has put a spotlight on previously criticized (and, in at least one

unknown and little-understood


instance, sanctioned) registered
exchanges for practices such as

trading practices co-locationthat is, allowing


HFT firms to site their computer
Paul Carberry, Partner, White & Case, servers alongside exchange
New York servers to obtain a greater speed

18 White & Case


loveguli / Getty Images

advantage. Other activities now on


the US governments radar include
allowing the use of complex order
types favored by high-frequency
traders and orchestrating payment As these investigations proceed, it becomes
for order flow programs that
incentivize brokers to divert increasingly likely that additional exchanges,
customer trades to exchanges
where high-frequency traders
financial institutions and trading outfits will find
operate. Similarly, brokerages have
been openly criticized for routing
themselves the subject of regulatory inquiry,
customer trades into exchanges if not legal enforcement action
offering the highest trading
rebates, perhaps at the expense Stuart Willey, Partner, White & Case,
London
of the customers right to best
execution of their trade.
In addition to the SEC, in the US from predatory high-frequency The European Commission has
other regulatory bodies including traders when, in fact, it had published legislative proposals,
the CFTC, FINRA, Department of deliberately courted such traders known as MiFID II, which
Justice, the FBI and the New York to its exchange, concealing their introduce closer regulation and
State Attorney Generals office, have presence from customers. As these monitoring of HFT. MiFID II will
each announced investigations into investigations proceed, it becomes impose detailed requirements
high-frequency traders and other increasingly likely that additional on trading venues and the firms
industry participants, accusing them exchanges, financial institutions and that trade on them. HFT firms
of profiting unfairly at the expense of trading outfits will find themselves engaging in proprietary trading
ordinary investors through their use the subject of regulatory inquiry, if will need to be authorized, and
of sophisticated technology, speed not legal enforcement action. the rules will impose liquidity
advantage and utilization of complex provision requirements on market
order types. A global phenomenon making agreements between
The New York State Attorney European regulators have likewise firms and venues. Trading venues
General has been the most active taken an interest in these activities. will be required to set limits on
so far, issuing subpoenas and letters Stuart Willey, a partner in the Capital the maximum number of order
of inquiry to exchanges and dark Markets group of White & Case messages that a market participant
pool operators seeking information and head of its regulatory practice can send relative to the number
concerning how these trading in London, notes: European of transactions they undertake,
venues have facilitated HFT. In regulators now have high-frequency and venues will be able to create
addition, the Attorney Generals trading firmly in their sights, and fee structures for excessive order
Office recently filed a complaint major changes in this area are being cancellation and systems use. Any
against a major European bank, implemented across Europe as firm deploying a trading algorithm
alleging that it lied to investors by regulators struggle to keep pace will in the future be required to
claiming its dark pool was safe with technological advancement. notify its regulator and relevant

Global investigations: reading the signals 19


trading venues and may be
required to produce descriptions of Reading the signals
its trading strategies and to provide
assurance as to the controls the HFTfuture regulatory scrutiny
firm has instituted to ensure its
algorithmic trading cannot spin out Monitor activity of the US private class action plaintiffs bar
of control. The proportion of equity Follow EU-wide MIFID II developments
trading that can occur in dark pools Be aware of differing regulatory regimes across Europe
without pre-trade transparency will
Be alert to the infiltration of HFT practices into non-equities markets
also be limited by new (complex)
EU-wide legislation.
While MiFID II remains a work
in progress, there are differing Wheatley, CEO of the FCA, said technology to beat another investors
views across Europe as to the that the FCA was adopting a order to market violates US lawwe
appropriate regulatory approach. three-pronged approach, namely, anticipate that such theories will
Germany has already implemented analysis-led policy work to get rules evolve and develop as regulators
regulations covering HFT such in shape with the bulk of the work uncover (and publicize) additional
that investment firms and other being absorbed in gearing the UK information concerning how HFT
market players carrying out high- up for MiFID II implementation; firms and dark pools operate.
frequency algorithmic trading day-to-day supervision of relevant I have little doubt that the
on the German market are now firms and markets applying a risk- plaintiffs bar is intently focused on
subject to supervision and must based approach; and active market the various regulatory investigations
submit documentation to BaFin, surveillance. currently under way in the US
the German regulator, in order to and elsewhere with the objective
obtain authorization to conduct Nothing to see here of further developing their
such trades. Authorities in Italy Despite increased scrutiny and understanding of these trading
have introduced a tax on high- the accusations leveled against practices so they can craft the next
frequency equity and derivative HFT, some maintain that all is well wave of claims against various
trades. On the other hand, in within US markets. For instance, market participants. The complaint
the UK the Financial Conduct Mary Jo White, chairwoman of the recently filed against a dark pool
Authority (FCA), the UK regulator, SEC, recently insisted to Congress operator, by one of its customers
has adopted what it describes as that the markets are not rigged piggybacking off of the charges
a risk-based approach. In a recent and the retail investor isvery asserted by the New York Attorney
speech at the Global Exchange well served by the current market General against the same bank, only
and Brokerage Conference, Martin structure. These sentiments echo goes to show that this is a strategy
the assertions of defenders of likely to be pursued by other
HFT who claim that their practices plaintiffs lawyers in the future, said
increase market liquidity, improve US securities litigator and White &
price-discovery, i.e., the ability Case partner Greg Little.
to trade stocks at fair value, and Despite the specter of heightened
decrease trading costs due to the regulation, further legal enforcement
narrowing of buy-sell spreads. This action and private lawsuits, HFT is
is consistent with the SECs focus likely to remain a significant feature
on enacting further reforms aimed of equities markets globally with
at ensuring greater transparency and ever-increasing influence in equity
accountability in the market rather markets across Europe, Asia and
than eliminating HFT entirely. Latin America. Over time, HFT
is also likely to infiltrate further
The future into non-equities markets as well.
The Plaintiffs bar is intently In addition to increased regulatory Ongoing advances in computer and
scrutiny, at least in the US, the data transmission technologies,
focused on the various private class action plaintiffs bar such as transmitting orders by

regulatory investigations has also zeroed in on HFT by filing a


number of lawsuits in federal court
microwave, continue to promise
traders the ability to profit from
currently under way so on behalf of investors alleging the trades executed on the basis of
actions of high-frequency trading increasingly small increments of a
they can craft the next wave firms, brokers and exchanges second. It is, therefore, inevitable

of claims against various violated US securities laws. While


the legal theories underlying
that governmental regulators, as
well as those in the media and the
market participants these class action lawsuits appear
somewhat suspectfor instance,
public at large, will demand exacting
oversight and scrutiny of the
LON/1014/TL/1014002

Greg Little, Partner, White & Case, it is not clear how a high-frequency new technologies and the trading
New York traders use of faster trading practices spawned by them.

20 White & Case


Bloomberg / Contributor
whitecase.com
In this publication, White & Case
means the international legal practice
comprising White & Case LLP, a
New York State registered limited
liability partnership, White & Case LLP,
a limited liability partnership
incorporated under English law
and all other affiliated partnerships,
companies and entities.

Prior results do not guarantee


a similar outcome.

2014 White & Case LLP

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