![U.S. Department of Justice Seal](seal.gif) |
DEPARTMENT OF JUSTICE
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AMERICAN BAR ASSOCIATION
SECTION OF ANTITRUST LAW
49th ANNUAL SPRING MEETING
CRIMINAL PRACTICE AND PROCEDURE COMMITTEE
Status Report: |
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Criminal Fines |
Status Report: |
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International Cartel Enforcement |
Status Report: |
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Corporate Leniency Program |
James M. Griffin
Deputy Assistant Attorney General
Antitrust Division
U.S. Department of Justice
Presented at
J.W. Marriott Hotel
Washington, D.C.
March 28, 2001
STATUS REPORT:
CRIMINAL FINES
Since the beginning of FY 1997, the Antitrust Division of the U.S. Department of Justice
("Division") has obtained over $1.7 billion dollars in criminal fines -- many multiples higher than
the sum total of all criminal fines imposed for violations of the Sherman Antitrust Act dating back
to 1890. Well over 90 percent of these fines were imposed in connection with the prosecution of
international cartel activity.
- Volume Of Affected Commerce. International cartels affect very large volumes of
commerce. In some matters, the volume of commerce affected by the suspected
conspiracy is well over $1 billion per year and in over half of the investigations, the volume
of commerce affected is well over $100 million over the term of the conspiracy.
- Corporate Fines Have Increased Dramatically. Because international cartels affect such
a large volume of U.S. commerce and the U.S. Sentencing Guidelines fines are based in
large part on the amount of commerce affected by the cartel, fines obtained by the Division
have increased dramatically in the last several years.
- Year-End Total Fines. In the 10 years prior to FY 1997, the Division obtained, on
average, $29 million in criminal fines annually. In FY 1997, the Division collected $205
million in criminal fines - - which was 500 percent higher than during any previous year in
the Division's history. In FY 1998, the Division obtained over $265 million in criminal
fines. In FY 1999, the Division secured over $1.1 billion, including the record fines against
F. Hoffmann-La Roche ($500 million) and BASF ($225 million). In FY 2000, the Division
obtained over $150 million in fines.
- Higher Top-End Fines. Less than a decade ago, the largest corporate fine ever imposed
for a single Sherman Act count was $2 million. However, in the past five years, fines of
$10 million or more have become commonplace. The five largest fines obtained by the
Division thus far are:
- $500 million against F. Hoffmann-La Roche (vitamin cartel - May 1999),
largest fine ever imposed in a criminal prosecution of any kind;
- $225 million against BASF AG (vitamin cartel - May 1999);
- $135 million against SGL Carbon AG (graphite electrodes cartel - May 1999);
- $110 million against UCAR International (graphite electrodes cartel - April
1998); and
- $100 million against Archer Daniels Midland Company (lysine and citric acid
cartels - October 1996).
- International: Fines Of $10 Million or More. The Division has obtained fines of $10
million or more against U.S., Dutch, German, Japanese, Belgian, Swiss, British, and
Norwegian-based companies. In 27 of the 33 instances in which the Division has secured
a fine of $10 million or greater, the corporate defendants were foreign-based. These
numbers reflect the fact that the typical international cartel likely consists of a U.S.
company and three or four of its competitors that are market leaders in Europe, Asia, and
throughout the world. (See Chart of Sherman Act Violations Yielding a Fine of $10 Million
or More, below.)
ANTITRUST DIVISION
Sherman Act Violations Yielding a Fine of $10 Million or More
Defendant (FY) |
Product |
Fine ($ Millions) |
Geographic Scope |
Country |
F. Hoffmann-La Roche, Ltd. (1999) |
Vitamins |
$500 |
International |
Switzerland |
BASF AG (1999) |
Vitamins |
$225 |
International |
Germany |
SGL Carbon AG (1999) |
Graphite Electrodes |
$135 |
International |
Germany |
UCAR International, Inc. (1998) |
Graphite Electrodes |
$110 |
International |
U.S. |
Archer Daniels Midland Co. (1997) |
Lysine & Citric Acid |
$100 |
International |
U.S. |
Takeda Chemical Industries, Ltd. (1999) |
Vitamins |
$72 |
International |
Japan |
Daicel Chemical Industries, Ltd. (2000) |
Sorbates |
$53 |
International |
Japan |
ABB Middle East & Africa Participations AG (2001) |
Construction |
$53 |
International |
Switzerland/Hdq.Italy |
Haarmann & Reimer Corp. (1997) |
Citric Acid |
$50 |
International |
German Parent |
HeereMac v.o.f. (1998) |
Marine Construction |
$49 |
International |
Netherlands |
Sotheby's Holdings Inc. (2001) |
Fine Arts Auctions |
$45 |
International |
U.S. |
Eisai Co., Ltd. (1999) |
Vitamins |
$40 |
International |
Japan |
Hoechst AG (1999) |
Sorbates |
$36 |
International |
Germany |
Showa Denko Carbon, Inc. (1998) |
Graphite Electrodes |
$32.5 |
International |
Japan |
Philipp Holzmann AG (2000) |
Construction |
$30 |
International |
Germany |
Daiichi Pharmaceutical Co., Ltd. (1999) |
Vitamins |
$25 |
International |
Japan |
Nippon Gohsei (1999) |
Sorbates |
$21 |
International |
Japan |
Pfizer Inc. (1999) |
Maltol/Sodium Erythorbate |
$20 |
International |
U.S. |
Fujisawa Pharmaceuticals Co. (1998) |
Sodium Gluconate |
$20 |
International |
Japan |
Dockwise N.V. (1998) |
Marine Transportation |
$15 |
International |
Belgium |
Dyno Nobel (1996) |
Explosives |
$15 |
Domestic |
Norwegian Parent |
F. Hoffmann-La Roche, Ltd. (1997) |
Citric Acid |
$14 |
International |
Switzerland |
Merck KgaA (2000) |
Vitamins |
$14 |
International |
Germany |
Degussa-Huls AG (2000) |
Vitamins |
$13 |
International |
Germany |
Ueno Fine Chemicals Industry, Ltd. (2001) |
Sorbates |
$11 |
International |
Japan |
Eastman Chemical Co. (1998) |
Sorbates |
$11 |
International |
U.S. |
Jungbunzlauer International AG (1997) |
Citric Acid |
$11 |
International |
Switzerland |
Lonza AG (1998) |
Vitamins |
$10.5 |
International |
Switzerland |
Akzo Nobel Chemicals, BV & Glucona, BV (1997) |
Sodium Gluconate |
$10 |
International |
Netherlands |
ICI Explosives (1995) |
Explosives |
$10 |
Domestic |
British Parent |
Mrs. Baird's Bakeries (1996) |
Bread |
$10 |
Domestic |
U.S. |
Ajinomoto Co., Inc. (1996) |
Lysine |
$10 |
International |
Japan |
Kyowa Hakko Kogyo, Co., Ltd. (1996) |
Lysine |
$10 |
International |
Japan |
STATUS REPORT:
INTERNATIONAL CARTEL ENFORCEMENT
The Antitrust Division of the U.S. Department of Justice ("Division") has employed a
strategy of concentrating its enforcement resources on international cartels that victimize
American businesses and consumers. This enforcement emphasis has led to remarkable
success in terms of cracking international cartels, securing the convictions of major
conspirators, and obtaining record-breaking fines. For example:
- Grand Jury Investigations. During FY 2000, the Division conducted
approximately 30 grand jury investigations of suspected international cartel
activity. Currently, approximately one-third of the Division's criminal
investigations involve suspected international cartel activity.
- Geographic Scope. The subjects and targets of the Division's international
investigations are located on 5 continents and in over 20 different countries.
However, the geographic scope of the criminal activity is even broader than
these numbers reflect. Our investigations have uncovered meetings of
international cartels in 107 cities in 35 countries, including most of the Far East
and nearly every country in Western Europe.
- Numerous Sectors of Economy Affected. The Division has prosecuted
international cartels operating in a number of sectors including vitamins, food
and feed additives, food preservatives, chemicals, graphite electrodes (used in
steel making), and marine construction and marine transportation services.
- Volume Of Affected Commerce. In some matters, the volume of commerce
affected by the suspected conspiracy is well over $1 billion per year; and in over
half of the investigations, the volume of commerce affected is well over $100
million over the term of the conspiracy.
- Estimated Harm. Since the beginning of FY 1997, the Division has prosecuted
international cartels affecting well over $10 billion in U.S. commerce. It is clear
that the cartel activity in these cases has cost U.S. businesses and consumers
many hundreds of millions of dollars annually. For example:
- Lysine - Prices increased by 70% in first 6 months; doubled over course
of conspiracy; defendants agreed to pay U.S. customers more than $45
million in damages.
- Citric Acid - Prices increased by over 30% during duration of conspiracy;
- Graphite Electrodes - Prices increased by over 60% during duration of
conspiracy;
- Vitamins - Defendants agreed to pay U.S. customers more than $1 billion
in damages.
- Percentage Of Foreign Defendants. Since the beginning of FY 1998, roughly
50 percent of corporate defendants in criminal cases brought by the Division
were foreign-based.
- Conviction Of Foreign Executives. The Division has convicted foreign
executives from Germany, Belgium, The Netherlands, England, France,
Switzerland, Italy, Canada, Mexico, Japan, and Korea for engaging in cartel
activity, resulting in heavy fines and, in some cases, imprisonment. Business
executives from Germany and Switzerland recently have served prison
sentences in U.S. jails, and a Japanese executive, in a case filed in February
2001, will be the first business executive from that country to plead guilty and
face a potential jail sentence in the United States for an antitrust violation.
- Individual Jail Sentences Have Increased. Individual defendants were
sentenced to more jail days in FYs 1999 and 2000 (12,246 days) than in the
prior five years combined (9,920 days). That equates to nearly 34 years of jail
time imposed in FYs 1999 and 2000, including 15 sentences of 12 months or
more. Of course, the majority of those sentences were imposed against U.S.
business executives. However, as noted above recent cases have resulted in
the imprisonment of foreign executives for antitrust violations.
STATUS REPORT:
CORPORATE LENIENCY PROGRAM
In August 1993, the Antitrust Division of the U.S. Department of Justice ("Division")
revised its Corporate Leniency Program to make it easier for and more attractive to companies
to come forward and cooperate with the Division. Three major revisions were made to the
program: (1) amnesty is automatic if there is no pre-existing investigation; (2) amnesty may
still be available even if cooperation begins after the investigation is underway; and (3) all
officers, directors, and employees who cooperate are protected from criminal prosecution. As
a result of these changes, the Amnesty Program is the Division's most effective generator of
international cartel cases, and it is the Department's most successful leniency program.
- Application Rate. The revised Corporate Amnesty Program has resulted in a
surge in amnesty applications. Under the old amnesty policy the Division
obtained roughly one amnesty application per year. Under the new policy, the
application rate has been more than one per month. As a result of this
increased interest, the Division frequently encounters situations where a
company approaches the government within days, and in some cases less than
one business day, after one of its co-conspirators has secured its position as
first in line for amnesty. Of course, only the first company to qualify receives
amnesty.
- Case Generator. In the last few years, cooperation from amnesty applications
have resulted in scores of convictions and over $1 billion in fines. In fact, the
majority of the Division's major international investigations have been advanced
through the cooperation of an amnesty applicant.
- Amnesty - A Corporate "Super Saver". The vitamin, graphite electrodes, fine
arts auctions, and marine construction investigations offer four prime examples
of the stunning financial advantages for companies that take advantage of the
Amnesty Program. In each of these matters, the amnesty applicant paid zero
dollars in criminal fines.
- Vitamins. In the vitamin investigation, the applicant's cooperation directly
led to F. Hoffmann-La Roche's and BASF's decision to plead guilty and
pay fines of $500 million and $225 million, respectively.
- Graphite Electrodes. In the graphite electrodes investigation, the next
company in the door after the amnesty applicant paid a $32.5 million fine,
the third company in paid a $110 million fine, and a fourth company pled
guilty and paid a $135 million fine. Mitsubishi was recently convicted at
trial for its role in the cartel and is scheduled to be sentenced in May
2001.
- Fine Arts Auctions. The amnesty applicant's cooperation directly resulted
in Sotheby's decision to plead guilty and pay a $45 million fine.
- Marine Construction. In the marine construction investigation, a
corporate co-conspirator agreed to plead guilty and cooperate with the
government's investigation shortly after the investigation went overt based
on information provided by the amnesty applicant. Though the company
provided very valuable cooperation and received a significant reduction in
its fine for that cooperation, it still paid a fine of $49 million.
- Amnesty Plus. Of the more than 30 grand jury investigations of international
cartel activity conducted by the Division in FY 2000, approximately one-half were
initiated by evidence obtained as a result of an investigation of a completely
separate industry. For example, a new investigation results when a company
approaches the Division to negotiate a plea agreement in a current investigation
and then seeks to obtain more lenient treatment by offering to disclose the
existence of a second, unrelated conspiracy. Under these circumstances,
companies that chose to self report and cooperate in a second matter can obtain
what we refer to as "Amnesty Plus." In such a case, the company will receive
amnesty, pay zero dollars in fines for its participation in the second offense, and
none of its officers, directors, and employees who cooperate will be prosecuted
criminally in connection with that offense. Plus, the company will receive a
substantial additional discount by the Division in calculating an appropriate fine
for its participation in the first conspiracy.
- Confidentiality Policy. The Division's policy is to treat as confidential the
identity of amnesty applicants and any information obtained from the applicant.
Thus, the Division will not disclose an amnesty applicant's identity, absent prior
disclosure by or agreement with the applicant, unless authorized by court order.
In the three cases noted above -- vitamins, graphite electrodes, and marine
construction -- the amnesty applicants issued press releases announcing their
conditional acceptance into the corporate amnesty program thereby obviating
the need to maintain their anonymity.
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