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The Government of the People’s Republic of Bangladesh
UNCACA Bangladesh Compliance & Gap Analysis
July 2008
Second Edition
Government of BangaldeshUNCAC : A Bangladesh Compliance & Gap Analysis
First Edition Published byGovernment of the People’s Republic of BangladeshJanuary 2008
Second Edition Published byGovernment of the People’s Republic of BangladeshJuly 2008
Ministry of Law, Justice and Parlimentary AffairsBangladesh Secretariat, Building no. 4Dhaka-1000, BangladeshPhone : +88 02 7164693www. minlaw.gov.bd
Institute of Governance Studies, BRAC University40/6, North Avenue, Gulshan - 2Dhaka - 1212, BangladeshTel : +88 02 8810306, 8810320Fax : +88 02 8832542www. igs-bracu.ac.bd
Cover Design: Amreen RahmanPage Layout & Printing: Genesis (Pvt.) ltd.
Foreword
The accession to the United Nations Convention against Corruption(UNCAC) by the Government of the People’s Republic of Bangladesh inFebruary 2007 has been a significant and symbolic step, expressing ourGovernment’s commitment to taking swift and effective reform measuresnecessary to promote good governance and fight corruption in compliancewith international standards. The UNCAC provides an excellentbenchmark for the Government of Bangladesh to advance and measure itsprogress in fighting corruption. Consequently, the Government believesthat any sustainable and effective anti-corruption reform program shouldbe based on a comprehensive analysis of compliance between theUNCAC and its laws, institutions, and processes in place. Such an analysiswill generate understanding of potential gaps and loopholes, therebybetter equipping the Government in its anti-corruption efforts. To that end,an initial version of the report, “UNCAC: A Bangladesh Compliance & GapAnalysis” was published by the Government in January 2008. It wascreated to serve as a dynamic tool for the purposes of combatingcorruption; most importantly, it provides a comprehensive understandingof the current status of Bangladesh’s anti-corruption system vis-à-vis theinternationally recognized benchmark of the UNCAC. Furthermore, withmuch acclaim, the Government of Bangladesh used it as its basis forreporting on its progress in implementing the UNCAC at the secondConference of States Parties in Bali, Indonesia, in January 2008.
Since January 2008, significant progress has taken place domestically withregard to anti-corruption efforts. Most notable are the legislativedevelopments, namely the coming into effect of the Money LaunderingPrevention Ordinance (MLPO), 2008 and the Public Procurement Rules,2008. The MLPO is of particular consequence as it was drafted in light ofthe UNCAC and as such, has made huge strides in bringing Bangladeshinto compliance with the Convention. Given these important changes, theGovernment found it necessary to revise the report so that it may offer acurrent picture of Bangladesh’s status with regard to the UNCAC, therebyserving as more effective instrument for fighting corruption. Furthermore,in the spirit of updating the report, additional articles of the UNCAC havebeen added, to provide a more thorough analysis. The revised report willensure that the Government continues to meet its other objectives for thereport. In particular, the report is intended to guide and instruct anti-corruption reform programs undertaken by the Government and otherconcerned stakeholders over the coming months and years. The revisionguarantees that the Government possesses a current and comprehensivegrasp of the situation to adroitly direct its efforts. Moreover, the analysiswill enable an up-to-date evaluation of its progress in implementing anti-
corruption measures over time, which allows civil society and the generalpublic in Bangladesh to monitor the Government’s commitment tocombating corruption.
The report is the result of an extraordinary effort of coordination andcooperation among all concerned government institutions of Bangladesh,lead by the Anti-Corruption Commission and the Ministry of Law, Justiceand Parliamentary Affairs, with the support of Ministries of Foreign Affairs,Finance, Planning, Home Affairs as well as the Cabinet Division, theBangladesh Bank, the Office of the Attorney General, and the LawCommission. The work was coordinated by the Joint Secretary (Drafting)of MOLJPA who acted as focal point for this exercise.
The report was planned and drafted jointly with the experts from theInstitute of Governance Studies (IGS) of BRAC University, to whom weexpress our sincere thanks. Financial and technical support from theGerman Technical Cooperation (GTZ) towards this important exercise isgratefully acknowledged, as well as expert advice provided by the BaselInstitute on Governance, the UN Office on Drugs and Crime, the WorldBank and the UNDP.
The revised report is a manifestation of the Government’s continuousefforts to have a comprehensive and in-depth assessment on the status ofimplementation of the UNCAC in Bangladesh.
A.F Hassan AriffAdviserGovernment of People’s Republic of BangladeshMinistry of Law, Justice & Parliamentary AffairsMinistry of Religious AffairsBangladesh Secretariat, Dhaka
Acronyms
ACC – Anti-Corruption CommissionACC Act – Anti-Corruption Commission Act, 2004ACC Rules – Anti-Corruption Commission Rules, 2007AML – Anti-Money LaunderingAMLD – Anti-Money Laundering Department, Bangladesh BankBASC – Bangladesh Administrative Staff CollegeBB – Bangladesh BankBB Circular – Bangladesh Bank (Anti-Money Laundering) CircularBBTA – Bangladesh Bank Training AcademyBCGA – Bangladesh Compliance and Gap AnalysisBCS – Bangladesh Civil ServiceBCSR – Bangladesh Civil Service Rules, 1981BIG – Basel Institute on Governance, SwitzerlandBPATC – Bangladesh Public Administration Training CentreCAG – Comptroller and Auditor GeneralCGFR – Compilation of General Financial RulesCID – Criminal Intelligence DepartmentCoSP – Conference of State PartiesCOTA – Civil Officers Training AcademyCPAR – Country Procurement Assistant ReportCPC – Code of Civil Procedure, 1908CPTU – Central Procurement Technical UnitCrPC – Code of Criminal Procedure, 1898EA, 1872 – Evidence Act, 1872EA, 1974 – Extradition Act, 1974EC – Election CommissionECNEC – Executive Committee of National Economic CouncilEPR – Emergency Powers Rules, 2007FATF – Financial Action Task ForceFI – Financial InstitutionFIU – Financial Intelligence UnitFY – Fiscal YearGATCO – Global Asia Trading CompanyGFET – Guidance for Foreign Exchange Transaction, 1996GoB – Government of BangladeshGTZ – German Technical Cooperation
IDA – International Development AgencyIGS – Institute of Governance Studies, BRAC UniversityIMED – Implementation Monitoring and Evaluation DepartmentINTERPOL – International Criminal Police OrganizationIPSAS – International Public Sector Accounting StandardsKYC – Know Your CustomerMIS – Management Information SystemMLA – Mutual Legal AssistanceMLPA – Money Laundering Prevention Act, 2002MLPO – Money Laundering Prevention Ordinance, 2008MoLJPA – Ministry of Law Justice and Parliamentary AffairsMOU – Memorandum of UnderstandingNGO – Non-Governmental OrganizationNIPA – National Institute of Public AdministrationNIS – National Integrity StrategyNPC – National Pay CommissionPAC – Public Accounts CommitteePATP – Public Administration Training Policy, 2003PCA – Prevention of Corruption Act, 1947PEPs – Politically Exposed PersonsPPPAP – Public Procurement Processing and Approval Procedures, 2004PPR – Public Procurement Regulations, 2003PSC – Public Service CommissionRPO – Representation of the People’s Order, 1972RRC – Regulatory Reform CommissionRTI – Right to InformationSAARC – South Asian Association for Regional CooperationSDOMD – SAARC Drug Offence Monitoring DeskSTI – Staff Training InstituteSTOMD – SAARC Trafficking Offence Monitoring DeskTEC – Tender Evaluation CommitteeTIB – Transparency International BangladeshUN – United NationsUNCAC – United Nations Convention against CorruptionUNDP – United Nations Development ProgrammeUNODC – United Nations Office on Drugs and CrimeUNSC – United Nations Sanction CommitteeUS – United StatesUSD – United States Dollar
Table of Contents
EXECUTIVE SUMMARY 9-14
CHAPTER 1: Introduction 15-211.1 Background 171.2 Aim(s) and Objectives 181.3 Methodology 19
CHAPTER 2: Prevention 23-702.1 Anti-Corruption Policies and Mechanisms 252.2 Public Sector Integrity 272.3 Public Procurement 382.4 Management of Public Finances 452.5 Participation and Access to Information 48Matrix on compliance with articles 5-9, 10, 13 53-70
CHAPTER 3: Criminalization and Law Enforcement 71-1133.1 Criminalization of Offences 733.2 Law Enforcement Measures 80Matrix on compliance with articles 15-42 94-113
CHAPTER 4: International Cooperation 115-1354.1 Extradition 1174.2 Mutual Legal Assistance 1224.3 Other Forms of International Cooperation 125Matrix on compliance with articles 43-50 129-135
CHAPTER 5: Asset Recovery 137-1645.1 Laundering and Proceeds of Crime 1395.2 Prevention and Detection of Proceeds of Crime 145 5.3 Recovery of Proceeds of Crime 148Matrix on compliance with articles 14, 23, 51-59 154-164
CHAPTER 6: Technical Assistance and Information Exchange 165-1786.1 Training and Technical Assistance 1676.2 Collection, Exchange and Analysis of Information
on Corruption 1706.3 Other Measures 172Matrix on compliance with articles 60-62 175-178
CHAPTER 7: Conclusions 179-186
BIBLIOGRAPHY 187-188
INDEX 189-192
Executive Summary
The first Conference of States Parties (CoSP) to the United NationsConvention against Corruption (UNCAC), held in Jordan on December2006, took far reaching actions to promote the implementation of theUNCAC. In particular, it encouraged States Parties, including Bangladesh,to take systematic steps to identify necessary legislative reforms andinternal capacity needs to fully implement the UNCAC. It also called uponsignatories to complete and return the self-assessment checklistdeveloped by the Secretariat, which the Government of People’s Republicof Bangladesh (GoB) did in October 2007. The first CoSP further calledupon the Secretariat to collate and analyze information provided by StatesParties and signatories through the self-assessment checklist or othermeans, and to share this information and related analysis with the CoSP atits second session. In order to support this process, and to advance itsown UNCAC implementation efforts, the GoB decided to take the self-assessment process one step further by analyzing its entire set of anti-corruption laws, institutions and mechanisms against the Conventionstandards in the framework of a comprehensive UNCAC gap andcompliance review. The initial version of the report was the result of thisprocess and served the GoB at the second CoSP in Bali in January 2008to report on its progress in implementing the UNCAC. Since that time,significant legal changes have taken place making it necessary to updateand expand the report. To that end, the GoB has undertaken a revision ofthe report which addresses legal developments and additional Conventionarticles. It is intended that this revised edition will be a more precise toolgiven its comprehensive in-depth coverage.
The overall findings of the report indicate that in terms of legal regime,Bangladesh appears to be largely compatible with the standards andprinciples of the UNCAC. However, the report also identifies a number ofweaknesses with regard to gaps in both the law and practice. There arealso areas where further clarification and modification of existinglegislation is necessary, particularly on laws related to internationalcooperation. Furthermore, certain laws need to be amended; for example,all offences covered by the UNCAC should qualify as “extraditableoffences” in the Extradition Act, 1974 in order to promote greaterinternational cooperation between States Parties for the prevention andprosecution of corruption and related crimes.
Prevention of Corruption (Chapter II UNCAC)
With regard to preventive measures, there exists a comprehensive legalregime in place that includes an anti-corruption law, the Prevention ofCorruption Act, 1947, and the Anti-Corruption Commission Act, 2004,which created an independent anti-corruption body. Furthermore, a
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comprehensive procurement regime exists with the Public ProcurementAct, 2006, and the Public Procurement Rules, 2008. The Bangladeshregulatory regime that serves to promote public sector integrity, governingissues of public sector recruitment, hiring, retention, promotion andretirement, is composed of the Bangladesh Civil Service Rules, 1981, theBangladesh Civil Service Recruitment (Age Qualification andExamination for Direct Recruitment) Rules, 1982, the Public ServiceCommission Ordinance, 1977, and guidelines for public sector training,such as the Public Administration Training Policy (PATP), 2003.Furthermore, institutions such as the constitutionally sanctioned Office ofthe Comptroller and Auditor General (CAG) and the Central ProcurementTechnical Unit (CPTU) are additional mechanisms that ensure greatertransparency and accountability in public procurement and public finance.
However, implementation of these laws in practice still lacks consistency,and the study identifies a number of areas where this should be improvedas a matter of priority. For example, the application of the procurementregime has proven to be relatively inconsistent across the Government andwithin individual agencies, and implementation has also been severelyhampered by the lack of adequate resources within concerned agencies.
While there is a set of rules in place governing issues of recruitment,promotion, hiring and codes of conduct for public officials, their practice hascome under scrutiny from time to time; in particular, the approach andcontent of the existing instruments, including the Code of Conduct, 1979,require modernization in order to create a “citizen friendly” and efficient poolof public officials. There is also a need for training and capacity building ofpublic officials in corruption specific issues. Furthermore, a more coherentreward structure for public officials as a means to provide incentives andpromote greater integrity has also been identified as a useful tool toprofessionalize the public service. With regard to integrity and transparency inelection processes and the funding of political parties, the changes made in2008 to the Representation of the People’s Order (RPO), 1972 are significantreform measures largely in line with the requirements of the UNCAC. Forinstance, the suggested amendments to the RPO, 1972 require politicalparties and individual candidates to register with the country’s ElectionCommission, provide a number of grounds for disqualification fromparticipating in elections, and reduce the maximum number of constituenciesfrom which candidates may contest elections from five to two.
In reference to improving the management of public finance, separateinternal audit units could be created within Ministries to complement thefunctions and role of the offices of the CAG. This would increase the overallcapacity available for the oversight of public finance management andassist in overcoming the current delays in submitting the annual auditreports. Conducting audits of foreign aided projects is a possible way toensure accountability in the public international sector. Additionally, withregard to the highly corruption prone area of public procurement, the
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coming into force of the Procurement Act, 2006 has given adequatemeans to address current gaps and loopholes in policy and practice in thisarea. Similarly, the forthcoming Audit Act is highly desirable as it will fillsome of the gaps with regard to transparency and integrity in themanagement of public finances.
Criminalization and Law Enforcement (Chapter III UNCAC)
With regard to criminalization and law enforcement, States Parties arerequired to criminalize a wide range of acts of corruption (articles 15-27)and to establish a series of procedural measures and mechanisms tosupport such criminalization (articles 28-41). Criminalization obligationsencompass bribery of national public officials, bribery of foreign publicofficials and officials of public international organizations, bribery in theprivate sector, embezzlement, misappropriation or diversion of property bypublic officials and in the private sector, trading in influence, abuse offunction, illicit enrichment, laundering of proceeds of crime, concealmentand obstruction of justice. Other than the offence of active bribery offoreign public officials and officials of public international organizations, allmandatory offences are criminalized in the existing domestic laws ofBangladesh. All non-mandatory offences, with the exception of passivebribery of foreign public officials and officials of public internationalorganizations and bribery in the private sector, are also criminalized in thedomestic laws of Bangladesh. Consequently, it can be said that theexisting laws of Bangladesh are largely in compliance with therequirements set forth in articles 15 to 27 of the UNCAC.
Law enforcement obligations of the UNCAC encompass certainprocedural steps meant for detection, prosecution, punishment andreparation. Almost all the law enforcement mechanisms are available in thedomestic legal regime. However, mechanisms for protection of witnesses,experts and victims are not yet compatible with the UNCAC standards.Moreover, there are weaknesses in the mechanisms for cooperation withlaw enforcement agencies, cooperation between national authorities, andcooperation between national authorities and the private sector. Over theyears, many of the offences and law enforcement mechanisms containedin domestic law remained underused. However, significant changes to thistrend have taken place in recent times; particularly noteworthy are theactivities and activism of the Anti-Corruption Commission (ACC), aspecialized body entrusted with functional independence and with theauthority to enforce relevant anti-corruption laws.
International Cooperation (Chapter IV UNCAC)
With regard to international cooperation, the UNCAC requires StatesParties to provide the widest measure of mutual assistance necessary forthe prevention, investigation and prosecution of offences mentioned in theConvention. Under the Convention, States Parties can opt to take the
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provisions of the UNCAC as a basis for cooperation on extradition withother States Parties or opt to cooperate on the basis of bilateral treaties.Bangladesh has taken this second option. The Extradition Act (EA), 1974spells out a list of extraditable offences, with bribery and embezzlementbeing a few of the UNCAC offences that have been listed therein.Consequently, numerous UNCAC offences are not recognized by thedomestic law as extraditable offences, a gap that should be filled byamending the list of extraditable offences in the EA, 1974 according to therespective UNCAC provisions.
However, the domestic legal regime of Bangladesh now has adequateprovisions to ensure widest mutual legal assistance (MLA) to other UNCACState Parties as required by the Convention. Through gazette notificationthe Government has nominated the Ministry of Home Affairs and the Officeof the Attorney General as the designated central authority for receivingand executing MLA requests. Furthermore, section 26 of the MoneyLaundering Prevention Ordinance, 2008 allows the Government, or inappropriate cases the Bangladesh Bank (BB), to enter into agreementswith foreign countries or organizations to control money laundering.Moreover, under section 503 (2B) of the Code of Criminal Procedure,1898, there are limited provisions for seeking assistance for gatheringevidence through commissions that can examine witnesses abroad. Thelaw does not permit seeking other forms of MLA or responding to incomingrequests for MLA, such as providing information or documents relating toinvestigation or prosecution. Nonetheless, the Government is empoweredto enter into MLA agreements with other States. Indeed, Bangladesh hasrecently taken the initiative to conclude such agreements. Still,international cooperation through the central authority under the UNCAChas not yet taken place. Consequently, despite these legal developments,domestic legislation still requires some amendments and improvements inorder to be compatible with the UNCAC provisions.
Asset Recovery (UNCAC V Chapter)
With regard to asset recovery, the UNCAC requires that States Partiescriminalize the conversion or transfer of proceeds of crime done for thepurpose of concealing or disguising the illicit origin of the property. Moneylaundering has been an offence in Bangladesh since April 2002 when theMoney Laundering Prevention Act (MLPA), 2002 was enacted. However,the MLPA was criticized for inadequacy in controlling all forms of moneylaundering due to ambiguity in the definition of money laundering and aninsufficient list of reporting agencies. The Money Laundering PreventionOrdinance (MLPO), 2008 has successfully addressed these issues.
Money laundering is a non-bailable criminal offence. The penalty can be upto seven years imprisonment and fines (MLPO, section 4). Special courtsfor corruption related cases have jurisdiction to try cases of moneylaundering. Cognizance of offences can only be taken at the written
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complaint made by the ACC or by any law enforceing agency authorizedby the ACC. The MLPO further authorizes the BB to supervise the activitiesof banks in relation to money laundering and to take appropriate steps toaddress any problems that may come up. The MLPO requires financialinstitutions to accurately identify customers and to report suspicioustransactions to the BB. Consequently, banks in Bangladesh are currentlyimplementing appropriate procedures and “Know Your Customer”practices. A detailed Guidance Note on Prevention of Money Launderinghas been circulated among banks and financial institutions to guide thisprocess. Banks are also required to have an Anti-Money LaunderingCompliance Unit in their head office and a designated Anti-MoneyLaundering Compliance Officer in each bank branch. Additionally, the BBconducts regular training programs for compliance officers based on theguidance note.
A Financial Intelligence Unit (FIU) has also been formed that operates aspart of the BB’s Anti-Money Laundering Department (AMLD). The FIU’seffectiveness will be largely enhanced upon Bangladesh’s membership intothe Egmont Group, a coordinating body for the international consortium ofFIUs. Bangladesh has already taken some steps towards achievingmembership, such as amendment of laws relating to money laundering andenactment of the Anti-Terrorism Ordinance, 2008 which includes provisionsfor criminalizing terrorist-financing. Once Bangladesh becomes a member,the BB would be able to exchange information or expertise with FIUs of theother country members.
A number of other improvements are further recommended with regard tothe GoB’s money laundering prevention regime in order to fully complywith international standards. In particular, Bangladesh should provide safeharbor provisions to protect reporting individuals, and introduce bankernegligence accountability to ensure that individual bankers may be heldresponsible if their institutions are found laundering money.
Technical Assistance and Information Exchange (UNCAC VI Chapter)
To combat corruption, States Parties are obligated to take acomprehensive approach that involves reforms of law and theenhancement of practical capabilities related to the prevention anddetection of, and recovery from, acts of corruption. The UNCACspecifically obligates States Parties to undertake training, technicalassistance, monitoring, and efforts at international cooperation for thepurposes of successfully implementing anti-corruption laws and policies,and increasing capacity to take efficient and appropriate measures.Domestic law expressly provides for anti-corruption training. Both the ACCAct, 2004 and the MLPO, 2008 empower government bodies to providetraining to prevent corruption. The ACC and the BB’s AMLD haveconducted training on the relevant laws and proper practices, with plansunderway for more training in the future.
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Despite laws in place and the presence of training bodies in variousgovernment institutions, compliance with the UNCAC training requirementsis lacking. One major obstacle to implementing training programs is lack ofresources. Undoubtedly, to overcome this, the GoB must prioritizeproviding or securing adequate funding for training programs. Once fundingis secured, problems in implementation will be easier to address.Furthermore, entering into bilateral and multilateral agreements with regardto technical assistance is recommended as Bangladesh could benefit fromthe experience and knowledge of other nations.
With regard to information gathering, Bangladesh has made noteworthyefforts. In preparation for the second CoSP in Bali, Indonesia in January2008, the GoB prepared and distributed the initial version of this report,both to share its progress with other States Parties and to show itscommitment to fighting corruption. Furthermore, the attending Bangladeshdelegation was very active at the meeting and was eager to exchangeinformation with other nations. Domestically, there are other mechanismsin place that should facilitate compliance with the UNCAC in regard toresearch and analysis. The ACC Act, 2004 and the MLPO, 2008 bothcontain provisions for research and analysis for the purposes of corruptionprevention. Monitoring is also provided for in the MLPO, 2008 and the ACCAct, 2004. Both the BB and the ACC have mechanisms in place that reviewand monitor practical compliance with the laws and regulations in place;however, means to monitor and review the effectiveness of policies islacking. More government effort and resources should be devoted toresearch, analysis, and monitoring as such activities are necessary for asuccessful plan of action against corruption.
The GoB has recently taken steps related to international cooperation topromote compliance to the Convention. In particular, the GoB has nowestablished an authority to assist other States Parties in implementing anddeveloping measures to prevent corruption. Additionally, in furthercompliance with the UNCAC, Bangladesh has designated a centralauthority responsible for requests of mutual legal assistance, namely theMinistry of Home Affairs and the Office of the Attorney General. These twodevelopments are significant as previously the main obstacle tointernational cooperation was that there was no authority to conduct suchefforts. Another important development with regard to Conventionimplementation through international cooperation is the MLPO, 2008,which gives the BB and the ACC power to make agreements with othercountries or authorities to recover stolen assets. Given that the GoB hasonly recently been equipped to engage in international cooperation, it isdifficult to measure practical compliance; nonetheless, it is clear thatBangladesh is now endowed with the necessary legislation and isempowered to act.
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Chapter 1
Introduction1.1 Background 1.2 Aim(s) and Objectives 1.3 Methodology
Introduction
1.1 Background
The Government of the People’s Republic of Bangladesh (GoB) accessionto the United Nations Conventions against Corruption (UNCAC) inFebruary 2007 was an important development in its efforts toward greatreforms for good governance. Not only does it reinforce the Government’scommitment and declared strategy to fight corruption, it assists thecountry’s efforts to comply with international standards. In December2006, the Government participated as an “observer” at the firstConference of the States Parties (CoSP) to the UNCAC in Dead Sea,Jordan. The CoSP in Jordan made far reaching decisions to promote theimplementation of the UNCAC, specifically requiring that States Parties,including Bangladesh, take systematic steps toward identifying necessarylegislative reforms, strengthening internal capacity needs for effective lawenforcement, and formulating anti-corruption strategies that are utilizedacross institutions at risk of corruption.
A reform regime, necessary for the effective implementation of theUNCAC, must be based on a clearly articulated compliance review andanalysis (gap analysis) on the implications of the UNCAC provisions onBangladesh’s legislation, practices and institutional realities, including anassessment of the extent of compliance, gaps and capacity needs. Suchanalysis has been successfully used as an instrument for identifyingneeded legal and institutional changes by other States Parties. As anexpression of their commitment to generating such an analysis, the GoBformed an Inter-Ministerial Committee in April 2007, led by the Secretaryof the Ministry of Law, Justice and Parliamentary Affairs (MoLJPA), toconduct the Bangladesh Compliance and Gap Analysis (BCGA). TheCommittee was made responsible for coordinating with relevant ministriesand other stakeholders. Also, a Joint Secretary (Drafting) of MoLJPA wasdesignated as the focal point for the exercise.
The study was coordinated by the MoLJPA and carried out in partnershipwith the experts from the Institute of Governance Studies (IGS), BRACUniversity, with financial and technical support from the German TechnicalCooperation (GTZ), as well as with expert advice from the Basel Instituteon Governance (BIG) in Switzerland, the United Nations Office on Drugsand Crime (UNODC) in Vienna, Austria, and the United NationsDevelopment Programme (UNDP).
Between October 2007 and January 2008 a number of activities wereundertaken that included the completion and submission of the UN SelfAssessment Checklist, formation of a research team, an orientation and
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methodology workshop, desk based research, focus group discussions,and interviews with technical specialists in various government ministriesand departments. These activities culminated in the drafting of the firstedition of the report, which was presented to and approved by the Inter-Ministerial Committee on 10 January, 2008.
The BCGA was presented and distributed at the CoSP in Bali, Indonesia inJanuary 2008. The report generated a great deal interest and discussion atthe CoSP in Bali and in Bangladesh. However, since that time, majorlegislative changes were introduced which has made it necessary to revisethe report. On 3 May, 2008, the Institute of Governance Studies (IGS) waspleased to host a Needs Assessment Workshop to devise a strategy tofurther implement the provisions of the UNCAC. Workshop participantsreached a consensus that priority should be given to updating the report.Aside from wanting to include the significant legal and practicaldevelopments that have taken place since the publication of the report,participants (the GoB, IGS and development partners) indicated that theywould also like to increase the scope of the report by addressing articlesthat were not previously covered. Following this request, the IGS waspleased to provide technical assistance for the second edition of “UNCAC:A Bangladesh Compliance & Gap Analysis.”
1.2 Aim(s) and Objectives
The primary aim of the first edition of the BCGA was to enable the GoB toupdate and report on its progress of implementation at the January 2008CoSP in Bali, Indonesia. At that time, the BCGA aimed to:
• Provide an analysis of compatibility and compliance of national lawsand practice with the provisions in certain selected key thematic areasof the UNCAC, which will provide a useful basis for the development ofan action plan for implementing the recommendations of BCGA;
• Indicate key challenges for the GoB in implementing the Conventionand assessing capacity needs;
• Seek to raise the level of knowledge of the UNCAC within Bangladesh,build internal support, and identify key decision makers for theimplementation of the UNCAC.
The revised edition continues to fulfill the previous objectives and alsoaims to update the analysis with regard to recent developments in law andpractice.
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1.3 Methodology
The methodology and framework for the BCGA study was developed atthe Orientation Workshop (6-8 November, 2007) with the participation ofthe various stakeholders in the Government including the Ministries ofLaw, Justice and Parliamentary Affairs, Home Affairs, Foreign Affairs,Cabinet Division, Finance, Planning, the Anti-Corruption Commission, theOffice of the Attorney General, the Bangladesh Bank, the Law Commissionand members of the IGS, with representation from the GTZ, the BaselInstitute on Governance, the World Bank, the University of Dhaka, theUNDP, and the Federation of Bangladesh Chambers of Commerce andIndustries.
The Core Research Team was comprised of the Focal Point, Ms. NasreenBegum, Joint Secretary (Drafting), Associate Focal Point, Mr. HumayunFarhad, Deputy Secretary (Drafting), Mr. Muhammad Belal Husain, SeniorAssistant Secretary (Drafting) from the MoLJPA. Mr. Manzoor Hasan,Director, Ms. Tahmina Rahman, Research Coordinator (First Edition), Ms.Sara Shapouri, Research Coordinator (Second Edition), Mr. Niloy RanjanBiswas, Research Associate/Lecturer, Mr. Saiful Bhuiyan, ProjectAssociate, from the IGS, BRAC University. Consultants from the IGSincluded Mr. Mahbubur Rahman and Mr. Ghulam Murtaza. Ms. GrettaFenner, Director of the Basel Institute on Governance, Dr. Geinitz Dedo,Anti-Corruption Focal Point, GTZ, Mr. Roland Hackenberg, AssociateExpert, GTZ Bangladesh and Dr. Rizwan Khair, Academic Coordinator,IGS, provided specialist advice.
The Orientation Workshop agreed to take a thematic approach for theBCGA, rather than an article by article approach, focusing on a number ofkey priority areas known to be particularly significant, as well as challengesin Bangladesh’s efforts to combat corruption. In addition, to simplifyanalyzing the compatibility between the UNCAC and the domestic legaland regulatory regimes, the group further decided to examine gapsbetween law and practice. The priority areas identified by the orientationworkshop participants included:
1. Anti-corruption policies and measures (articles 5, 6);
2. Public sector integrity (articles 7, 8);
3. Public procurement and management of finances (article 9);
4. Enforcement issues related to existing criminal laws and procedures(articles 15-25, 30-40);
5. International cooperation including extradition and mutual legalassistance (articles 43-50);
6. Asset recovery focusing on laundering and proceeds of crime (articles14, 23, 51-59).
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As previously mentioned, the May 2008 Need Assessment Workshopparticipants requested that the scope of the BCGA be expanded to includearticles that were not addressed in the first edition. Consequently, thetheme of “technical assistance and information exchange,” embodied inarticles 60-62, is now represented in the revised edition. In addition, theoriginal thematic areas have been expanded to include other relevantarticles, including article 10 (public reporting), article 13 (participation ofsociety), article 14 (prevention of money laundering), article 41 (criminalrecord), article 42 (jurisdiction), article 43 (international cooperation), article50 (special investigative techniques) and article 51 (general provision forasset recovery).
The study took an interactive approach, which included discussions withthe relevant GoB officials and specialists in various sectors. As part of themethodology, five focus group discussions were conducted between 10-17 December, 2007 on the key thematic areas, with the participation oftechnical specialists, Mr. AFM Mustafa, Director General (Law andProsecution), Anti-Corruption Commission, Mr. Md. Zakir Hossain, DirectorGeneral, Foreign Aided Projects Audit Directorate, Ahmed Ataul Hakim,Comptroller General Defense Finance, Ministry of Defense, Mr. Md.Moshiur Rahman, Joint Secretary Cabinet Division, Mr. Nur Ahmed, SeniorAssistant Chief, Cabinet Division, Mr. Iqbal Ahmed, Assistant Secretary,Ministry of Foreign Affairs, Ms. Quamrun Nahar Ahmed, Deputy Secretary,Ministry of Finance, Mr. Abdul Mannan, Deputy Secretary (Regulation),Ministry of Establishment, and Mr. Md Muniruzzaman, Assistant Director,Financial Intelligence Unit (FIU), Bangladesh Bank.
Detailed interviews were also conducted with Mr. AKM Fazlul Karim,Adviser (Ex–Director General), Central Procurement Technical Unit (CPTU),Implementation, Monitoring and Evaluation Department of the Ministry ofPlanning, Mr. Barman, Deputy Director of the CPTU, Mr. MahfuzurRahman, Deputy General Manager, Anti-Money Laundering Unit,Bangladesh Bank, Mr. Jabed Ahmed, Deputy Secretary, Ministry of HomeAffairs, and Mr. Zakir Hosain, Director (Law and Prosecution), Anti-Corruption Commission.
In preparation for the revised report further interviews were conducted withdifferent government ministries and organizations in order to update theanalysis in accordance with the current status of law and practice. Notably,Mr. AFM Mustafa, Director General (Law and Prosecution) and Mr. Md. AbuTalib Miah, Director General (Research, Analysis, Prevention and MassAwareness), Anti-Corruption Commission, Mr. Jabed Ahmed, DeputySecretary, Ministry of Home Affairs, Mr. Md. Abul Quasem, ExecutiveDirector, Mr. Md Muniruzzaman, Assistant Director, and Mr. MohamadAbdur Rab, Assistant Director, Financial Intelligence Unit (FIU), BangladeshBank made significant contributions.
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The primary audience of the report is the Government of People’s Republicof Bangladesh, in particular the Inter-Ministerial Committee on the gapanalysis and the various Ministries and agencies involved in thisCommittee, the members of the CoSP as the responsible body formonitoring the implementation of the UNCAC, and its Secretariat withinthe UNODC. Other target audiences include civil society at large, NGOs,academic institutions, the media, and the international donor community,both in Bangladesh and abroad.
To systematize the data the following Matrix is used to form the basis ofthis report:
UNCAC Domestic Legal/ Compatibility Compliance and RemarksProvisions Regulatory between UNCAC Gap between
Regime and Domestic Law and Regime Practice
In drafting the report, a process of collaborative writing was followed, ledby the Research Coordinator, the IGS, BRAC University, with GoB FocalPoint, Associate Focal Point and researchers from the Institute. Other thanthe present chapter, the report consists of seven different chapters.Chapter 2 is concerned with the status of preventive measures againstcorruption; in particular, it focuses on anti-corruption policies andmechanisms, public sector integrity, public procurement, andmanagement of public finances. Chapter 3 focuses on compliance andgaps with regard to criminalization and law enforcement. The topics ofextradition and mutual legal assistance are addressed in Chapter 4.Chapter 5 looks at asset recovery, with particular emphasis on thelaundering and proceeds of crime, and the prevention, detection andrecovery of such proceeds. Chapter 6 addresses technical assistance andinformation exchange. Lastly, Chapter 7 highlights key conclusions of thereport.
Chapter 2
Prevention 2.1 Anti-Corruption Policies and Mechanisms 2.2 Public Sector Integrity 2.3 Public Procurement 2.4 Management of Public Finances 2.5 Participation and Access to InformationMatrix on compliance with articles 5-9, 10, 13
Prevention
Corruption thrives on systemic weaknesses; consequently, anti-corruptionmeasures must address flaws through preventive measures that reduceopportunities for corruption. In this respect, the UNCAC rightlyemphasizes the need for measures to both enhance transparency, makingcorruption visible, and strengthen integrity, thereby promoting a culture inwhich corruption is no longer an accepted behavior. The following sectionsfocus on preventive anti-corruption policies and practices, anti-corruptionbodies, issues in the public sector, such as recruitment, retention,promotion and code of conduct for public officials, along with publicprocurement and management of public finances.
2.1 Anti-Corruption Policies and Mechanisms
The establishment of effective policies and mechanisms for the preventionof corruption is a significant step for a state toward combating corruption.
Article 5: Preventive anti-corruption policies and practices
Article 5 of the UNCAC requires States Parties to develop and implementor maintain effective anti-corruption policies that encourage theparticipation of society, reflect the rule of law and promote sound andtransparent administration of public affairs (article 5.1). To that end, StatesParties are also required to collaborate with each other and with relevantinternational and regional bodies (article 5.4).
A number of legislations can be mentioned in this regard, in particular, theAnti-Corruption Commission (ACC) Act, 2004, the Anti-CorruptionCommission (ACC) Rules, 2007, and the Prevention of Corruption Act(PCA), 1947. The Prevention of Corruption Act, 1947 was the first of itskind in South Asia and was a precursor to the myriad future efforts aimedat codifying anti-corruption measures. In line with this rich legislativehistory, the ACC Act was proposed to prevent, punish, and investigate actsof corruption. In addition, it was devised to provide a consolidatedframework to prevent corruption and related practices, along with anoverall framework both to conduct enquiries and investigations for specificoffences and to enact other relevant measures related to corruption. Thescheduled offences of the ACC Act are the offences included under thePrevention of Corruption Act, 1947, some specific offences under thePenal Code, 1860, and offences listed in the Act itself. The anti-corruptionlegal system is also bolstered by other laws. The Criminal Law(Amendment) Act, 1958 (XL of 1958) is significant in the anti-corruptionregime as it plays a role in the procedural aspects of the Anti-CorruptionCommission. Section 2 (l) of the ACC Act, 2004 provides for a “Special
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Judge,” which is defined as a Special Judge appointed under section 3 ofthe Criminal Law Amendment Act, 1958. Moreover in cases of judgmentof the offences, the Criminal Law Amendment Act of 1958 shall be appliedto prosecutions and appeals brought under the ACC Act, 2004 (section 28of the ACC Act, 2004).The Money Laundering Prevention Ordinance,2008 also contains important provisions contributing to the anti-corruptionlegal framework. For example, predicate offences under the Ordinance,2008 include corruption and bribery, forgery of currencies and documents,extortion, cheating, dealing in illegal arms and drug, and smuggling(section 2). Moreover, it allows the Government to seek help from anycountry and assist investigative agencies in probing crimes linked tomoney laundering, confiscating laundered money and having recourse tolaw. Additionally, the recent steps toward the separation of the judiciaryaccentuate the qualitative aspects for procedural matters in combatingcorruption, along with generating an overall impact that strengthens theanti-corruption regime.
A change of focus for the Caretaker Government in January 2007 hasmeant that under this new leadership, significant steps have been madetoward reforms for good governance, fighting corruption, and complyingwith international standards. These steps have included accession to theUNCAC in February 2007 and a change of leadership in a number ofrelevant state institutions, including the Anti-Corruption Commission, thePublic Service Commission and the Election Commission. The GoB hasalso taken measures to ensure that new recruitments are transparent andfair. Driven by top leadership, the Government, with the participation of awide range of stakeholders, is also in the process of formulating a NationalIntegrity Strategy (NIS). A NIS is a comprehensive system to initiaterealistic efforts in combating corruption holistically and improve the overallgovernance situation in the country. Furthermore, the development andimplementation of a NIS aids in compliance of article 5 as it envisages abroad framework for promoting and creating preventative anti-corruptionmeasures and practices in Bangladesh, along with fostering acceleratedparticipation from all sectors of society. Its full implementation is expectedto take a few years upon finalization at the end of 2008. Undoubtedly, thiswill offer a vision for the development and implementation of reforms topromote better governance and combat corruption in Bangladesh. TheGoB envisages that such a strategy will highlight the need for public andprivate sector changes, involve public awareness campaigns, and seekinternational cooperation. Additionally, the NIS will seek to strengtheninternal controls in state owned institutions and aims to induce a culturalshift by encouraging the adoption of citizen-owned accountabilitymechanisms in Bangladesh.
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Article 6: Preventive anti-corruption body or bodies
Article 6 of the UNCAC requires States Parties to have an anti-corruptionbody or bodies in charge of preventive measures and policies (article 6.1).This body must also be independent to ensure that it can do its jobunimpeded by undue influences (article 6.2). Furthermore, the State Partymust provide it with adequate resources and training (article 6.2).
In Bangladesh, the Anti-Corruption Commission (ACC) is in charge ofenforcing and implementing preventive measures and policies. The Anti-Corruption Commission Act, 2004 empowers the ACC to review anti-corruption policies outlined in different laws, recommend effectiveimplementation strategies, conduct anti-corruption research, createpublic awareness against corruption, and hold seminars, symposiums andworkshops on corruption (section 17). To achieve these ends, the ACC hasbeen receiving capacity development training for its officials with theassistance from international development partners. These trainings areprovided to enhance the capacity of the workforce of the Commission indiversified areas to combat and prevent corruption effectively with the useof modern technologies and capabilities. According to the ACC Act, 2004the Chairman of the ACC enjoys the status of a judge of the AppellateDivision of the Supreme Court while the commissioners have the status ofHigh Court Judges. The Commission can decide independently tocommence an enquiry or investigation into any corruption case. This newpower was introduced recently by an amendment to the Criminal Law(Amendment) Act, 1958. Previously under this law, the Bureau of Anti-Corruption had to seek government permission for an enquiry orinvestigation against any government servant. Through the amendment,this bar has been withdrawn which now facilitates the detection ofcorruption activities. Moreover the selection procedure of the Chairmanand commissioners was made transparent by section 7 of the ACC Act,2004, which has been followed in practice.
The ACC, during recent times, has undertaken various preventive anti-corruption activities. This includes creating public opinion, outreach andinternal capacity development. In April 2007, with the aim of starting ananti-corruption mass movement, the Chief Executive of the ACC embarkedon a national tour of different parts of Bangladesh. Additionally, inDecember 2007, Transparency International Bangladesh (TIB) and the ACCjointly started an anti-corruption campaign program. Legal mandate, theACC launched this campaign by arranging public dialogues, youth rallies,musical concerts, and intellectual debates in different districts ofBangladesh. TIB is helping the ACC in organizing these events with theirextended local networks and expertise. The rationale behind thiscampaign is to motivate the masses to formulate policies for theprevention of corruption. This is also significant as it serves to make thewhole anti-corruption mechanism more durable and effective.
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Efforts taken by the GoB in compliance of the article 6 of the Conventionare noteworthy. In reference to this particular provision, the formation ofthe Regulatory Reform Commission should be mentioned. Created inOctober 2007, it is responsible for promoting changes in administrativerules and regulations with a goal of making them investment, commerceand trade friendly. Additionally, the Anti-Corruption Rules, 2007 has madethe activities of the sole preventative anti-corruption body of Bangladesh,the ACC, more pro-active to better combat corruption and formulatepolicies for prevention. In addition, the current legal framework hasgenerated more freedom for the ACC than the previous Bureau of Anti-Corruption. The ACC Act, 2004 has also given the administrativeframework greater flexibility in recruiting needed personnel to theCommission, thus making it stronger in terms of human resources.Furthermore, the history of enacting laws regarding corruption indicatesthat Bangladesh is relatively compliant to the UNCAC, regardless of thelevel of implementation it has achieved throughout the years. However, itis important to devote efforts to exploring mechanisms of proper andeffective implementation of the policies, along with the encouraging neutraland practical functioning of institutions of accountability like the ACC.
2.2 Public Sector Integrity
Article 7.1(a): Recruitment, hiring, retention, promotion of public officials
The UNCAC requires States Parties to endeavor to adopt, maintain andstrengthen systems for the recruitment, hiring, retention, promotion, andretirement of civil servants, based on principles of efficiency andtransparency, using objective criteria such as merit, equity and aptitude.
Bangladesh has a comprehensive regulatory regime governing issues ofpublic sector recruitment, hiring, retention, promotion, and conduct, datingfrom the colonial era, which has more recently been codified after theemergence of the state of Bangladesh. Article 133 of the Constitution ofBangladesh requires the state to enact laws and procedures “to regulatethe appointment and conditions of service of persons in the service of theRepublic.” The regulatory regime includes the Bangladesh Civil ServiceRecruitment (BCSR) Rules, 1981, the Bangladesh Civil ServiceRecruitment (Age, Qualification and Examination for Direct Recruitment)Rules, 1982, the Bangladesh Public Service CommissionOrdinance,1977 the Bangladesh Civil Service (Examination forPromotion) Rules, 1986, the Administrative Tribunal Act, 1980, and theOfficers and Staff (Administrative Tribunal) Recruitment Rules, 1985. TheBCSR Rules, 1981 provides procedures for recruitment, appointment bydirect recruitment, appointment by promotion, probation, and confirmationof individuals for civil service. The Bangladesh Civil Service Recruitment(Age, Qualification and Examination for Direct Recruitment) Rules, 1982
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introduced criteria for eligibility based on the age and qualifications ofcandidates that are recruited directly to civil services.
The Public Service Commission (PSC), a constitutional body, is entrustedwith the responsibility of conducting tests and examinations forrecruitment. With the promulgation of the Bangladesh Public ServiceCommission Ordinance, 1977 the two previously existing PSCs (PSC firstand PSC second) were merged into a single Commission. The functions ofPSC include holding professional examinations for the selection of suitablepersons for appointment to the service of the Republic along with advisingthe President on matters relating to qualifications for and methods ofrecruitment, appointment, promotion, and transfer. Furthermore, the PSCis directed to advise the President on issues, terms and conditions ofservice and discipline (article 140(2) of the Constitution of Bangladesh).
The role of the Administrative Tribunal and Administrative AppellateTribunal is significant as it is responsible for the adjudication of disputesbetween the appointing authorities and public officials. AdministrativeTribunals are set up to rule on matters relating to the terms and conditionsof employment, recruitment, appointment, promotion and transfer, andmust also uphold the rights of civil servants (sections 4 and 5 of theAdministrative Tribunal Act, 1980). The tribunals are comprised ofassigned officers and staff of the civil service.
While there is a strong regulatory regime in place with regard to theseissues, recruitment and promotion practices of public officials have comeunder criticism from time to time. Questions have been raised whetherrecruitment, hiring and promotion have been based on merit, equity, andaptitude. The PSC being the principle recruiter of the civil service has oftendrawn attention to itself and its image as a constitutional body has at timesbeen compromised with the cancellation of examinations and assertions ofpolitical affiliation in recruitments. This has weakened the high standing ofthe civil service.
In line with the UNCAC’s explicit provision for merit, equity and aptitudebased recruitment in the civil service to promote efficiency and transparencyin the system, the GoB has taken a number of significant steps towardimproving the overall governance situation in the country, including a seriesof institutional reforms intended to strengthen constitutional bodies such asthe PSC. Under new leadership, the PSC is already in the process ofmodernizing a long drawn and antiquated examination system that is aimedat improving the quality of new recruits. Along with the legal and institutionalreforms, there is a pressing need to oversee the implementationmechanisms of these reforms for its sustainability. Only properimplementation can ensure an effective public administration which is criticalfor the development of Bangladesh. Measures should also be consideredwhich improve the independence, effectiveness and efficiency of the service
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with greater financial autonomy, enhanced training and capacity building,more opportunities for deputation and lateral entry, and technical support toupgrade administrative systems. Mechanisms for disciplinary actions shouldalso be improved. These changes would help to establish a system that isnot only in compliance with the UNCAC standards, but ensures fair practicesin civil service employment.
Articles 7.1(b) & (d): Training of public officials
The UNCAC requires States Parties to endeavor to include adequatetraining and education programs for public officials, especially thosevulnerable to corruption, in order to enhance performance of their publicduties and functions (article 7.1(b)). This should include specialized andappropriate training for the purposes of increasing awareness of the risksof corruption (article 7.1(d)).
Training programs in the civil service are designed to encourage civilservants to improve and increase their skills, talents and creativity, so thatthey can make best use of their resources and contribute to the nation’sdevelopment. The Public Administration Training Policy (PATP), 2003provides guidelines for public sector training. It details training procedures,content, goals and the various types of training that could be used forpublic officials. It requires public institutions to formulate and conducttraining programs based on the training needs of the officials of differentsectors and departments. Training is also provided by the training centersor institutes of different Ministries, departments and divisions, i.e., theBangladesh Civil Service (Administration) Training Academy, the JudicialAdministrative Training Institute, the Police Staff College, etc.
Founded in 1984, the Bangladesh Public Administration Training Centre(BPATC) is an amalgamation of the Bangladesh Administrative StaffCollege, the National Institute of Public Administration, the Civil Officer’sTraining Academy, and the Staff Training Institute. It now operates as theapex training institute in the public sector. The merger took place with avision to integrate resources, pool diverse ideas and experiences, andwiden the scope of interaction between different cadres and services.Thus, the BPATC inherits a rich legacy and sets a unique model ofintegrated training in the fields of public administration and management.It designs and organizes training courses, workshops, and seminars andconducts research on public administration, management anddevelopment economics. It also provides in-service training to localauthorities, foundation training to the officers of various cadres of theBangladesh Civil Service (BCS), and foundation and refresher training tonon-cadre officers of the Government. Moreover, the centre advises theGovernment on policy making issues of the day. Clientele groups of BPATCare diverse, representing all the 29 cadres of the civil service. Their levelranges from newly recruited civil servants to top level policy makers.
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There are a wide range of training courses offered by the BPATC and othertraining institutes, with workshops and seminars especially dedicated tocorruption and risks; however, specific training modules on this are rare.The BCS Academy (with Transparency International Bangladesh and theACC) is one of the very few that offers a training course specificallydedicated to anti-corruption issues. Also public officials often find trainingto be one-off, with less attention to their specific capacity building needs.There is also a need for modernizing training tools and methodologies andmaking training more problem solving, enabling technical as well as projectmanagement skills and expertise geared toward meeting the day to daydemands of public officials. Additionally, specific training courses on goodgovernance should be provided.
Modern and effective public administration is the outcome of meritoriousand trained personnel who can understand their responsibilities, makedecisions, and execute strategies in a systematic and effective way. TheUNCAC emphasizes the importance of this issue in its expression of theneed for specialized and appropriate corruption specific trainings. Asmentioned earlier, the GoB is aware of the significance of the issue.Indeed, it is not that the Government is unwilling to engage in training, butthat it faces a lack of resources and expertise.
Article 7.1(c): Remuneration and pay scale
The UNCAC requires States Parties to promote adequate remunerationand equitable pay scales, taking into account the economic developmentof the country.
Since the independence of Bangladesh, a number of National PayCommissions (NPC) have been set up for ascertaining pay scales forpublic servants. The first NPC was set up in 1972, when the civil servicewas structured into ten grades. This was subsequently upgraded intotwenty grades in 1977. The current pay scale is based on therecommendations of the sixth National Pay Commission report from 2005.Bangladesh does not have a permanent Pay Commission that is entrustedwith determining and evaluating this highly technical, complex, andpolitically sensitive issue. Traditionally, it has been government practice torespond to inflationary trends and pressures of stakeholders in the service.There are also examples of ad-hoc incrementing of salaries (by providingDearness Allowance or 10-15% basic enhancement) to satisfy politicalneeds and silence unrest in the public administration. Consequently, amore coherent pay structure is needed. The Pay Commission hasconsistently given recommendations for the establishment of a permanentcommission that would regularly supervise the issue of salary. The pastpractice of the GoB has been to consider the recommendations of the PayCommission on the availability of funds in determining the percentage ofsalary increase.
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It is critical for the Government to devote adequate effort to theestablishment of a permanent Pay Commission which would determine thesalary scale. The Budget Speech of the current Finance Adviser of GoBreflected the Government’s recognition of this necessity when hediscussed the need for the establishment of a Permanent PayCommission. This Pay Commission would conduct research on economictrends, inflation, and other relevant factors to regularly and preciselydetermine the salary needs of public officials. This issue of salary isimportant as it is consistently related to the effectiveness of the publicsector. The GoB should introduce the reforms in accordance with theeconomic development of the country. Such reforms would lead tosatisfaction of the requirement of the UNCAC provision and create a morefair and transparent system of pay.
Articles 7.2 & 7.3: Election to public offices and transparency in funding
States Parties are required under the provisions of the UNCAC to takeappropriate measures for prescribing criteria concerning candidature forand election to public office (article 7.2), and to enhance transparency inboth the funding of candidates for elected public office and the funding ofpolitical parties (article 7.3).
Article 65 of the Constitution of Bangladesh paved the way for theestablishment of the Parliament of Bangladesh (House of the Nation) wherelegislative powers of the Republic are vested. The Parliament is composedof three hundred members who, in accordance with the law, are electedfrom single territorial constituencies by direct election. Article 59 providesthat the local government, in every administrative unit of the Republic, “shallbe entrusted to bodies, composed of persons elected in accordance withlaw.” Article 66 contains clear criteria for the disqualification of candidatesin elections; they include declaration by a competent court of unsoundnessof mind, insolvency, taking allegiance in a foreign country, and convictionfor a criminal offence involving moral turpitude. A person will also beconsidered to be ineligible if imprisoned for two or more years and a periodof five years has not elapsed since his/her release.
Contemporary laws and regulations regarding the conduct of elections fordifferent local bodies authorize the Election Commission (EC) to conductnational and local level elections (at the union, sub-district and citycorporations). In Bangladesh, the EC is the sole responsible constitutionalbody for holding elections to local councils and the National Parliament.Article 118 of the Constitution provides for the establishment of an EC forBangladesh, which consists of a Chief Election Commissioner and suchnumber of other Election Commissioners, if any, that are appointed at thediscretion of the President. The EC is an independent body that has theduty of holding free and fair elections. The EC prescribes certain rules and
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regulations, including codes of conduct for the participation of thecandidates in elections. Generally, codes of conduct are revised andupdated before any election to provide guidelines that will be applicablefor that particular context.
With regard to integrity and transparency in election processes and thefunding of political parties, a number of reform measures have beenproposed to the Representation of the People’s Order (RPO), 1972 whichare currently being discussed with various political parties. The changesaim to ensure objective criteria in determining participation in elections topublic offices, and are as follows:
• Registration of political parties or independent candidates: All politicalparties are required to be registered with the EC; candidates who aremembers of such parties are eligible to contest in elections.Independent candidates are required to provide evidence of supportfrom at least 1% of voters in his/her constituency;
• Loan defaulters: Candidates who have defaulted in the repayment ofloans from banks and/or financial institutions (except for house-building purposes) within a year of submission of nominations will beconsidered disqualified;
• Participation of retired officials: Candidates who have held publicpositions and have resigned, retired or have been removed forcefully byway of dismissal or suspension, will be considered ineligible if anintervening period of three years has not elapsed from such actionstaken against them. This is also applicable for employees of non-governmental organizations;
• Defaulters of service/utility bills: Candidates will also be consideredineligible, should they have any outstanding service/utility bill, includingtelephone, gas, water or any other related service, at the time of his/hersubmission of nomination;
• Candidature in more than one constituency: Article 66 of the Constitutionallows candidates to contest from two or more constituencies. Theproposed RPO decreases the maximum number of constituencies fromwhich candidates may contest elections from five to two.
The Supreme Court of Bangladesh in the landmark case of Mr. Abu Safavs the Election Commission, 2007 has confirmed the mandatory publicdisclosure of eight types of personal information by electoral candidates,which include: academic qualifications, any pending criminalproceeding(s), records of criminal cases and their outcome, sources ofincome, assets, liabilities, and amounts of loans taken from banks andfinancial institutions (personally, jointly or by a dependent).
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Significant reform measures are being proposed which would govern thefunding of candidates to public office and would require political parties toenhance transparency and accountability in such matters during elections.Proposals by the EC include the mandatory declaration of sources ofelection expenditure, a ban on receiving funds from foreign sources andsubmission by individuals and political parties of details of election relatedexpenditures within sixty days of the declaration of election results.
Election to the public office is a critical mechanism which promotesdemocratic governance and enables anti-corruption mechanisms to workproperly; the manipulation of such activity directly and compellinglyquestions the legitimacy of the government. The provisions stated in theseparticular sub-articles of the UNCAC clearly illustrate the importance ofelections. The independence of the agency that conducts elections forpublic office is essential for its effective and honest functioning. The EChas already undergone progress in this respect. In facilitation of itsindependence, an Ordinance (Ordinance No. V of 2008) was made by theHonourable President on 5 March, 2008 which established theIndependent Election Commission Secretariat. The EC’s independence isimportant because by achieving such status, the EC will be more powerfulin terms of executing its legal jurisdictions over its clientele. Upon exerciseof administrative independence and freedom from undue influence, it willbe able to conduct free and fair elections.
Articles 8.1 & 8.2: Codes of conduct
The UNCAC requires States Parties to promote integrity, honesty andresponsibility among public officials and calls for codes or standards ofconduct for the correct, honorable and proper performance of publicfunctions.
The codes of conduct for civil servants set out the main principles whichgovern the behavior of staff in a modernized civil service. Articles 5 to 33of the Government Servants (Conduct) Rules, 1979 provide guidelines forthe behavior and conduct of public officials in the civil service. Theyaddress issues like acceptance of awards and gifts, public demonstrationof honor to the Government, raising of funds on behalf of the Government,disclosure of assets and speculation of investment, lending, borrowingbuying or selling valuable properties, private trade, and employment.Contraventions of the Rules are dealt with by the provisions of theGovernment Servants (Discipline and Appeal) Rules, 1985, which makesviolations liable to inquiry and punishment if proved.
The detailed Rules of Business, 1996 regulates government businesstransactions and the allocation of functions among differentministries/divisions. These regulations administer over the manner ofbusiness transactions and the procedures for signing orders,
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instruments, arrangements and contracts, which are referred to thePresident or the Prime Minister, and the manner of submitting cases tothe President and the Prime Minister. They also provide procedures forinter-ministerial consultations, Cabinet meetings, formation ofcommittees of the Cabinet, submission of cases to the Cabinet,meetings of the Cabinet committees, action on Cabinet decisions,custody of Cabinet papers, periodic reports on activities ofministries/divisions and so on. The Rules also include protocol for theprotection and communication of official information, channels ofcommunication with foreign governments or agencies andcorrespondence between defense headquarters. It authorizes the PrimeMinister to condone or permit departure from the observance of therules in specific cases or classes of cases to the extent s/he deemsnecessary.
Public administration is one of the most significant institutions indemocratic societies and must have at its disposal appropriateindividuals to properly carry out the tasks with which they are assigned.Public officials, the key actors of the civil administration, should havethe necessary qualifications and a sufficient legal environment andresources in order to complete their duties effectively. Codes of conductand rules of business for public officials are essential in this regard.These policies should comply with the UNCAC standards because in sodoing, they will address a serious threat to the effective functioning ofthe public administration, that is, corruption. Moreover, reforms arenecessary to eradicate the impediments towards establishing rule oflaw, democracy, human rights, equity and social justice, thusdiminishing the obstacles of economic development which endangerthe stability of democratic institutions and the moral foundation ofsociety. Given the significance of this issue, it is laudable that the GoBhas practically complied with these provisions by establishing andimplementing a comprehensive code of conduct that promotes honestyand integrity in its public officials.
Article 8.3: International code of conduct for public officials
States Parties are required to take note of relevant initiatives of regional,inter-regional and multilateral organizations, such as the UN InternationalCode of Conduct for Public Officials (General Assembly Resolution 51/59of 12 December 1996), to ensure compatibility with it.
The General Assembly of the United Nations, in consideration of theseriousness of public sector corruption, adopted the International Code ofConduct for Public Officials (resolution 51/59, annex) in December 1996. Insurvey findings from late 1999 coordinated by the Centre for InternationalCrime Prevention of the Office for Drug Control and Crime Prevention ofthe Secretariat of the United Nations, the majority of states responding
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indicated that their domestic laws or administrative policies includedcodes of conduct that set out clearly and consistently the functions andduties of public officials (Implementation of the International Code ofConduct for Public Officials Report of the Secretary-General, Eleventhsession Vienna, 16-25 April 2002, E/CN.15/2002/6/Add.1). Bangladeshwas one of the compliant respondents among other countries in thatsurvey. Indeed, Bangladesh was also found to be a conforming state foradopting codes of conduct that set out the functions and duties of publicofficials. However, codes of conduct on duties and obligations need to beprovided to public officials upon the time entry.
Compliance with this particular article of the UNCAC, particularly theprinciples of the International Code of Conduct, would undoubtedly fosterintegrity in the public service and encourage adherence to codes ofconduct at the domestic level. However, it requires significant resources todetermine the strategies for implementation of the International Code ofConduct for Public Officials and to ascertain its direct impact on domesticlegislation. Once its impact is assessed, the GoB may develop a properstrategy for introducing legislation implementing these international codesof conduct at the national level.
Article 8.4: Reporting acts of corruption
States Parties are bound by the UNCAC to establish measures andsystems that facilitate public officials reporting acts of corruption toappropriate authorities.
This particular provision essentially refers to a special law or regulationwhere a public official can report the corrupt acts of another public official,commonly known as a “whistleblower” law. There is no explicit legalprovision regarding this in Bangladesh. However, there are laws thataddress corrupt acts by public officials. Chapter IX of the Penal Code dealswith offences by or relating to public officials. Section 161 addressessituations such as public servants taking gratification other than legalremuneration in respect to an official act. Sections 162 and 163 also dealwith corruption of public servants. Moreover the ACC Act, 2004 providesguidelines for investigating corruption cases of any individual or institution.It can report corruption cases and prosecute public officials after properinvestigation. However, there is a major gap with regard to protectionprovided to complainants from within the civil service.
The Government of Bangladesh may enact a separate whistleblower lawto strengthen anti-corruption mechanisms in the public sector. Thesignificance of such a law is that it serves to strengthen and improveprotection of the rights of public employees, prevents reprisals, and helpsto eliminate wrong doing within the Government by mandating thatemployees not suffer adverse consequences as a result of voluntary
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disclosure of information related to illegal/corruption activities. Such a lawwill establish a framework where officials are not punished by theirsuperiors for voluntary disclosure, along with creating sufficient protectionmechanisms, such as privacy of the informant’s identity. By implementinga whistleblower law, the GoB can be fully compliant with this particularprovision of the UNCAC and encourage the discovery of acts ofcorruption. In addition, a concrete policy from the GoB with regard to thisissue is essential for the safeguarding of whistleblowers, so that theirprotection goes beyond legal documents, to guarantee that their rights arepractically protected.
Article 8.5: Asset declaration
The UNCAC recommends States Parties to establish measures thatrequire public officials to declare to appropriate authorities outsideactivities, employment, investments, assets, and substantial gifts orbenefits received from which a conflict of interest may arise.
In accordance with rule 13 of the Government Servants (Conduct) Rules,1979, public officials are required to provide statements of wealth at thetime of recruitment, which would include any moveable and/orimmoveable assets. Public officials must also provide an annual update ofsuch assets. By implication, this would include assets located inBangladesh and/or abroad. Furthermore, the Government can also ask fora statement of liquid assets from any public official under rule 14 of thesame Rules. Moreover, sections 168 and 169 of the Penal Code, 1860provide criminal liability for public officials engaging in unlawful trade,bidding or buying of any property. Both of the sections strictly recommendimprisonment for violation of the law.
In practice, submissions of wealth statements at the time of recruitment ofpublic officials have been maintained while submissions of annual updateshave been irregular. However, to strengthen compliance, by a recentadministrative order, the Ministry of Finance has asked public officials tosubmit and update wealth statements in a prescribed format.
Implementing the regulations for declaration of assets and liabilities ofpublic officials and making them public is critical in that such acts promotea corruption free civil service. To that end, the Government has been keento promote this in every strata of the public sector. Nonetheless, to achievecompliance with the UNCAC and detect possible acts of corruption, thenational legislation requires modification, particularly in terms ofmodernization, in order to hold public officials accountable by makingthem declare their assets transparently. Modernization in the area of assetdeclaration can be done by making the process of submission more e-friendly, e.g., the GoB can redesign the format of the asset declarationforms and make them available on government websites. Additionally,
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related rules and circulars can be modified in light of the current state ofthe economy to redefine the ceiling for public officials in terms of holdingparticular assets. However, the GoB has shown that it is willing to bringabout needed modifications for this significant UNCAC issue. Acomprehensive Civil Service Rules is in the process of being drafted and itis expected that it will modify the relevant rules, thus making the domesticlegal regime compliant in regard to this provision.
Article 8.6: Violation of conduct in public service
The UNCAC requires States Parties to take measures to initiate disciplinaryor other measures against public officials who violate codes or standards.
The Government Servants (Discipline and Appeal) Rules, 1985 makes agovernment servant liable to inquiry for the contravention of the provisionsstated in the Government Servants (Conduct) Rules, 1979, andrecommends measures for punishment when proved. Part II of the Rulesdescribes the issue of discipline in civil service with procedures of inquiryin cases of major and minor penalties. Moreover, part III provides for anappeal procedure against any government order. Overseeing this issue arethe Ministry of Establishment and the Cabinet Division. Disciplinarymeasures are quite regularly taken against those officers who had beenaccused of violating the law. However, discipline in itself is likely notsufficient to encourage adherence to codes and standards; if there is noincentive or reward for better performance, then there may be lessmotivation to uphold codes of conduct.
2.3 Public Procurement
Article 9.1: Appropriate systems of procurement
The UNCAC obligates States Parties to take necessary steps to establishappropriate systems of procurement, based on transparency, competitionand objective criteria in decision making, which are effective for theprevention of corruption. These steps include the public distribution ofinformation relating to procurement procedures and contracts, invitationsto tender, and the award of contracts (article 9.1(a)), establishment ofconditions of participation including selection and award criteria (article9.1(b)), use of objective and predetermined criteria for public procurementdecisions (article 9.1(c)), an effective system of domestic review, includingappeal (article 9.1(d)), and rules regarding declaration of interest, inparticular public procurements and screening procedures (article 9.1(e)).The following sections provide an analysis of compatibility and complianceof both the act and rules in Bangladesh and the practice in the area ofpublic procurement.
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The Constitution of Bangladesh has no direct provision bearing on publicprocurement nor was there any nationally applicable procurement law toregulate approximately 3 billion USD per year of government procurementuntil 2003 when the Public Procurement Regulations, 2003, wasapproved. A high percentage of the annual volume of public procurementin Bangladesh is externally funded. The major share of public procurementis handled by public sector corporations and semi-autonomous bodies,such as the Water Development Board, the Roads and HighwaysDepartment, the Local Government Engineering Department, theBangladesh Railway, Telephone and Telegraph Board, the RuralElectrification Board, the Dhaka Electric Supply Authority, the Dhaka Waterand Sewerage Authority, and the Port Authority.
The public procurement procedures and practices have evolved over theyears from the days of British and subsequent Pakistani rule. ACompilation of General Financial Rules, originally issued under British ruleand slightly revised in 1951, was reissued in 1994 and 1999 with very fewchanges. Poor performances in different projects lead to an assessment ofthe then public procurement policy, framework, institutions and staff skills,leading to the Country Procurement Assessment Report by theImplementation, Monitoring and Evaluation Division (IMED) under theMinistry of Planning with the World Bank (WB), which identified manydeficiencies in the public procurement system.
The recommendations of the report were formulated into a comprehensiveregulatory and policy regime for public procurement in 2003. These includethe Public Procurement Regulations (PPR), 2003 and the PublicProcurement Processing and Approval Procedures (PPPAP), 2004.Afterwards, the Public Procurement Act (PPA), 2006 has come into forceon 31st January, 2008 along with the Public Procurement Rules (PPR),2008 (gazette notified on 27 January 2008 from the CPTU of the IMED ofthe GoB), which consolidated the whole regime. PPR, 2003 was more asuccessful attempt to bring all public sector bodies under one uniformumbralla for systemic procurement and dissemenation across the country.PPR, 2008 consolidated the lessons learned under PPR, 2003 movingone-step forward with the aim of enhancing the capacity of the stakesholders. Moreover, PPR, 2008 criminalizes corruption in procurementprocesses by public officials and other relevant parties as a means toaddress some of the existing maladies.
Section 3 of the PPA, 2006 prvides that the act will extend to the whole ofBangladesh and shall apply to procurement of goods, works or services byany procuring entity (including registered company) useing public fundsand procurement by any government, semi-government or any statutorybody. Further, PPA, 2008 has been amended by the Public Procurement
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(Amendment) Ordinance, 2007 adding the provision to the scope andapplication of the PPA, 2006 in relation to procurement in foreign aidedprojects providing that the provisions of the act will be applicable in suchcases unless there is any thing contrary in the loan, credit or grantagreement with a development partner or a foreign state or anorganisation.
The Government also approved the implementation of the “PublicProcurement Reform Project” (PPRP) with WB assistance for improvinggovernance in public procurement. A Central Procurement Technical Unit(CPTU) within the IMED was established under the Ministry of Planning,which is in charge of monitoring the procurement process. The CPTU assists procuring entities in implementing the act and rules andmonitors the functioning of the public procurement system. Through itswebsite the CPTU provides information on procurement laws, tenderinvitations of public entities of certain threshold value of procurement andits monitoring activities. Other components of the project includeimplementation of public procurement reforms and improvement ofprocurement management capacity.
The PPR, 2008 (rules 13-18, 47-49, 56-60) has specified the basicprocurement guidelines, including public accessibility of tendering rules,eligibility and non-discrimination criteria regarding the selection of tender,and the required qualifications of tenderers. Furthermore, section 40 of theact and rule 90 (through rules 61,62) state that an open national tenderingsystem is the preferred system for procurements in the public sector. Theserules also include provisions for the organization of any public procurement,including policy formulation, coordination, and monitoring of theprocurement procedure. A detailed legal framework for complaints andappeals to ensure legal recourse and remedies incorporates bothadministrative and independent review mechanisms (rules 56-60). The PPR,2008 also provides detailed guidlines for international procurement (rules83-87). In addition PPR, 2008 reguries the establishment of a TenderOpening Committee (TOC) and Tender Evaluation Committee(TEC)/Proposal Evaluation Committee (PEC) for goods, works and servicesprocurement. TECs are in charge of evaluating bids and are required tofurnish detailed reports for awards to the approving authority (rules 101-102).
The PPA, 2006 and the PPR, 2008 aim to provide a legal frameworkgoverning public sector procurement. Additionally, these laws seek toensure greater autonomy from Cabinets and concerned Ministries thougha shift to procuring entities both at the national and local levels, who havenow been delegated the authority to award and approve contracts (withindefined ceilings). Taking a pro-client approach, the CPTU has alsoproduced several other documents including customized formats,
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guidelines, and manuals on various procurement issues for procuringentities and tenderers. Some of these documents include formats forquotation requests and guidelines for restricted and open tenderingmethods. Steps have also been taken to professionalize the managementof the public procurement system and improve capacity through trainingpublic officials. A critical mass of about 25 national trainers and 1800 staffhave been trained which will contribute to improving the administration ofcontracts and the quality of bidding processes. Overall, these approachesand activities have provided a sound mechanism for ensuringtransparency and accountability. Additionally, a public/private partnershiphas been established consisting of beneficiary groups, civil society, andNGOs, which will take up the role of working closely and constructivelywith beneficiary communities, the CPTU, procuring entities, andcontracting communities in order to facilitate proper implementation of theregulatory regime.
However, application of the national procurement act and rules has provento be relatively inconsistent across the Government and within individualagencies; furthermore, implementation of the rules has severely strainedthe capacity of executing agencies. Vulnerabilities in relation to themanagement of procurement include lack of information and expertise,contacts and collusion, conflicts of interest with public officials, lack ofaccountability and political influence. Experiences in procurement haveconsisted of discrimination and delay in the issue of bidding documents tosuppliers, cartel information to suppress competition, physical threats tobidders, bid boxes at multiple locations, tampering of bid files, delays inevaluation of bids, human interference at every stage, and an unwillingnessto provide transparency. Moreover, limited knowledge of procurementrules and procedures by public officials remains an issue. In cases ofemergency procurements, the use of “time waivers” (reducing the timespan for bidding) is also problematic.
The Public Procurement Reform Project II is expected to address some ofthe above-mentioned concerns. This project will be implemented over aperiod of five years from 2007 through four distinct compenents, such as,Policy Reform and Institutionalizing Capacity Development; StrengtheningProcurement Menegement at Sectoral Level; Introducing e-governmentProcurement and Communication, Behavioral Change & SocialAccountability. The project will form a Management Information System(MIS) with the four most crucial sectors of the GoB, i.e., the Roads andHighways Department, the Local Government Engineering Department, theWater Development Board, and the Rural Electrification Board. The MIS willaspire for greater transparency on procurement in these sectors. Plans arealso in place to promote a system of procurement based on the use of e-governance, which is expected to cut costs and promote transparency.
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It is widely believed that procurement in the public sector is the biggestsource of corruption all over the world. The objective of the UNCAC is tocurb those bad practices in procurement and to influence the Governmentto empower procurement professionals against corruption and ensure thatthey have enough tools, training, and inspiration to deliver improved publicservices more efficiently. In partnership with the international developmentpartners, GoB has taken action to make the procurement process moreeffective, thereby promoting a sustainable development agenda.
Article 9.1(a): Distribution of procurement information
In accordance with the principles of the UNCAC, systems of procurementshould include clear procedures for public distribution of information,particularly information on invitations to tender and pertinent informationon the award of contracts, which allows potential tenderers sufficient timeto prepare and submit their tenders.
Rule 14 of the PPR, 2008 require that procuring entities make publiclyaccessible in paper and in e-format all relevant information pertaining toany specific tenders, specifically records relating to the tender, informationconcerning the award of contracts, and legal texts. Further, PPR, 2008directs procurement entities to furnish, upon request from any concernedperson, all documentation relating to the proceedings of an award ortermination of any contract. A number of issues continue to exist in relationto advertisement of procurement notices, specifically poor advertisement,i.e., advertisements in “less circulated” newspapers, non-compliance withtime requirements, and fraudulent practices relating to the posting ofnotices. These issues of transparency were raised in a legal action, whereit was decided that procuring entities would be responsible for thedissemination of information relating to procurements and that alladvertisements must be circulated in government listed newspapers thatare “well circulated.” Additionally, efforts are also underway to demystifythe language of advertisements.
Section 40 of the recently effective Public Procurement Act, 2006expressly mentions the necessity of distributing information aboutinvitations to tender and other pertinent information required in theprovisions of the UNCAC. Moreover, the CPTU has established a website(www.cptu.gov.bd) to provide diversified information on establishing andmaintaining databases on prices, quality, volumes, performance ofsuppliers, and the like that are simple and easy to use. These may help toreduce opportunities for corruption and make the whole process costeffective for its beneficiaries.
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Article 9.1(b): Conditions for participation, criteria for selection and award
In accordance with the provisions of the UNCAC, procurement systemsare also required to establish in advance, conditions for participation,including selection and award criteria and tendering rules; additionally,these conditions must be publicized.
Under PPR, 2008 any government agency who uses public fund mayauthorize to make decision and take action as a procuring entity.According to rule 130 the CPTU is vested with the responsibility ofproviding guidance for setting up an enabling environment and conditionsfor participation. Rule 47 provides for non-discrimination, while rule 48 setsout criteria for the qualification of tenderers. These criteria include thepossession of necessary technical and professional qualifications, legalcapacity to enter into contract, and meeting tax and social securitypayment obligations. Rules 48-49 require any procurement process tostipulate technical specifications for the award of any contract. Rules 56-60 provide for a Review Panel that is responsible for reviewing a tenderer’scomplaint and recommending corrective action to a procuring entity, withrespect to any breach of its obligations under these Rules. From the 31cases brought before the Review Panel between the years 2003-2007, it isclear issues still exist with regard to setting up transparent and objectiveselection criteria as the Committee found four instances where theprocuring entities did not stipulate clear criteria on the basis of whichcontractors were selected.
Sections 5 to 8 of chapter 2 of the Public Procurement Act, 2006 proposesystems for the preparation of tender, handling proposals, establishmentof committees, and the like. The whole of chapter 3 is dedicated to“Principles of Public Procurement,” which covers “General Guidelines”(part 1), specifically the public accessibility of the Procurement Act, formsof communication, preparation of procurement plans, procurement relateddocumentation, competition in procurement, determination of tendervalidities, contracts, administration and management, maintenance ofprocurement records, and procurement post review procedures. Part 2 ofthe chapter deals with participation in the procurement process, while part3 looks at complaints and appeals.
The prime motive of the procurement legislation is to ensure a profitablepurchase by the Government so that it can use the public funds mosteffectively and transparently, thereby ensuring that citizens benefit fromthe services of the public sector. The current legal instrument, after itseffectiveness in 2008, has sufficiently achieved this aim in line with theprovisions of the UNCAC.
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Article 9.1(c): Predetermined criteria for public procurement decisions
Article 9.1(c) of the UNCAC requires the use of objective andpredetermined criteria for public procurement decisions.
Rule 8 of the PPR, 2008 requires procuring entities to appoint a TEC at theappropriate level to examine, evaluate and prepare a report withrecommendations for the award. The TEC should consist of 5-7 membersof which two must be experienced in procurement and from outside theprocuring entity in certain threshhold value. In accordance with rule 100,TECs are required to determine, on the basis of criteria set out for postqualification in the tender document, whether the tenderer with the lowestevaluated cost has the capability and resources to effectively carry out thecontracts. Should the tenderer not meet the criteria, the tender is liable tobe rejected.
Section 13 of chapter 3 (part 1) of the Public Procurement Act, 2006 setsout the obligation of procuring entities for formulating criteria for tendererqualification assessment and evaluation, which should be stated in thetender or proposal document. Section 43 of chapter 6 (part 2) details theprocess of evaluating prequalification applications and the making ofdecisions thereon. Sections 48 to 51 under the same chapter of PublicProcurement Act, 2006 govern the evaluation of tenders, postqualification of tenderers and the approval process. Section 56 of part 4provides for the evaluation of applications and approval of short lists andsection 59 addresses evaluation of proposals. These provisions are veryimportant in establishing a proper framework for choosing appropriateactors for procurement purposes and ensuring that the Government andsociety gets the full benefit of such arrangements.
Bangladesh has not only taken significant steps toward meeting theUNCAC demands of transparency in procurement procedures, but hasheeded the Convention’s encouragement of effectiveness in establishingcriteria for public procurement decisions through implementation of therelevant national legislation. Indeed, the current legal discourse has shownthe GoB’s enthusiasm to achieve the recommended international standard.
Article 9.1(d): Review and appeal
The UNCAC requires that effective systems of domestic review, includingan adequate system of appeal, be put in place to ensure legal recourseand remedies where procurement rules and procedures have not beenfollowed.
Rules 56-60 of the PPR, 2008 set out detailed mechanisms andprocedures for complaints and appeals that include the right to appeal, the
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establishment of a review panel, and procedures for bringing a complaintto the review panel. Complaints can be submitted to the procuring entityin the first instance. In the event the complainant is not satisfied with thedecision of the procuring entity, s/he may go to the next stage of review,i.e., to the Secretary of the concerned Ministry. Finally, the complainant hasthe option to pursue his/her dissatisfaction to the review panel constitutedunder rule 60 of the PPR, 2008. Between 2003 and 2007, a total numberof 31 cases were brought before the Review Committee under the CPTU.Of these, at least three cases resulted in the procuring entities being askedto re-tender.
Section 24 of the Public Procurement Act, 2006 describes the system forprocurement post review. The Act obligates the Government to establish aprocuring entity which shall, within nine months of the end of each fiscalyear, arrange for an independent procurement post review on a samplebasis from its total procurement activities during the preceding year. Part3, “Complaints and Appeals,” of chapter 3 details the procedures forexercising the right to complain (article 29), lodging complaints to theadministrative authority, and making appeals (article 30). The essence ofthe system is to provide justice for the proper bidder due to the failure ofa procuring entity to fulfill its obligations under the Public ProcurementAct, 2006.
Despite the aforementioned, there is a serious need for training andcapacity building of public officials, bidding communities andbeneficiaries in procurement related issues. This includes enhancedknowledge of the Public Procurement Act, 2006 and the PublicProcurement Rules, 2008 and its procedures, along with improvedtechnical skills for evaluation and assessment in procurement. The CPTUis in the process of initiating such training, with assistance of the WorldBank, under Phase II of the PPRP. Insufficient procurement expertise andinadequate delegation of powers has considerably slowed downeffective implementation of the procurement procedures. In light of theseobstacles, the CPTU has started procurement management capacitybuilding programs to substantially enhance capacity for procurementmanagement through a structured education and training curriculumaddressing the needs of senior managers, working level staff, auditorsand the business community for the purposes of building a profession ofprocurement specialists. This will promote the capacity of concernedpersons to contribute effectively in the review and appeal mechanisms ofprocurement decisions, along with enhancing abilities in other areas ofthe procurement. Consequently, the implementation mechanism ofproper procurement has been strengthened, which has madeBangladesh a compliant state with regard to the UNCAC provisions onprocurement.
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2.4 Management of Public Finances
Article 9.2: Management of public finances
Under article 9.2, States Parties are obligated to take appropriatemeasures to promote transparency and accountability in the managementof public finances. Such measures should include procedures for theadoption of the national budget (article 9.2(a)), timely reporting on revenueand expenditure (article 9.2(b)), appropriate systems of accounting,auditing standards and related oversight (article 9.2(c)), and riskmanagement and internal control (article 9.2(d)).
The Ministry of Finance is required to prepare and present an annualbudget, the financial statement of the country for the fiscal year, to theParliament in accordance with article 87 of the Constitution. The budget isbased on requests for allocations from various ministries, divisions anddepartments. Rules 111 to 115 of the Parliamentary Rules of Procedureprovide a detailed framework for the presentation of the budget and itsdeliberation. Article 127 of the Constitution establishes the Office of theComptroller and Auditor General (CAG) for the management of all publicfinances and related oversight of all public institutions. In accordance witharticle 128 of the Constitution, the CAG prepares the audit report of allpublic accounts of the Republic, including revenue and expenditures. TheCAG is also required to present the report to the Head of the State, i.e., thePresident of Bangladesh (article 132 of the Constitution). The report is thenplaced before the Public Accounts Committee for scrutiny and discussionby the Parliament. The CAG is also constitutionally designated as theSupreme Auditing Institute for financial audits, along with compliance,regulatory and performance audits.
The Parliamentary Rules of Procedure provides a detailed framework forthe formulation and finalization of the budget; however, it is generallyaccepted that improvements can be made to the quality of consultationsheld with the various ministries and relevant departments. Financialpriorities in the process of formulating the budget need to be guided byperiodic sectoral policy analysis. The absence of such analysis hinderstransparency and creates opportunities for mismanagement of publicfunds.
Existing auditing standards such as the accounts code for governmentexpenditures, the field auditing and reporting standards, the audit codeand operational manuals, performance manuals for different directorates,the code of ethics for government auditing, and the financial managementrules are all complimentary to the provisions of the UNCAC. Nevertheless,improvements are necessary to strengthen auditing systems. Presentsystems can be improved through a focus on auditing corruption. More
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emphasis should be given to corruption audits rather than the presenttrend of compliance and regulatory audits. In addition, International PublicSector Accounting Standards (IPSAS) should be followed in order toimprove accounting mechanisms and achieve international compliance.Other possible improvements include providing customized internalcontrol manuals for different ministries (like those in the Ministry ofFinance). There is also a need for separate internal audit departmentswithin ministries to compliment the function and role of the offices of theCAG. This lack of separate departments is a key reason for delays infinalizing and submitting annual audit reports. The latest CAG report beforethe President is for FY 2004-05. The reports for FY 05-06 will be due in FY07-08, while those of FY 06-07 will be due in FY 08-09. This severelydelays any corrective action proposed by the Government. It is alsoimportant to conduct audits for foreign aided projects as this will ensuredonor accountability in the public international sector. Moreover, strongerenforcement measures are required to enhance both public sector andinternational public sector accountability. Introduction of physical,environmental and free auditing systems by the Executive Committee ofthe National Economic Council is encouraged. It is important that allstakeholders of the public sector, international public sector, and privatesector are committed to guaranteeing proper public finance management.
The forthcoming Audit Act could seek to address some of theabovementioned issues which is regarded as highly desirable to close thegap between policy and practice in this sector. Furthermore, it would behelpful to conduct strict audits for development projects by the GoB toreduce the propensity of corruption related to these projects. Such auditsinvolve monitoring and evaluation of the project by the internationaldevelopment partners in the project’s mid-term and final state. Anothersignificant area with regard to auditing and public finances is auditing of theprivate sector, which is linked with the financial management system of thepublic sector; most importantly, it has indirect effects on the auditingstandards of the public sector and the overall development of the country.Consequently, the Government should incorporate policies requiring theprivate sector to comply with national accounting and auditing standards. Inaddition, the prevailing system in auditing and accounting practices of theprivate sectors and autonomous bodies should be reviewed by the CAG. Aproper policy in regard to this review process should be formulated in nearfuture. Indeed, the proposed Audit Act could produce guidelines in thisregard.
The budget process of the fiscal year 2007-2008 was fairly consultativewith changes made to the proposed budget after input was received fromthe public budget process. The GoB has just announced its budget for thefiscal year of 2008-2009. The budget, according to the Finance Adviser, isa participatory one which is subject to modification based on the response
47
of the persons from all sectors of society. The Government has run severalconsultative meetings with stakeholders before formulating the proposedbudget. Additionally, it welcomes any comment on the budget which isposted electronically on the website of the Ministry of Finance. The wholeprocess will be more consultative with a farsighted approach fordevelopment rather than a top-down process in which the annual financialstatements prepared by different sectors are presented by the FinanceMinister. Furthermore, this consultative approach promotes a well craftedmechanism for the management of funds in the implementation stage asparticipatory budgets involve turning over budgetary decisions to citizensand significant stakeholders through the use of public arenas which allowfor discussion and prioritization of needs and demands.
Finally, the UNCAC has guided States Parties to prepare an all-inclusivepolicy detailing such key areas as the formulation of the national budget,efficient internal finance mechanisms, and accounting and auditingstandards. Such a comprehensive policy will ultimately ensuretransparency and effective use of public finances. The trajectorymentioned in the UNCAC should be followed by the Government ofBangladesh. At this point, the GoB is making a few modifications in itsformulation of the annual budgetary process by applying participatorymethods. However, the Government must still work on the managementsectors of public finances. To that end, enactment of a comprehensiveaudit act and capacity development of the audit officials would improvethe status of Bangladesh, making it fully compliant with this particularprovision of the UNCAC.
2.5 Participation and Access to Information
Article 10: Public reporting
The UNCAC requires States Parties to enhance transparency in publicadministration, particularly with regard to its organization, functioning anddecision-making processes. It encourages governments to adoptprocedures or regulations allowing members of the general public toobtain, where appropriate, information on the organization, functioning anddecision-making processes of its public administration with due regard forprotection of privacy and personal data (article 10(a)). The article guidesStates Parties to facilitate public access to the competent decision-makingauthorities (article 10(b)) and to publish information, specifically reports onthe risk of corruption in public administration (article 10(c)).
The GoB has recently made efforts to guarantee a significant civil right ofits citizens, specifically the right to information (RTI), by taking the initiativeto enact an ordinance on the RTI through the Right to InformationOrdinance, 2008. Currently a draft version of the Ordinance was prepared
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by an eight member committee headed by a Joint Secretary of the Ministryof Information along with representatives from civil society such as theManusher Jonno Foundation. Additionally, it has been placed on theMinistry’s website for further public scrutiny.
The Ordinance has been drafted in the spirit of promoting the freedom ofthought, conscience, and speech, which has been recognized in theConstitution. The realization of this right is essential as it empowerscitizens to actively participate in the democratic process. The draft RTIOrdinance contains 37 articles, including one for the establishment of anInformation Commission which shall have the power to prepare guidelinesto be followed by the competent authority governing the preparation ofcatalogues and indexes of available information. The prescribedInformation Commission can also impose fines of up to Taka 5,000 (1 USD=70 Taka (appx.)) and recommend punishment as per the servicerules if any authority/institution fails to provide information to citizens in thestipulated time frame.
The Ordinance defines “information” broadly; it includes advice, circulars,orders, contracts, statistics, e-mail, logbooks, materials, models, memos,opinion, papers, press releases, records, reports, samples, material held inany electronic form, correspondence, memoranda, books, plans, maps,drawings, diagrams, photographs, films, microfilms, sound recordings, VDOtapes, records readable in machine, any certified materials irrespective of itscondition and nature and its reproduction, and any information about anyauthority obtained under any law in force. Section 2 includes some privatesector organizations along with public sector in the definition of “authority.”The Ordinance states that public sector organizations are bound to produceannual reports at least once in every two years. With regard to internationalcompliance this is not problematic as global best practices with respect tothese kinds of laws are only applicable to the public sector. Additionally,section 9 of the draft Ordinance provides that information related to statesecurity, sovereignty, dignity, foreign policy, defense, relations with foreigncountries or foreign organizations, commerce or trade interests, technicalscientific interest, income tax, customs and excise duties, monitoring andexecutive operations of financial organizations, and disclosures counter topublic interest will be exempt from production requirements. However, section9 requires revision to make it more comprehensive and specific as thesecategories are so broad that it could negate the purpose of the Ordinance.
In the Ordinance, the Government has taken a cautious stand with respectto citizens’ access to issues related to national defense and security.Exemptions are given to information related to the aforementioned issuesfor the sake of national interest. It is assumed that disclosure of informationon such issues would prejudicially affect the sovereignty, honor, foreignpolicy, defense or relations with foreign states or organizations (section 9
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of the proposed Ordinance). Although this is a valid concern, the GoB mustensure greater transparency and accountability to strengthen democracy.Information submitted to the GoB by both public and private sectororganizations under existing legal frameworks should be made available togeneral public. Additionally, the Ordinance should include procurementrelated documents, including public, private, and defense sectorprocurement, within its jurisdiction.
Although, quite comprehensive, the draft Ordinance may benefit fromsome modification. Section 4(2) emphasizes the importance of catalogingand indexing, while section 5 explains different modes of informationtransmission. However, the role of information technology is missing;particularly, there is a lack of guidance on the creation of e-reports andmodes of supply through mediums of information technology. Makingdocuments readily available in electronic formats through the internetwould facilitate access to information in an efficient and cost-effectivemanner. Additionally, the proposed Information Commission should enjoythe status of an “institution of accountability;” in particular, it shouldexercise both functional and financial independence and its accountabilitymechanisms should be properly practiced ensuring that it will perform itsduties and responsibilities effectively.
The Ordinance is likely to be promulgated within the shortest possibletime, potentially in July 2008, to ensure public access to information tomaintain transparency and accountability in government and non-government levels. The Ministry of Information took a public/private co-production strategy through legal dialogues with civil society, NGOs,intellectuals, lawyers, journalists, businessmen and other professionalsin order to receive recommendations and input. The effectiveness of thisproposed Ordinance, through its proper implementation, would improveBangladesh’s status in regard to compliance with the Convention.Additionally, it would bolster the philosophy of democratic governance inwhich people enjoy their constitutional right of access to informationwhich is a necessary condition for transparency (article 39 of theConstitution of People’s Republic of Bangladesh). This free flow ofinformation to the masses would generate informed opinions, strengthenour democracy and create an enabling environment for goodgovernance.
Article 13: Participation of society
The UNCAC requires States Parties to promote the active participation ofindividuals and groups outside the public sector, such as civil society,NGOs, and community based organizations, for the purposes ofpreventing and combating corruption and to raise public awarenessregarding the existence, causes, gravity, and threat posed by corruption
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(article 13.1). It emphasizes the significance of measures that ensure publicaccess to the anti-corruption bodies of the State Party for any kind ofreporting or inquiry (article 13.2).
Combating corruption has emerged as a key issue of concern in recentyears. The GoB has made tremendous efforts to restrain the level ofcorruption in the public sector, along with encouraging the private sectorto be more effective and responsive to integrity. The response from theprivate sector, civil society and the general population has beenremarkable. The Government’s effort to incorporate people into theprocess of preventing corruption has had an impact on the expansion andconsolidation of democracy. Undoubtedly, sustenance of the anti-corruption mechanism significantly depends upon the participation of civilsociety and other non-governmental actors, of which raising awareness ofthe mass drive against corruption plays an important role.
The legal anti-corruption framework of Bangladesh, particularly, the Anti-Corruption Commission (ACC) Act, 2004 supports popular participationin the prevention of corruption. Section 17 of the Act (Functions of theCommission) explains the role of the Commission in research andpromotion of anti-corruption ideas through awareness campaigns, alongwith its legal and prosecutorial activities. One of the significant activities ofthe ACC is to promote the values of honesty and integrity in order toprevent corruption and take measures to build up mass awareness againstcorruption (section 17g). It can also arrange seminars, symposiums andworkshops on the subjects falling within the jurisdiction of the Commission(section 17h). These functions of the ACC encourage mass participation byall sectors of society. Moreover, the Commission, under the purview of thisAct, can carry out research on the issues of prevention of corruption andprepare recommendations for the President regarding actions whichshould be taken on the basis of their research findings (section 17f). Theirempirical research is likely to incorporate and reflect the demands of thepopulation as part of its methodology. Additionally, there is a provision forthe publication of an Annual Report by the ACC. Moreover, section 29 ofthe ACC Act ensures people’s access to information about anti-corruptionactivities undertaken by the Government.
To promote a successful anti-corruption strategy where the voice of publicopinion could be an effective and politically neutral mechanism to combatcorruption, the ACC has taken steps to raise public awareness. In the past,it was a rare occurrence to find such activities in Bangladesh. The purposeof these efforts is to make the public aware about the impact of corruptionon social, political and economic life. In particular, the Governmentendeavors to spread a message that will foster transparency andaccountability which is essential to curb malfeasance by those in thepublic sphere. To that end, the ACC aims to promote the role of civil
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society organizations to advocate for such reform initiatives. As part of thiseffort, the ACC launched a consciousness raising campaign againstcorruption on April 2007, in association with Transparency InternationalBangladesh. The ACC is also interested in establishing citizens' anti-corruption committees at the district level. This is an exemplary effort inwhich the Government, with the assistance of civil society, is attempting toinvolve people in the overall anti-corruption drive. Under this campaign,the Chairman of the ACC has commenced a national tour to meetstakeholders such as civil society groups, local administrations,journalists, students and field-level ACC officials. Specifically, in May 2007the Chairman visited the Chapainawabganj, Rajshahi, Natore and Pabnadistricts and received many constructive responses from participants.Moreover, the Chairman and co-organizers visited many places within thecountry and arranged consultation meetings, colorful rallies, and eventsled by the young people, along with giving public service announcementsfor media, organizing debates and dialogues, in addition to otherawareness campaign tools, for the purposes of accelerating massparticipation in the anti-corruption battle. The architects of the campaignbelieve that the ongoing drive against corruption will be a comprehensivelong-term effort which demands the participation of people from all levelsof society in order to be successful.
Participation of society and a public-private partnership are critical to thesuccess of any anti-corruption mechanism as such activities promote asustainable development process of the state by curbing levels ofcorruption. To that end, the UNCAC has tried to institutionalize societalparticipation in government efforts to curb corruption. As a first step, theGovernment of Bangladesh has approached the issue by incorporatingsocietal participation through the formal legal document of the Anti-Corruption Commission. However, the ACC Act, particularly in regard toprevention, needs more clarification and resources in order to be properlyimplemented. Citizen’s committees, promised to be established by theACC, should be created and activated with clear terms of reference.Additionally, regular campaigns should be launched which attract people,particularly the youth of society. Moreover, motivational workshops anddialogues should be arranged. Most importantly, the ACC needs tomonitor the effectiveness of its Research, Analysis, Prevention & MassAwareness Department which is responsible for formulating andimplementing these activities.
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4
An
ti-C
orr
up
tion
Co
mm
issi
on
Ru
les,
20
07
Em
erg
en
cyP
ow
ers
Ru
les,
20
07
Crim
ina
l La
w (
Am
en
dm
en
t)
Act
, 1958
Oth
er
rele
van
tla
ws
an
dre
gu
lato
ryfr
am
ew
ork
sh
ave
be
en
incl
ud
ed
inth
eo
the
rp
art
so
fth
ere
po
rtco
rre
spo
nd
ing
toth
eva
rio
us
the
ma
tica
rea
so
utli
ne
din
the
UN
CA
C.
Th
eA
CC
Act
,2
00
4p
rovi
de
sa
con
solid
ate
dfr
am
ew
ork
top
reve
nt
corr
up
tion
an
do
the
rre
late
dp
ractic
es
inth
eco
un
try
an
dth
eo
vera
llfr
am
ew
ork
toco
nd
uct
en
qu
iry
an
din
vest
iga
tion
for
spe
cific
off
en
ces
an
dto
en
act
oth
er
rele
va
nt
ma
tte
rsin
rela
tion
toco
rru
ptio
n.
Ach
an
ge
inth
efo
cus
of
the
Ca
reta
ker
Go
vern
me
nt,
inJa
nu
ary
20
07
ha
sm
ea
nt
tha
tu
nd
er
the
ne
wle
ad
ers
hip
,si
gn
ifica
ntste
ps
ha
veb
ee
nta
ken
tow
ard
refo
rms
for
go
od
go
vern
an
ce,
figh
ting
corr
up
tion
an
dco
mp
lyin
gw
ithin
tern
atio
na
lsta
nd
ard
s;
Th
ese
ha
vein
clu
de
dth
ea
cce
ssio
nto
the
UN
CA
Cin
Fe
bru
ary
20
07
an
dth
ech
an
ge
of
lea
de
rsh
ipin
an
um
be
ro
fre
leva
nt
sta
tein
stitu
tion
sin
clu
din
gth
eA
nti-
Co
rru
ptio
nC
om
mis
sio
n,
Pu
blic
Se
rvic
eC
om
mis
sio
na
nd
the
Ele
ctio
nC
om
mis
sio
n;
AR
eg
ula
tory
Re
form
Co
mm
issi
on
ha
sb
ee
ne
sta
blis
he
dh
ea
de
db
ya
very
sen
ior
leve
lfo
rme
rp
ub
lico
ffic
ial;
Th
eG
ove
rnm
en
tis
als
oin
the
pro
cess
of
form
ula
ting
aN
atio
na
lIn
teg
rity
Str
ate
gy
(NIS
),w
ithth
ep
art
icip
atio
no
fa
wid
era
ng
eo
f
Itis
exp
ect
ed
tha
tth
eN
ISw
illo
ffe
ra
visi
on
for
the
de
velo
pm
en
ta
nd
imp
lem
en
tatio
no
fre
form
sto
pro
mo
teb
ett
er
go
vern
an
cea
nd
com
ba
tco
rru
ptio
nin
Ba
ng
lad
esh
;
Th
eN
ISw
illse
ek
tost
ren
gth
en
inte
rna
lco
ntr
ols
inst
ate
instit
utio
ns
an
da
ims
toin
du
cea
cultu
rals
hift
by
en
cou
rag
ing
the
ad
op
tion
of
citiz
en
-ow
ne
da
cco
un
tab
ility
me
cha
nis
ms
inB
an
gla
de
sh;
Th
ep
rese
nt
rep
ort
ise
xpe
cte
dto
gu
ide
futu
rea
nti-
corr
up
tion
refo
rms
inlin
ew
ithth
ein
tern
atio
na
llya
cce
pte
dst
an
da
rds
of
the
UN
CA
C.
sta
keh
old
ers
.
UN
CA
CP
rov
isio
ns
Do
me
sti
cL
eg
al
/R
eg
ula
tory
Re
gim
eC
om
pa
tib
ilit
yB
etw
ee
nU
NC
AC
an
dD
om
es
tic
Re
gim
e
Co
mp
lian
ce
an
dG
ap
Be
twe
en
La
wa
nd
Pra
cti
ce
Re
ma
rks
Art
icle
6:
Sta
tes
Pa
rtie
sa
reo
blig
ate
dto
ha
vea
na
nti-
corr
up
tion
bo
dy
or
bo
die
sin
cha
rge
ofp
reve
ntiv
em
ea
sure
sa
nd
po
licie
s,to
gra
nt
tha
tb
od
yin
de
pe
nd
en
ceto
en
sure
tha
tit
can
do
itsjo
bu
nim
pe
de
db
yu
nd
ue
influ
en
ces,
an
dp
rovi
de
itw
itha
de
qu
ate
reso
urc
es
an
dtr
ain
ing
.
An
ti-C
orr
up
tion
Co
mm
issi
on
(AC
C)
Act
,2
00
4T
he
An
ti-C
orr
up
tion
Co
mm
issi
on
(AC
C)
isin
cha
rge
of
imp
lem
en
ting
pre
ven
tive
me
asu
res
an
dp
olic
ies;
Se
ctio
n1
7o
fth
eA
CC
Act
,2
00
4,
em
po
we
rsth
eA
CC
tore
vie
wa
nti-
corr
up
tion
po
licie
so
utli
ne
din
diff
ere
nt
law
sa
nd
req
uir
es
the
effe
ctiv
eim
ple
me
nta
tion
of
stra
teg
ies,
toco
nd
uct
an
ti-co
rru
ptio
nre
sea
rch
,cr
ea
tep
ub
lica
wa
ren
ess
ag
ain
stco
rru
ptio
n,
an
dto
ho
ldse
min
ars
,sym
po
siu
ms
an
dw
ork
sho
ps
on
corr
up
tion
;
By
law
(se
ctio
ns
24
,2
5)
the
AC
Ch
as
be
en
gu
ara
nte
ed
fun
ctio
na
lin
de
pe
nd
en
cein
the
dis
cha
rge
of
itsfu
nct
ion
s.
Alth
ou
gh
the
AC
Cw
as
est
ab
lish
ed
inN
ove
mb
er
20
04
,it
wa
sn
ot
un
tilth
en
ew
Go
vern
me
nt
cam
eto
po
we
rin
20
07
tha
tit
be
cam
ein
fuse
dw
ithp
olit
ica
lwill
,co
mm
itme
nt
an
dre
sou
rce
sto
figh
ta
ga
inst
corr
up
tion
;
Un
de
rth
en
ew
lea
de
rsh
ipo
fth
eA
CC
,a
dd
itio
na
lre
sou
rce
sh
ave
be
en
de
dic
ate
dfo
rth
ein
vest
iga
tion
an
dp
rose
cutio
no
fca
ses;
Th
eA
CC
du
rin
gre
cen
ttim
es
ha
su
nd
ert
ake
nva
rio
us
pre
ven
tive
an
ti-co
rru
ptio
na
ctiv
itie
s.In
Ap
ril
20
07
,w
ithth
ea
imo
fst
art
ing
an
an
ti-co
rru
ptio
nm
ass
mo
vem
en
t,th
ech
ief
exe
cutiv
eo
fth
eA
CC
sta
rte
da
na
tion
alt
ou
rin
diff
ere
nt
pa
rts
of
Ba
ng
lad
esh
;
InD
ece
mb
er
20
07
,T
ran
spa
ren
cyIn
tern
atio
na
lB
an
gla
de
sh(T
IB)
an
dth
eA
CC
join
tlyst
art
ed
an
an
ti-co
rru
ptio
nca
mp
aig
n
Th
eG
oB
’se
ffo
rts
totr
an
sfo
rmth
efig
ht
ag
ain
stco
rru
ptio
nin
toa
soci
al
mo
vem
en
twill
be
com
plim
en
ted
by
the
form
ula
tion
an
dim
ple
me
nta
tion
of
aN
atio
na
lIn
teg
rity
Str
ate
gy.
pro
gra
m.
54
UN
CA
CP
rov
isio
ns
Do
me
sti
cL
eg
al
/R
eg
ula
tory
Re
gim
eC
om
pa
tib
ilit
yB
etw
ee
nU
NC
AC
an
dD
om
es
tic
Re
gim
e
Co
mp
lian
ce
an
dG
ap
Be
twe
en
La
wa
nd
Pra
cti
ce
Re
ma
rks
Art
icle
s7
.1a
nd
7.1
(a):
Sta
tes
Pa
rtie
sm
ust
ad
op
t,m
ain
tain
,a
nd
stre
ng
the
nsy
ste
ms
for
recr
uitm
en
t,h
irin
g,
rete
ntio
n,p
rom
otio
no
fpu
blic
off
icia
lsb
ase
do
np
rin
cip
les
of
effi
cie
ncy
,tr
an
spa
ren
cya
nd
ob
ject
ive
crite
ria
such
as
me
rit,
eq
uity
an
da
ptit
ud
e.
Art
icle
13
3o
fth
eC
on
stitu
tion
of
Ba
ng
lad
esh
Ad
min
istr
ativ
eT
rib
un
alA
ct,
19
80
Ba
ng
lad
esh
Pu
blic
Se
rvic
eC
om
mis
sio
nO
rdin
an
ce,
19
77
Ba
ng
lad
esh
Civ
ilS
erv
ice
(BC
SR
)Ru
les,
19
81
Ba
ng
lad
esh
Civ
ilS
erv
ice
Re
cru
itme
nt(
Ag
e,
Qu
alif
ica
tion
an
dE
xam
ina
tion
for
Dir
ect
Re
cru
itme
nt)
Ru
les,
19
82
Ba
ng
lad
esh
Civ
ilS
erv
ice
(Exa
min
atio
nfo
rP
rom
otio
n)
Ru
les,
19
86
Ba
ng
lad
esh
ha
sa
com
pre
he
nsi
vere
gu
lato
ryre
gim
eg
ove
rnin
gis
sue
so
fp
ub
licse
cto
rre
cru
itme
nt,
hir
ing
,re
ten
tion
,pro
mo
tion
,re
tire
me
nto
fciv
ilse
rva
nts
;
Th
ere
gim
ein
clu
de
s:
•T
he
BC
SR
Ru
les,
19
81
wh
ich
pro
vid
es
pro
ced
ure
sfo
rre
cru
itme
nt,
ap
po
intm
en
ta
nd
pro
mo
tion
;
•T
he
Ba
ng
lad
esh
Civ
ilS
erv
ice
Re
cru
itme
nt
(Ag
e,
Qu
alif
ica
tion
an
dE
xam
ina
tion
for
Dir
ect
Re
cru
itme
nt)
Ru
les,
19
82
pro
vid
es
ne
cess
ary
crite
ria
for
elig
ibili
tya
nd
qu
alif
ica
tion
so
fca
nd
ida
tes
tob
ere
cru
ited
into
the
civi
lse
rvic
es;
•U
nd
er
the
Ad
min
istr
ativ
eT
rib
un
alA
ct,
19
80
,A
dm
inis
tra
tive
Tri
bu
na
lsa
rese
tu
pto
rule
on
ma
tte
rsre
latin
gto
the
term
sa
nd
con
diti
on
so
fe
mp
loym
en
t,re
cru
itme
nt,
Th
eP
ub
licS
erv
ice
Co
mm
issi
on
(PS
C),
aco
nst
itutio
na
lbo
dy,
con
du
cts
test
sa
nd
exa
min
atio
ns
for
recr
uitm
en
t;
Th
efu
nct
ion
so
fP
SC
incl
ud
eth
eh
old
ing
of
pro
fess
ion
ale
xam
ina
tion
s,se
lect
ion
ofs
uita
ble
pe
rso
ns
for
ap
po
intm
en
t,a
dvi
sin
gth
eP
resi
de
nt
on
ma
tte
rsre
latin
gto
pri
nci
ple
so
fa
pp
oin
tme
nts
,pro
mo
tion
,te
rms
an
dco
nd
itio
ns
of
serv
ice
,an
dd
isci
plin
e;
Ge
ne
rally
the
recr
uitm
en
tsy
ste
mis
con
sid
ere
dto
req
uir
em
od
ern
iza
tion
;su
gg
est
ion
sfo
rim
pro
vin
gth
ere
cru
itme
nt
an
dp
rom
otio
np
ract
ice
so
fp
ub
lico
ffic
ials
ha
veb
ee
nra
ise
dfr
om
time
totim
eto
en
sure
gre
ate
rco
mp
lian
cew
ithth
ep
rin
cip
les
of
me
rit,
eq
uity
an
da
ptit
ud
e.
Th
eB
CS
RR
ule
s, 1
98
1h
ave
go
ne
thro
ug
hse
vera
lch
an
ge
sin
the
field
so
fa
pp
lica
tion
form
sele
ctio
n,
pre
limin
ary
test
s,w
ritt
en
exa
min
atio
ns,
viva
voce
an
da
pp
oin
tme
nt
ofs
ele
cte
dca
nd
ida
tes;
Sig
nifi
can
tst
ep
sto
wa
rdim
pro
vin
gth
eo
vera
llg
ove
rna
nce
situ
atio
nin
the
cou
ntr
yin
clu
de
inst
itutio
na
lre
form
sto
wa
rdst
ren
gth
en
ing
con
stitu
tion
al
bo
die
ssu
cha
sth
eP
SC
;
Th
eP
SC
isin
the
pro
cess
of
mo
de
rniz
ing
alo
ng
dra
wn
an
da
ntiq
ua
ted
exa
min
atio
nsy
ste
m;
Me
asu
res
are
be
ing
con
sid
ere
dto
imp
rove
the
ind
ep
en
de
nce
,e
ffect
ive
ne
ssa
nd
eff
icie
ncy
of
the
serv
ice
incl
ud
ing
gre
ate
rfin
an
cia
la
uto
no
my,
tra
inin
ga
nd
cap
aci
tyb
uild
ing
op
po
rtu
niti
es;
Me
cha
nis
ms
for
dis
cip
lina
rya
ctio
ns
cou
ldb
est
ren
gth
en
ed
.
Re
cru
itme
nt
55
UN
CA
CP
rov
isio
ns
Do
me
sti
cL
eg
al
/R
eg
ula
tory
Re
gim
eC
om
pa
tib
ilit
yB
etw
ee
nU
NC
AC
an
dD
om
es
tic
Re
gim
e
Co
mp
lian
ce
an
dG
ap
Be
twe
en
La
wa
nd
Pra
cti
ce
Re
ma
rks
ap
po
intm
en
t,p
rom
otio
na
nd
tra
nsf
er,
an
dm
ust
als
ou
ph
old
the
rig
hts
of
civi
lse
rva
nts
.
Art
icle
7.1
(b)
&(d
):S
tate
sP
art
ies
are
req
uir
ed
totr
ain
pu
blic
off
icia
lsto
en
ha
nce
pe
rfo
rma
nce
an
din
cre
ase
ave
rsio
nto
risk
so
fco
rru
ptio
n.
Pu
blic
Ad
min
istr
atio
nT
rain
ing
Po
licy
(PA
TP
),2
00
3
Th
eP
AT
P,2
00
3p
rovi
de
sg
uid
elin
es
for
pu
blic
sect
or
tra
inin
g.
Itd
eta
ilstr
ain
ing
pro
ced
ure
s,co
nte
nt,
pu
rpo
ses
an
dth
eva
rio
us
typ
es
of
tra
inin
gth
at
cou
ldb
ed
esi
gn
ed
for
pu
blic
off
icia
ls.
Itre
qu
ire
sp
ub
licin
stitu
tion
sto
form
ula
tea
nd
con
du
cttr
ain
ing
pro
gra
ms
ba
sed
on
the
tra
inin
gn
ee
ds
ofo
ffic
ials
ofd
iffe
ren
tse
cto
rsa
nd
de
pa
rtm
en
ts.
Clie
nte
leg
rou
ps
of
BP
AT
Ca
red
ive
rse
rep
rese
ntin
ga
llo
fth
e2
9ca
dre
so
fth
eci
vil
serv
ice
s,fr
om
ne
wly
recr
uits
toto
ple
velp
olic
ym
ake
rs;
Tra
inin
gis
als
op
rovi
de
db
yth
etr
ain
ing
cen
ters
an
din
stitu
tes
of
the
diff
ere
nt
min
istr
ies,
de
pa
rtm
en
tsa
nd
div
isio
ns;
Un
tilve
ryre
cen
tlyth
ere
wa
sa
lmo
stn
otr
ain
ing
spe
cific
ally
rela
ted
toco
rru
ptio
nis
sue
s;
Th
ere
isa
ne
ed
tom
ake
tra
inin
gm
ore
pro
ble
mso
lvin
g,
en
ab
ling
tech
nic
al
an
dp
roje
ctm
an
ag
em
en
tsk
ills
an
de
xpe
rtis
eto
me
et
da
yto
da
yd
em
an
ds
of
pu
blic
off
icia
ls.
Sp
eci
fictr
ain
ing
cou
rse
so
na
nti-
corr
up
tion
an
dg
oo
dg
ove
rna
nce
sim
ilar
toth
ose
offe
red
by
BC
SA
cad
em
ysh
ou
ldb
ep
rovi
de
d.
Art
icle
7.1
(c):
Sta
tes
Pa
rtie
sa
rere
qu
ire
dto
pro
mo
tea
de
qu
ate
rem
un
era
tion
an
de
qu
itab
lep
ay
sca
les.
Na
tion
alP
ay
Co
mm
issi
on
s,1
97
2,
19
77
an
d2
00
5A
nu
mb
er
of
Na
tion
alP
ay
Co
mm
issi
on
s(N
PC
)w
ere
setu
pfo
ra
sce
rta
inin
gp
ay
sca
les
for
pu
blic
serv
an
ts;
Th
efir
stN
PC
wa
sse
tu
pin
19
72
;sa
lari
es
we
re
Ba
ng
lad
esh
ha
sn
op
erm
an
en
tP
ay
Co
mm
issi
on
tha
tis
en
tru
ste
dw
ithd
ete
rmin
ing
an
de
valu
atin
go
fth
ish
igh
lyte
chn
ica
lan
dco
mp
lex
issu
e;
Ap
erm
an
en
tpa
yco
mm
issi
on
or
ap
erm
an
en
tp
ay
cell
inth
eM
inis
try
of
Fin
an
ceco
uld
be
con
sid
ere
dth
at
wo
uld
de
term
ine
rem
un
era
tion
an
dp
ay
sca
les
56
UN
CA
CP
rov
isio
ns
Do
me
sti
cL
eg
al
/R
eg
ula
tory
Re
gim
eC
om
pa
tib
ilit
yB
etw
ee
nU
NC
AC
an
dD
om
es
tic
Re
gim
e
Co
mp
lian
ce
an
dG
ap
Be
twe
en
La
wa
nd
Pra
cti
ce
Re
ma
rks
de
term
ine
db
ase
do
na
ten
tier
civi
lse
rvic
est
ruct
ure
;
In1
97
7p
ay
sca
les
we
red
ete
rmin
ed
ba
sed
on
an
up
gra
de
dtw
en
tytie
rse
rvic
e;
Th
ecu
rre
nt
pa
ysc
ale
isb
ase
do
nth
ere
com
me
nd
atio
ns
of
the
sixt
hN
atio
na
lPa
yC
om
mis
sio
nre
po
rtin
20
05
.
Th
eG
ove
rnm
en
tha
sre
spo
nd
ed
at
time
sto
infla
tion
ary
tre
nd
sa
nd
pre
ssu
res
of
sta
keh
old
ers
inth
ese
rvic
e;
Th
ere
ha
veb
ee
ne
xam
ple
so
fin
tro
du
cin
ga
d-h
oc
incr
em
en
to
fsa
lari
es
tosa
tisfy
pra
ctic
aln
ee
ds
an
dco
nse
qu
en
ces.
for
the
civi
lse
rva
nts
taki
ng
into
acc
ou
nte
xam
ple
sfr
om
oth
er
cou
ntr
ies;
this
wo
uld
pro
mo
tea
coh
ere
nt
rew
ard
stru
ctu
re;
Th
ed
iscr
ep
an
cyb
etw
ee
nsa
lari
es
inth
ep
ub
licse
cto
ra
nd
the
pri
vate
sect
or
are
con
sid
ere
do
ne
of
the
ma
jor
rea
son
sfo
rth
ela
cko
fm
otiv
atio
na
nd
at
time
sin
ad
eq
ua
tele
velo
fin
teg
rity
inth
ep
ub
licse
cto
r.
Art
icle
s7
.2a
nd
7.3
:S
tate
sP
art
ies
are
req
uir
ed
tota
kea
pp
rop
ria
tem
ea
sure
sfo
rp
resc
rib
ing
crite
ria
con
cern
ing
can
did
atu
rea
nd
ele
ctio
nto
pu
blic
offi
ce;
Sta
tes
Pa
rtie
sa
reo
blig
ate
dto
en
ha
nce
tra
nsp
are
ncy
inth
efu
nd
ing
of
can
did
atu
res
for
ele
cte
dp
ub
lico
ffic
ea
nd
/or
fun
din
go
fpo
litic
al,
pa
rtie
s.
Art
icle
s5
9,
65
an
d6
6o
fth
eC
on
stitu
tion
of
Ba
ng
lad
esh
Re
pre
sen
tatio
no
fP
eo
ple
’sO
rde
r,1
97
2
Re
pre
sen
tatio
no
fP
eo
ple
’sO
rde
r,2
00
8(p
rop
ose
d)
Art
icle
s5
9a
nd
65
of
the
Co
nst
itutio
ng
ive
pro
visi
on
sfo
rco
nd
uct
ing
pa
rlia
me
nta
rya
nd
loca
lgo
vern
me
nt
ele
ctio
ns;
Ele
ctio
ns
ove
rth
ela
st3
6ye
ars
ha
veb
ee
nco
nd
uct
ed
ina
cco
rda
nce
with
the
pro
visi
on
so
fth
eR
ep
rese
nta
tion
of
the
Pe
op
le’s
Ord
er
(RP
O),
19
72
;
Se
pa
rate
cod
es
of
con
du
cth
ave
be
en
set
up
tore
gu
late
ele
ctio
ns
an
dcr
iteri
afo
rca
nd
ida
ture
by
the
Ele
ctio
nC
om
mis
sio
n(E
C);
An
Ord
ina
nce
(Ord
ina
nce
No
.V
of2
00
8)
wa
sm
ad
eb
yth
eH
on
ou
rab
leP
resi
de
nt
on
Th
eE
Ch
as
pro
po
sed
sig
nifi
can
tch
an
ge
sto
the
RP
O,
19
72
as
refo
rmm
ea
sure
sto
en
ha
nce
tra
nsp
are
ncy
inth
efu
nd
ing
ofc
an
did
ate
sto
ele
cte
do
ffic
es
an
dfu
nd
ing
of
po
litic
alp
art
ies.
Th
ese
are
as
follo
ws:
•R
eg
istr
atio
no
fpo
litic
al
pa
rtie
sa
nd
ind
ivid
ua
lca
nd
ida
tes
with
the
EC
isa
mu
st;
•D
isq
ua
lific
atio
no
fd
efa
ulte
rso
flo
an
an
dse
rvic
eb
ills
as
can
did
ate
s;
•L
imits
can
did
atu
rein
the
nu
mb
er
of
Ifim
ple
me
nte
d,
the
pro
po
sed
am
en
dm
en
tsto
the
RP
O,
19
72
will
be
inst
rum
en
tali
nd
em
ocr
atiz
ing
po
litic
al
pa
rtie
sa
nd
the
ma
nn
er
inw
hic
hth
ey
pa
rtic
ipa
tein
ele
ctio
ns.
57
UN
CA
CP
rov
isio
ns
Do
me
sti
cL
eg
al
/R
eg
ula
tory
Re
gim
eC
om
pa
tib
ilit
yB
etw
ee
nU
NC
AC
an
dD
om
es
tic
Re
gim
e
Co
mp
lian
ce
an
dG
ap
Be
twe
en
La
wa
nd
Pra
cti
ce
Re
ma
rks
5M
arc
h,
20
08
wh
ich
est
ab
lish
ed
the
Ind
ep
en
de
nt
Ele
ctio
nC
om
mis
sio
nS
ecr
eta
ria
t.
con
stitu
en
cie
sto
two
fro
mth
ee
arl
ier
five
inth
ee
ven
tca
nd
ida
tes
con
test
fro
mm
ore
tha
no
ne
.
Art
icle
s8
.1a
nd
8.2
:S
tate
sP
art
ies
are
req
uir
ed
top
rom
ote
inte
gri
ty,
ho
ne
sty
an
dre
spo
nsi
bili
tya
mo
ng
pu
blic
off
icia
ls;
Sta
tes
Pa
rtie
sa
reo
blig
ate
dto
form
ula
teco
de
so
rst
an
da
rds
of
con
du
ctfo
rth
eco
rre
ct,
ho
no
rab
lea
nd
pro
pe
rp
erf
orm
an
ceo
fp
ub
licfu
nct
ion
s.
Go
vern
me
nt
Se
rva
nts
(Co
nd
uct
)R
ule
s,1
97
9
Go
vern
me
nt
Se
rva
nts
(Dis
cip
line
an
dA
pp
ea
l)R
ule
s,1
98
5
Ru
les
of
Bu
sin
ess
,1
99
6
Art
icle
s5
to3
3,
of
the
Go
vern
me
nt
Se
rva
nts
(Co
nd
uct
)R
ule
s,1
97
9p
rovi
de
gu
ide
line
sfo
rth
eb
eh
avi
or
an
dco
nd
uct
of
pu
blic
off
icia
lsin
the
civi
lse
rvic
eo
nis
sue
slik
ea
cce
pta
nce
of
aw
ard
sa
nd
gift
s,p
ub
licd
em
on
stra
tion
of
ho
no
rto
the
Go
vern
me
nt,
rais
ing
of
fun
ds
on
be
ha
lfo
fth
eG
ove
rnm
en
t,d
iscl
osu
reo
fass
ets
an
dsp
ecu
latio
no
fin
vest
me
nt,
len
din
g,
bo
rro
win
gb
uyi
ng
or
selli
ng
valu
ab
lep
rop
ert
ies,
pri
vate
tra
de
an
de
mp
loym
en
t;
Co
ntr
ave
ntio
ns
of
the
Co
nd
uct
Ru
les
are
de
alt
with
by
the
pro
visi
on
so
fth
eG
ove
rnm
en
tS
erv
an
ts(D
isci
plin
ea
nd
Ap
pe
al)
Ru
les,
19
85
,w
hic
hm
ake
svi
ola
tion
slia
ble
toin
qu
iry
an
dp
un
ish
me
nt,
ifp
rove
d;
Th
eR
ule
so
fB
usi
ne
ss,
19
96
reg
ula
teg
ove
rnm
en
ttr
an
sact
ion
of
bu
sin
ess
an
d
Th
eG
oB
ha
sp
ract
ica
llyco
mp
lied
with
the
UN
CA
Cb
ye
sta
blis
hin
ga
com
pre
he
nsi
veco
de
of
con
du
ctw
hic
hp
rom
ote
sh
on
est
ya
nd
inte
gri
tyin
itsp
ub
lico
ffic
ials
.
Pu
blic
off
icia
ls,
the
key
act
ors
of
the
civi
la
dm
inis
tra
tion
,sh
ou
ldh
ave
the
ne
cess
ary
qu
alif
ica
tion
sa
nd
asu
ffic
ien
tle
ga
le
nvi
ron
me
nt
with
reso
urc
es
ino
rde
rto
com
ple
teth
eir
du
ties
eff
ect
ive
ly;
Th
isis
an
are
afo
rfu
rth
er
rese
arc
hw
hic
hco
uld
exa
min
eth
ero
leo
fth
ese
Ru
les
tou
pd
ate
an
du
pg
rad
eth
ee
xist
ing
reg
ime
,e
nsu
rin
gg
ove
rnm
en
te
ffic
ien
cya
nd
eff
ect
ive
ne
ss;
Th
ep
rop
ose
dN
ISis
exp
ect
ed
toa
dd
ress
issu
es
of
inte
gri
tyin
clu
din
gth
ose
for
pu
blic
off
icia
ls.
58
UN
CA
CP
rov
isio
ns
Do
me
sti
cL
eg
al
/R
eg
ula
tory
Re
gim
eC
om
pa
tib
ilit
yB
etw
ee
nU
NC
AC
an
dD
om
es
tic
Re
gim
e
Co
mp
lian
ce
an
dG
ap
Be
twe
en
La
wa
nd
Pra
cti
ce
Re
ma
rks
the
allo
catio
no
ffu
nct
ion
sa
mo
ng
diff
ere
nt
min
istr
ies/
div
isio
ns.
Art
icle
8.3
:S
tate
sP
art
ies
are
req
uir
ed
tota
ken
ote
of
rele
van
tin
itia
tive
so
fre
gio
na
l,in
terr
eg
ion
ala
nd
mu
ltila
tera
lorg
an
iza
tion
s,su
cha
sth
eU
NIn
tern
atio
na
lC
od
eo
fC
on
du
ctfo
rP
ub
licO
ffic
ials
(Ge
ne
ralA
sse
mb
lyre
solu
tion
51
/59
of
12
De
cem
be
r1
99
6)
toe
nsu
reco
mp
atib
ility
with
it.
Go
vern
me
nt
Se
rva
nts
(Co
nd
uct
)R
ule
s,1
97
9S
ee
ab
ove
Ba
ng
lad
esh
wa
sfo
un
dto
be
com
plia
nt
with
reg
ard
toth
ea
do
ptio
no
fco
de
so
fco
nd
uct
for
pu
blic
off
icia
lsin
aU
Nsu
rve
y.
Co
de
so
fco
nd
uct
on
du
ties
an
do
blig
atio
ns
sho
uld
be
pro
vid
ed
top
ub
lico
ffic
ials
up
on
the
time
en
try;
Th
eG
oB
sho
uld
de
velo
pa
stra
teg
yfo
rin
tro
du
cin
gle
gis
latio
nim
ple
me
ntin
gin
tern
atio
na
lco
de
so
fco
nd
uct
at
the
na
tion
all
eve
l.
Art
icle
8.4
:S
tate
sP
art
ies
are
req
uir
ed
toe
sta
blis
hm
ea
sure
sa
nd
syst
em
sth
at
faci
lita
teth
ere
po
rtin
gb
yp
ub
lico
ffic
ials
ofa
cts
of
corr
up
tion
toa
pp
rop
ria
tea
uth
ori
ties.
Pe
na
lCo
de
,18
60
An
ti-C
orr
up
tion
Co
mm
issi
on
(AC
C)
Act
,2
00
4
Th
ere
isn
od
ire
ctle
ga
lp
rovi
sio
nre
ga
rdin
gth
ep
rote
ctio
no
fp
ub
lico
ffic
ials
inre
po
rtin
ga
cts
of
corr
up
tion
ofo
the
rp
ub
lico
ffic
ials
.C
ha
pte
rIX
of
the
Pe
na
lCo
de
,1
86
0d
ea
lsw
ithth
eo
ffe
nce
sb
yo
rre
latin
gto
pu
blic
off
icia
ls;
Se
ctio
n1
61
of
the
Pe
na
lC
od
ecr
imin
aliz
es
the
taki
ng
ofg
ratif
ica
tion
oth
er
tha
nle
ga
lre
mu
ne
ratio
nin
resp
ect
of
an
off
icia
lact
;
Se
ctio
ns
16
2a
nd
16
3o
fth
eP
en
alC
od
ea
dd
ress
corr
up
tion
ofp
ub
licse
rva
nts
;
Th
isp
art
icu
lar
pro
visi
on
ind
ica
tes
the
ne
ed
for
asp
eci
all
aw
or
reg
ula
tion
wh
ere
ap
ub
lico
ffic
ialc
an
rep
ort
the
corr
up
tion
of
an
oth
er
pu
blic
off
icia
l.T
his
iskn
ow
na
sa
wh
istle
blo
we
rsa
ct.
Th
isis
am
ajo
rg
ap
with
reg
ard
top
rote
ctio
np
rovi
de
dto
com
pla
ina
nts
fro
mw
ithin
the
civi
lse
rvic
e.
Th
ea
do
ptio
no
fala
wto
pro
tect
pu
blic
off
icia
lsre
ga
rdin
gre
po
rts
ofa
cts
of
corr
up
tion
ing
oo
dfa
ithis
reco
mm
en
de
d;
Aco
ncr
ete
po
licy
fro
mth
eG
oB
with
reg
ard
toth
isis
sue
ise
sse
ntia
lfo
rsa
feg
ua
rdin
gw
his
tleb
low
ers
,so
tha
tth
eir
pro
tect
ion
go
es
be
yon
dle
ga
ld
ocu
me
nts
,to
gu
ara
nte
eth
at
the
irri
gh
tsa
rep
ract
ica
llyp
rote
cte
d.
59
UN
CA
CP
rov
isio
ns
Do
me
sti
cL
eg
al
/R
eg
ula
tory
Re
gim
eC
om
pa
tib
ilit
yB
etw
ee
nU
NC
AC
an
dD
om
es
tic
Re
gim
e
Co
mp
lian
ce
an
dG
ap
Be
twe
en
La
wa
nd
Pra
cti
ce
Re
ma
rks
Th
eA
CC
Act
,20
04
pro
vid
es
gu
ide
line
sfo
rin
vest
iga
ting
corr
up
tion
case
so
fa
ny
ind
ivid
ua
lor
inst
itutio
n.
Th
eA
CC
can
rep
ort
corr
up
tion
case
sa
nd
pro
secu
tep
ub
lico
ffic
ials
aft
er
pro
pe
rin
vest
iga
tion
.
Art
icle
8.5
:P
ub
lico
ffic
ials
are
req
uir
ed
tom
ake
de
cla
ratio
ns
ab
ou
tth
eir
ou
tsid
ea
ctiv
itie
s,e
mp
loym
en
t,in
vest
me
nts
,a
sse
tsa
nd
sub
sta
ntia
lgift
so
rb
en
efit
sfr
om
wh
ich
aco
nfli
cto
fin
tere
stm
ay
ari
se.
Go
vern
me
nt
Se
rva
nts
(Co
nd
uct
)R
ule
s,1
97
9
Pe
na
lCo
de
,18
60
Ru
le1
3o
fth
eG
ove
rnm
en
tS
erv
an
ts(C
on
du
ct)
Ru
les,
19
79
req
uir
es
pu
blic
offi
cia
lsto
de
cla
rea
llm
ove
ab
lea
nd
/or
imm
ove
ab
lea
sse
ts,
at
the
time
of
en
try
inse
rvic
ea
nd
top
rovi
de
an
nu
al
up
da
tes
ofs
uch
we
alth
;
By
imp
lica
tion
this
wo
uld
incl
ud
ea
sse
tslo
cate
din
Ba
ng
lad
esh
or
ab
roa
d;
Th
eG
ove
rnm
en
tm
ay
at
an
ytim
ea
skfo
ra
sta
tem
en
tof
liqu
ida
sse
tsfr
om
an
yci
vil
serv
an
tun
de
rru
le1
4o
fth
esa
me
;
Se
ctio
n1
68
of
the
Pe
na
lC
od
ed
ea
lsw
ithp
ub
licse
rva
nts
un
law
fully
en
ga
gin
gin
tra
de
an
dse
ctio
n1
69
de
als
with
pu
blic
serv
an
tsu
nla
wfu
llyb
uyi
ng
or
bid
din
gfo
rp
rop
ert
y.B
oth
the
sect
ion
sst
rict
lyre
com
me
nd
Re
leva
nt
law
sw
ere
no
tst
rict
lyfo
llow
ed
inth
ep
ast
,h
ow
eve
r,th
ey
are
no
wb
ein
gta
ken
seri
ou
sly;
Are
cen
tG
ove
rnm
en
tci
rcu
lar
req
uir
es
the
sub
mis
sio
no
fwe
alth
sta
tem
en
tsb
yF
eb
rua
ry2
00
8fo
ra
llp
ub
lico
ffic
ials
.
Ru
les
sho
uld
be
ma
inta
ine
dre
gu
larl
y.A
no
vers
igh
tm
ech
an
ism
sho
uld
be
est
ab
lish
ed
too
bse
rve
the
reg
ula
rim
ple
me
nta
tion
of
the
pro
visi
on
sa
nd
en
sure
com
pa
tibili
tyw
ithth
est
an
da
rds
of
the
UN
CA
C;
Na
tion
all
eg
isla
tion
req
uir
es
mo
difi
catio
n,
pa
rtic
ula
rly
inte
rms
of
mo
de
rniz
atio
n;
Re
late
dru
les
an
dci
rcu
lars
can
be
mo
difi
ed
inlig
ht
of
the
curr
en
tst
ate
of
the
eco
no
my
tore
de
fine
the
ceili
ng
for
pu
blic
off
icia
lsin
term
so
fh
old
ing
pa
rtic
ula
ra
sse
ts;
Aco
mp
reh
en
sive
Civ
ilS
erv
ice
Ru
les
isin
the
pro
cess
of
be
ing
dra
fte
da
nd
itis
exp
ect
ed
tha
tit
will
mo
dify
the
rele
van
tru
les,
thu
sm
aki
ng
the
do
me
stic
60
UN
CA
CP
rov
isio
ns
Do
me
sti
cL
eg
al
/R
eg
ula
tory
Re
gim
eC
om
pa
tib
ilit
yB
etw
ee
nU
NC
AC
an
dD
om
es
tic
Re
gim
e
Co
mp
lian
ce
an
dG
ap
Be
twe
en
La
wa
nd
Pra
cti
ce
Re
ma
rks
imp
riso
nm
en
tfo
rvi
ola
tion
of
the
law
s.le
ga
lre
gim
eco
mp
lian
tin
reg
ard
toth
isp
rovi
sio
n
Art
icle
8.6
:S
tate
sP
art
ies
are
ob
liga
ted
tota
kem
ea
sure
sto
initi
ate
dis
cip
lina
ryo
ro
the
rm
ea
sure
sa
ga
inst
pu
blic
off
icia
lsw
ho
vio
late
the
cod
es
or
sta
nd
ard
s.
Go
vern
me
nt
Se
rva
nts
(Dis
cip
line
an
dA
pp
ea
l)R
ule
s,1
98
5
Ap
ub
lico
ffici
ali
slia
ble
toa
ne
nq
uir
yu
nd
er
the
Go
vern
me
nt
Se
rva
nts
(Dis
cip
line
an
dA
pp
ea
l)R
ule
s,1
98
5fo
rth
eco
ntr
ave
ntio
no
fa
ny
pro
visi
on
insa
idru
les.
Ifp
rove
dg
uilt
y,m
ea
sure
sfo
rp
un
ish
me
nt
can
be
reco
mm
en
de
d;
Pa
rtII
of
the
Ru
les
ad
dre
sse
sth
eis
sue
of
dis
cip
line
inci
vils
erv
ice
with
pro
ced
ure
so
fin
qu
iry
inca
ses
with
ma
jor
an
dm
ino
rp
en
alti
es;
Pa
rtII
Ide
scri
be
sth
ea
pp
ea
lp
roce
du
rea
ga
inst
an
yg
ove
rnm
en
to
rde
r.
Th
eM
inis
try
of
Est
ab
lish
me
nta
nd
the
Ca
bin
etD
ivis
ion
are
the
ag
en
cie
sw
ho
de
alw
ithth
isis
sue
;
Dis
cip
lina
rym
ea
sure
sa
rere
gu
larl
yta
ken
ag
ain
stth
ose
off
ice
rsw
ho
ha
db
ee
na
ccu
sed
of
vio
latin
gth
ela
w.
Art
icle
9.1
:S
tate
sP
art
ies
mu
ste
sta
blis
ha
pp
rop
ria
tesy
ste
ms
of
pro
cure
me
nt,
ba
sed
on
tra
nsp
are
ncy
,co
mp
etit
ion
an
do
bje
ctiv
ecr
iteri
ain
de
cisi
on
-ma
kin
g,
tha
ta
ree
ffect
ive
inp
reve
ntin
gco
rru
ptio
n.
Pu
blic
Pro
cure
me
nt
Act
,2
00
6
Pu
blic
Pro
cure
me
ntR
ule
s,2
00
8
Rul
es 1
3-18
, 47-
48, 5
6-60
of t
heP
PR
, 200
8 ha
ve s
peci
fied
basi
cp
rocu
rem
en
tg
uid
elin
es
incl
ud
ing
pu
blic
acc
ess
ibili
tyo
fte
nd
eri
ng
rule
s,e
ligib
ility
an
dn
on
-dis
crim
ina
tion
crite
ria
reg
ard
ing
sele
ctio
no
fte
nd
er
an
dq
ua
lific
atio
ns
of
ten
de
rer;
Se
ctio
n 4
0 o
f th
e P
PA
, 2
00
6
Th
eP
PA
20
06
an
dth
e P
PR
,2
00
8a
imto
pro
vid
ea
leg
al
an
dre
gu
lato
ryfr
am
ew
ork
go
vern
ing
pu
blic
sect
or
pro
cure
me
nt
an
da
dd
ress
an
um
be
ro
fth
ee
arl
ier
ma
lad
ies
such
as
de
lays
cau
sed
by
com
ple
xb
ure
au
cra
ticp
roce
du
res;
Gre
ate
ra
uto
no
my
fro
m
Th
eP
ub
licP
rocu
rem
en
tA
ct,
20
06
wa
ssu
cce
ssfu
lin
ad
dre
ssin
gg
ap
sin
po
licy
an
dp
ract
ice
inth
ea
rea
so
fp
ub
licp
rocu
rem
en
t;
Th
ere
isa
ne
ed
for
tra
inin
ga
nd
cap
aci
tyb
uild
ing
of
pu
blic
off
icia
lsin
pro
cure
me
ntr
ela
ted
issu
es.
Th
isin
clu
de
se
nh
an
ced
61
UN
CA
CP
rov
isio
ns
Do
me
sti
cL
eg
al
/R
eg
ula
tory
Re
gim
eC
om
pa
tib
ilit
yB
etw
ee
nU
NC
AC
an
dD
om
es
tic
Re
gim
e
Co
mp
lian
ce
an
dG
ap
Be
twe
en
La
wa
nd
Pra
cti
ce
Re
ma
rks
an
d r
ule
90
of th
e P
PR
, 2
00
8p
rovi
de
pro
ced
ure
fo
r o
pe
nn
atio
na
lte
nd
eri
ng
syst
em
.T
he
ya
lso
incl
ud
ep
rovi
sio
ns
for
po
licy
form
ula
tion
,co
ord
ina
tion
an
dm
on
itori
ng
of
the
pro
cure
me
nt
pro
ced
ure
;
Ad
eta
iled
leg
alf
ram
ew
ork
for
com
pla
ints
an
da
pp
ea
lsh
as
als
ob
ee
np
rovi
de
d;
The
PP
R, 2
008
requ
ires
Ten
der
Eva
lua
tion
Co
mm
itte
es
(TE
C)
tob
ee
sta
blis
he
dfo
rd
eci
sio
ns
on
pro
cure
me
nts
;
The
PP
R, 2
008
has
crim
inal
ized
corr
up
tion
inp
rocu
rem
en
tp
roce
sse
sb
yp
ub
lico
ffic
ials
an
do
the
rre
leva
nt
pa
rtie
sa
sa
me
an
sto
ad
dre
ssso
me
of
the
exi
stin
gm
ala
die
s;
cab
ine
tsa
nd
con
cern
ed
min
istr
ies
ha
sn
ow
be
en
pro
vid
ed
top
rocu
rin
ge
ntit
ies
bo
tha
tth
en
atio
na
lan
dlo
cal
leve
lsin
aw
ard
ing
an
da
pp
rovi
ng
con
tra
cts
(with
ind
efin
ed
ceili
ng
s);
Ap
plic
atio
no
fth
en
atio
na
lp
rocu
rem
en
tru
les
ha
sp
rove
nto
be
rela
tive
lyin
con
sist
en
ta
cro
ssth
eG
ove
rnm
en
ta
nd
with
inin
div
idu
ala
ge
nci
es;
Imp
lem
en
tatio
no
fth
eru
les
ha
sse
vere
lyst
rain
ed
the
reso
urc
es
of
exe
cutin
ga
ge
nci
es;
Vu
lne
rab
ilitie
sin
rela
tion
toth
em
an
ag
em
en
tof
pro
cure
me
nt
incl
ud
ela
cko
fin
form
atio
na
nd
exp
ert
ise
,co
nta
cts
an
dco
llusi
on
,co
nfli
cto
fin
tere
stw
ithp
ub
lico
ffic
ials
,la
cko
fa
cco
un
tab
ility
an
dp
olit
ica
lin
flue
nce
;
Exp
eri
en
ces
ha
vein
clu
de
dd
iscr
imin
atio
na
nd
de
lays
inth
eb
idd
ing
of
do
cum
en
ts,
cart
eli
nfo
rma
tion
tosu
pp
ress
com
pe
titio
n,
ph
ysic
alt
hre
ats
tob
idd
ers
,b
idb
oxe
sa
tm
ulti
ple
kno
wle
dg
eo
fth
eP
PR
,2
00
8,
itsva
rio
us
rule
sa
nd
pro
ced
ure
s,te
chn
ica
lski
llsfo
re
valu
atio
na
nd
ass
ess
me
nt
inp
rocu
rem
en
ts;
Th
eC
en
tra
lPro
cure
me
nt
Te
chn
ica
lUn
itis
inth
ep
roce
sso
fin
itia
ting
such
tra
inin
gw
itha
ssis
tan
ceo
fth
eW
orl
dB
an
ku
nd
er
ph
ase
IIo
fth
eP
PR
P.
62
UN
CA
CP
rov
isio
ns
Do
me
sti
cL
eg
al
/R
eg
ula
tory
Re
gim
eC
om
pa
tib
ilit
yB
etw
ee
nU
NC
AC
an
dD
om
es
tic
Re
gim
e
Co
mp
lian
ce
an
dG
ap
Be
twe
en
La
wa
nd
Pra
cti
ce
Re
ma
rks
loca
tion
s,ta
mp
eri
ng
of
bid
file
s,d
ela
ysin
eva
lua
tion
of
bid
s,h
um
an
inte
rfe
ren
cea
te
very
sta
ge
an
da
nu
nw
illin
gn
ess
top
rovi
de
tra
nsp
are
ncy
;
Lim
ited
kno
wle
dg
eo
fp
rocu
rem
en
tru
les
an
dp
roce
du
res
by
pu
blic
off
icia
lsis
als
oa
nis
sue
.
Art
icle
9.1
(a):
Sys
tem
so
fp
rocu
rem
en
tsh
ou
ldin
clu
de
cle
ar
pro
ced
ure
sfo
rp
ub
licd
istr
ibu
tion
of
info
rma
tion
,in
clu
din
gin
form
atio
no
nin
vita
tion
sto
ten
de
ra
nd
pe
rtin
en
tin
form
atio
no
nth
ea
wa
rdo
fco
ntr
act
s,a
llow
ing
po
ten
tialt
en
de
rers
suff
icie
nt
time
top
rep
are
an
dsu
bm
itth
eir
ten
de
rs.
Pu
blic
Pro
cure
me
nt
Act
,2
00
6
Pu
blic
Pro
cure
me
ntR
ule
s,2
00
8
Ru
le 1
4 o
f th
e P
PR
, 2
00
8re
qu
ire
s p
rocu
rin
g e
ntit
ies
tom
ake
all
rele
van
t in
form
atio
np
ub
licly
acc
ess
ible
inp
ap
er
an
de
- fo
rma
tp
ert
ain
ing
tosp
eci
ficte
nd
ers
;
Fu
rth
er,
PP
R, 2
00
8 d
ire
cts
pro
cure
me
nt
en
titie
sto
furn
ish
up
on
req
ue
stfr
om
an
yco
nce
rne
dp
ers
on
all
do
cum
en
tatio
nre
latin
gto
the
pro
cee
din
gs
ofa
na
wa
rdo
rte
rmin
atio
no
fa
ny
con
tra
ct;
Se
ctio
n4
0o
f th
e P
PA
, 2
00
8e
xpre
ssly
me
ntio
ns
the
ne
cess
ityo
fd
istr
ibu
ting
info
rma
tion
ab
ou
tin
vita
tion
sto
ten
de
ra
nd
oth
er
pe
rtin
en
tin
form
atio
n.
Issu
es
con
tinu
eto
exi
stin
rela
tion
toa
dve
rtis
em
en
to
fp
rocu
rem
en
tn
otic
es,
incl
ud
ing
po
or
ad
vert
ise
me
nt;
Th
eC
en
tra
lPro
cure
me
nt
Te
chn
ica
lUn
ith
as
est
ab
lish
ed
aw
eb
site
(ww
w.c
ptu
.go
v.b
d)
top
rovi
de
div
ers
ifie
din
form
atio
no
ne
sta
blis
hin
ga
nd
ma
inta
inin
gd
ata
ba
ses
rela
ted
top
rice
s,q
ua
lity,
volu
me
s,p
erf
orm
an
ceo
fsu
pp
liers
,a
nd
the
like
,th
at
are
sim
ple
an
de
asy
tou
se.
In2
00
3,c
ou
rts
de
cid
ed
tha
tp
rocu
rin
ge
ntit
ies
wo
uld
be
resp
on
sib
lefo
rd
isse
min
atin
gin
form
atio
nre
latin
gto
pro
cure
me
nts
an
dth
at
all
ad
vert
ise
me
nts
mu
stb
eci
rcu
late
din
go
vern
me
nt
liste
dn
ew
spa
pe
rsth
ata
re“w
ell
circ
ula
ted
.”
63
UN
CA
CP
rov
isio
ns
Do
me
sti
cL
eg
al
/R
eg
ula
tory
Re
gim
eC
om
pa
tib
ilit
yB
etw
ee
nU
NC
AC
an
dD
om
es
tic
Re
gim
e
Co
mp
lian
ce
an
dG
ap
Be
twe
en
La
wa
nd
Pra
cti
ce
Re
ma
rks
Art
icle
9.1
(b):
Sta
tes
Pa
rtie
sa
rere
qu
ire
dto
est
ab
lish
,in
ad
van
ce,
con
diti
on
sfo
rp
art
icip
atio
nin
pro
cure
me
nt,
incl
ud
ing
sele
ctio
na
nd
aw
ard
crite
ria
an
dte
nd
eri
ng
rule
s,w
hic
hm
ust
be
pu
blic
ize
d.
Pu
blic
Pro
cure
me
nt
Act
,2
00
6
Pu
blic
Pro
cure
me
ntR
ule
s,2
00
8
Th
e P
PR
, 2
00
8 s
tate
s th
at
the
Ce
ntr
alP
rocu
rem
en
tT
ech
nic
alU
nit
(CP
TU
)m
ay
au
tho
rize
an
yo
the
ra
ge
ncy
t take
act
ion
s a
s a
pro
curin
ge
ntit
y;
om
ake
de
cisi
on
sa
nd
Ru
le 1
30
of
the
PP
R,
20
08
vest
sth
eC
PT
Uw
ithth
ere
spo
nsi
bili
tyo
fp
rovi
din
gg
uid
an
cefo
rse
ttin
gu
pa
ne
na
blin
ge
nvi
ron
me
nt
an
dco
nd
itio
ns
for
pa
rtic
ipa
tion
;
Ru
le 4
7 o
f th
e P
PR
20
08
pro
vid
es
for
an
on
-d
iscr
imin
atio
n;
Ru
le 4
8 o
f th
e P
PR
, 2
00
8p
rovi
de
sfo
rq
ua
lific
atio
ns
for
ten
de
rer
incl
ud
ing
the
po
sse
ssio
no
fne
cess
ary
tech
nic
ala
nd
pro
fess
ion
al
exp
ert
ise
;
Ru
les
48
-49
of th
e P
PR
, 2
00
8re
qu
ire
an
yp
rocu
rem
en
tp
roce
ssto
cle
arl
ya
rtic
ula
tete
chn
ica
lsp
eci
fica
tion
sfo
rth
ea
wa
rdo
fa
ny
con
tra
ct;
Ru
les
56
-60
of th
e P
PR
, 2
00
8p
rovi
de
fo
r a
Re
vie
w P
an
el
that
is r
espo
nsib
le fo
r re
view
ing
a t
en
de
rer’s
com
pla
int
an
dre
com
me
nd
ing
co
rre
ctiv
e
Issu
es
with
reg
ard
tose
ttin
gu
ptr
an
spa
ren
tan
do
bje
ctiv
ese
lect
ion
crite
ria
still
exi
st.
Of
the
31
case
sb
rou
gh
tb
efo
reth
eR
evi
ew
Pa
ne
l(b
etw
ee
nth
eye
ars
20
03
-2
00
7)
the
Co
mm
itte
efo
un
dfo
ur
inst
an
ces
wh
ere
the
pro
curi
ng
en
titie
sd
idn
ot
stip
ula
tecl
ea
rcr
iteri
ao
nth
eb
asi
so
fwh
ich
con
tra
cto
rsw
ere
sele
cte
d.
Th
eP
ub
licP
rocu
rem
en
tA
ct,
20
06
an
dth
eP
ub
licP
rocu
rem
en
tRu
les,
20
08
ha
vest
ren
gth
en
ed
the
imp
lem
en
tatio
nm
ech
an
ism
so
fexi
stin
gp
roce
du
res.
64
UN
CA
CP
rov
isio
ns
Do
me
sti
cL
eg
al
/R
eg
ula
tory
Re
gim
eC
om
pa
tib
ilit
yB
etw
ee
nU
NC
AC
an
dD
om
es
tic
Re
gim
e
Co
mp
lian
ce
an
dG
ap
Be
twe
en
La
wa
nd
Pra
cti
ce
Re
ma
rks
act
ion
toa
pro
curi
ng
en
tity,
with
resp
ect
toa
ny
bre
ach
of
itso
blig
atio
ns
un
de
rth
ese
Re
gu
latio
ns;
Se
ctio
ns
5 to
8 o
f th
e P
PA
,2
00
6p
rop
ose
ssy
ste
ms
for
the
pre
pa
ratio
no
fte
nd
er,
ha
nd
ling
pro
po
sals
,e
sta
blis
hm
en
to
fco
mm
itte
es,
an
dth
elik
e.
Art
icle
9.1
(c):
Sta
teP
art
ies
are
req
uir
ed
tou
seo
bje
ctiv
ea
nd
pre
de
term
ine
dcr
iteri
afo
rp
ub
licp
rocu
rem
en
td
eci
sio
ns.
Pu
blic
Pro
cure
me
nt
Act
,2
00
6
Pu
blic
Pro
cure
me
ntR
ule
s,2
00
8
Ru
le 8
of
the
PP
R,
20
08
req
uir
es
pro
curi
ng
en
titie
sto
ap
po
inta
Te
nd
er
Eva
lua
tion
Co
mm
itte
e(T
EC
)to
exa
min
e,
eva
lua
tea
nd
pre
pa
rea
rep
ort
with
reco
mm
en
da
tion
sfo
rth
ea
wa
rd;
Itis
req
uir
ed
tha
tT
EC
sco
nsi
sto
f fiv
e to s
eve
nm
em
be
rso
fw
ho
mtw
om
ust
be
exp
eri
en
ced
inp
rocu
rem
en
ta
nd
fro
mo
uts
ide
the
pro
curi
ng
en
tity;
Th
eP
PA
,2
00
6fo
rmu
late
scr
iteri
afo
rq
ua
lific
atio
na
sse
ssm
en
ta
nd
eva
lua
tion
tha
tw
ou
ldb
em
en
tion
ed
inth
ete
nd
er
or
pro
po
sal
do
cum
en
t.It
als
op
rovi
de
sg
uid
elin
es
for
eva
lua
ting
ten
de
rs,p
ost
-qu
alif
ica
tion
of
Aca
use
for
dis
satis
fact
ion
ha
sb
ee
nth
ee
xclu
sio
no
fth
etw
oe
xte
rna
lexp
ert
sin
the
TE
Cs,
wh
ich
isa
nim
po
rta
nts
afe
gu
ard
ag
ain
stfa
vori
tism
.
65
UN
CA
CP
rov
isio
ns
Do
me
sti
cL
eg
al
/R
eg
ula
tory
Re
gim
eC
om
pa
tib
ilit
yB
etw
ee
nU
NC
AC
an
dD
om
es
tic
Re
gim
e
Co
mp
lian
ce
an
dG
ap
Be
twe
en
La
wa
nd
Pra
cti
ce
Re
ma
rks
ten
de
rers
an
dth
ea
pp
rova
lp
roce
ss;
Se
ctio
n5
6to
the
Act
of
20
06
pro
vid
es
for
the
eva
lua
tion
of
ap
plic
atio
ns
an
da
pp
rova
lof
sho
rtlis
ts,w
hile
sect
ion
59
ad
dre
sse
sth
ee
valu
atio
no
fp
rop
osa
ls.
Art
icle
9.1
(d):
Sta
tes
Pa
rtie
sa
reo
blig
ate
dto
ha
vee
ffect
ive
syst
em
so
fd
om
est
icre
vie
wp
ut
into
pla
ce,
incl
ud
ing
an
ad
eq
ua
tesy
ste
mo
fa
pp
ea
l,to
en
sure
leg
alr
eco
urs
ea
nd
rem
ed
ies
wh
ere
pro
cure
me
nt
rule
sa
nd
pro
ced
ure
sh
ave
no
tb
ee
nfo
llow
ed
.
Pu
blic
Pro
cure
me
nt
Act
,2
00
6
Pu
blic
Pro
cure
me
ntR
ule
s,2
00
8
Ru
les
56
to
60
of
the
P
PR
,2
00
8se
tou
td
eta
iled
me
cha
nis
ms
an
dp
roce
du
res
for
com
pla
ints
an
da
pp
ea
lsw
hic
hin
clu
de
the
rig
ht
toa
pp
ea
l,th
ee
sta
blis
hm
en
to
fa
revi
ew
pa
ne
lan
dp
roce
du
res
for
com
pla
int;
Co
mp
lain
tsca
nb
esu
bm
itte
dto
the
pro
curi
ng
en
tity
inth
efir
stin
sta
nce
;th
eco
mp
lain
an
tca
ng
oto
the
ne
xtst
ag
eo
fre
vie
w,i
.e.,
toth
eS
ecr
eta
ryo
fth
eco
nce
rne
dm
inis
try
an
dfin
ally
s/h
eca
na
skfo
ra
revi
ew
pa
ne
lto
be
con
stitu
ted
un
de
rre
gu
latio
n6
0o
fth
eP
PR
20
08
;S
ect
ion
24
of
the
Pu
blic
Pro
cure
me
nt
Act
,2
00
6d
esc
rib
es
the
syst
em
for
pro
cure
me
nt
po
stre
vie
wb
ye
sta
blis
hin
ga
pro
curi
ng
Be
twe
en
yea
rs2
00
3-2
00
7a
tota
lof
31
case
sh
ave
be
en
bro
ug
ht
be
fore
the
revi
ew
pa
ne
l.O
fth
ese
,a
tle
ast
thre
eca
ses
resu
lted
inth
ep
rocu
rin
ge
ntit
ies
be
ing
ask
ed
tore
-te
nd
er;
Th
eC
PT
Uh
as
sta
rte
dp
rocu
rem
en
tm
an
ag
em
en
tca
pa
city
bu
ildin
gp
rog
ram
sto
sub
sta
ntia
llye
nh
an
ceca
pa
city
for
pro
cure
me
nt
ma
na
ge
me
nt
thro
ug
ha
stru
ctu
red
ed
uca
tion
an
dtr
ain
ing
curr
icu
lum
ad
dre
ssin
gth
en
ee
ds
of
sen
ior
ma
na
ge
rs,
wo
rkin
gle
vels
taff
,au
dito
rsa
nd
the
bu
sin
ess
com
mu
nity
for
the
pu
rpo
ses
ofb
uild
ing
ap
rofe
ssio
no
fpro
cure
me
nt
spe
cia
lists
.
Tra
inin
ga
nd
cap
aci
tyb
uild
ing
of
pu
blic
off
icia
ls,
pro
cure
me
ntr
ela
ted
issu
es
wbid
din
g c
om
mu
niti
es
an
d b
en
efic
iarie
s in
ou
lde
nco
ura
ge
ad
he
ren
ceto
pro
cure
me
nt
rule
sa
nd
pro
ced
ure
s.
66
UN
CA
CP
rov
isio
ns
Do
me
sti
cL
eg
al
/R
eg
ula
tory
Re
gim
eC
om
pa
tib
ilit
yB
etw
ee
nU
NC
AC
an
dD
om
es
tic
Re
gim
e
Co
mp
lian
ce
an
dG
ap
Be
twe
en
La
wa
nd
Pra
cti
ce
Re
ma
rks
en
tity
wh
ich
sha
ll,w
ithin
nin
em
on
ths
of
the
en
do
fe
ach
fisca
lye
ar,
arr
an
ge
for
an
ind
ep
en
de
nt
pro
cure
me
nt
po
stre
vie
w.
Art
icle
9.2
:S
tate
sP
art
ies
are
req
uir
ed
tota
kea
pp
rop
ria
tem
ea
sure
sto
pro
mo
tetr
an
spa
ren
cya
nd
acc
ou
nta
bili
tyin
the
ma
na
ge
me
nt
ofp
ub
licfin
an
ces.
Su
chm
ea
sure
ssh
ou
ldin
clu
de
pro
ced
ure
sfo
rth
ea
do
ptio
no
fth
en
atio
na
lbu
dg
et,
time
lyre
po
rtin
go
nre
ven
ue
an
de
xpe
nd
iture
,a
pp
rop
ria
tesy
ste
ms
of
acc
ou
ntin
ga
nd
au
diti
ng
sta
nd
ard
s,re
late
do
vers
igh
t,ri
skm
an
ag
em
en
ta
nd
inte
rna
lco
ntr
ol.
Art
icle
87
of
the
Co
nst
itutio
no
fB
an
gla
de
sh
Ru
les
11
1-1
15
of
the
Pa
rlia
me
nta
ryR
ule
so
fP
roce
du
re
Th
eM
inis
try
of
Fin
an
ceis
req
uir
ed
top
rep
are
an
dp
rese
nt
an
an
nu
alb
ud
ge
tto
the
Pa
rlia
me
nti
na
cco
rda
nce
with
art
icle
87
of
the
Co
nst
itutio
n;
Ru
les
11
1to
11
5o
fth
eP
arl
iam
en
tary
Ru
les
of
Pro
ced
ure
pro
vid
ea
de
taile
dfr
am
ew
ork
for
the
pre
sen
tatio
no
fth
eb
ud
ge
ta
nd
dis
cuss
ion
so
nit;
Art
icle
12
7o
fth
eC
on
stitu
tion
pro
vid
es
for
the
est
ab
lish
me
nt
of
the
Off
ice
of
the
Co
mp
tro
ller
an
dA
ud
itor
Ge
ne
ral(
CA
G)
for
the
ma
na
ge
me
nto
fa
llp
ub
licfin
an
ces
an
dre
late
do
vers
igh
to
fa
llp
ub
licin
stitu
tion
s;
Exi
stin
ga
ud
itin
gst
an
da
rds
such
as
the
acc
ou
nts
cod
efo
rg
ove
rnm
en
te
xpe
nd
iture
s,fie
lda
ud
itin
ga
nd
rep
ort
ing
sta
nd
ard
s,a
ud
itco
de
an
do
pe
ratio
na
l
Fin
an
cia
lpri
ori
ties
inth
ep
roce
sso
ffo
rmu
latin
gth
eb
ud
ge
tn
ee
dto
be
gu
ide
db
yp
eri
od
icse
cto
ralp
olic
ya
na
lysi
s.T
he
ab
sen
ceo
fsu
cha
na
lysi
sh
ind
ers
tra
nsp
are
ncy
an
dcr
ea
tes
op
po
rtu
niti
es
for
the
mis
ma
na
ge
me
nt
of
pu
blic
fun
ds;
Imp
rove
me
nts
are
ne
cess
ary
tost
ren
gth
en
au
diti
ng
syst
em
s,th
at
cou
ldin
clu
de
ad
op
ting
the
sta
nd
ard
so
fIn
tern
atio
na
lP
ub
licS
ect
or
Acc
ou
ntin
ga
nd
cust
om
ize
din
tern
al
con
tro
lma
nu
als
for
diff
ere
nt
min
istr
ies
(su
cha
sth
at
inth
eM
inis
try
of
Fin
an
ce);
Th
ere
isa
lso
an
ee
dfo
rse
pa
rate
inte
rna
lau
diti
ng
de
pa
rtm
en
tsw
ithin
min
istr
ies
toco
mp
lime
nt
the
fun
ctio
na
nd
role
of
the
CA
G;
Th
eb
ud
ge
tp
roce
sso
fth
e
Th
ew
ho
lep
roce
sso
fb
ud
ge
tfo
rmu
latio
nsh
ou
ldb
em
ore
con
sulta
tive
inst
ea
do
fth
eto
p-d
ow
na
pp
roa
chin
wh
ich
the
an
nu
alf
ina
nci
al
sta
tem
en
tsp
rep
are
db
yd
iffe
ren
tse
cto
rsa
rep
rese
nte
db
yth
eF
ina
nce
Min
iste
r;
Th
eG
ove
rnm
en
tsh
ou
ldw
ork
on
the
ma
na
ge
me
nt
sect
ors
ofp
ub
licfin
an
ces.
To
tha
ten
d,
en
act
me
nt
of
aco
mp
reh
en
sive
au
dit
act
an
dca
pa
city
de
velo
pm
en
to
fth
ea
ud
ito
ffici
als
wo
uld
be
he
lpfu
l;
Th
efo
rth
com
ing
Au
dit
Act
sho
uld
ad
dre
ssso
me
of
the
ga
ps
ide
ntif
ied
be
twe
en
po
licy
an
dp
ract
ice
inth
em
an
ag
em
en
to
fpu
blic
fun
ds.
67
UN
CA
CP
rov
isio
ns
Do
me
sti
cL
eg
al
/R
eg
ula
tory
Re
gim
eC
om
pa
tib
ilit
yB
etw
ee
nU
NC
AC
an
dD
om
es
tic
Re
gim
e
Co
mp
lian
ce
an
dG
ap
Be
twe
en
La
wa
nd
Pra
cti
ce
Re
ma
rks
ma
nu
als
,p
erf
orm
an
cem
an
ua
lsfo
rd
iffe
ren
td
ire
cto
rate
s,co
de
of
eth
ics
for
go
vern
me
nt
au
diti
ng
an
dfin
an
cia
lma
na
ge
me
ntr
ule
sa
reco
mp
lime
nta
ryto
the
pro
visi
on
so
fth
eU
NC
AC
.
fisca
lye
ar
20
07
-20
08
wa
sfa
irly
con
sulta
tive
with
cha
ng
es
ma
de
toth
ep
rop
ose
db
ud
ge
taft
er
inp
ut
wa
sre
ceiv
ed
fro
mth
ep
ub
licb
ud
ge
tp
roce
ss;
Th
eG
oB
ha
sju
sta
nn
ou
nce
dits
bu
dg
et
for
the
fisca
lye
ar
of
20
08
-20
09
.A
cco
rdin
gto
the
Fin
an
ceA
dvi
ser,
itis
ap
art
icip
ato
ryb
ud
ge
tth
at
issu
bje
ctto
mo
difi
catio
nb
ase
do
nth
ere
spo
nse
ofp
ers
on
sfr
om
all
sect
ors
ofs
oci
ety
;
Th
eG
ove
rnm
en
tha
sru
nse
vera
lco
nsu
ltativ
em
ee
ting
sw
ithst
ake
ho
lde
rsb
efo
refo
rmu
latin
gth
ep
rop
ose
db
ud
ge
t.A
dd
itio
na
lly,i
tw
elc
om
es
an
yco
mm
en
to
nth
eb
ud
ge
tw
hic
his
po
ste
de
lect
ron
ica
llyo
nth
ew
eb
site
of
the
Min
istr
yo
fF
ina
nce
.
Art
icle
10
:S
tate
sP
art
ies
are
req
uir
ed
toe
nh
an
cetr
an
spa
ren
cyin
pu
blic
ad
min
istr
atio
n,
incl
ud
ing
itso
rga
niz
atio
n,
fun
ctio
nin
ga
nd
de
cisi
on
-ma
kin
gp
roce
sse
s,b
ya
do
ptin
gp
roce
du
res
or
reg
ula
tion
sa
llow
ing
Rig
ht
toIn
form
atio
nO
rdin
an
ce,
20
08
(pro
po
sed
)T
he
reis
no
such
law
tha
tp
rote
cts
the
rig
ht
of
ind
ivid
ua
lsto
ob
tain
info
rma
tion
ab
ou
tth
ea
ctiv
itie
so
fth
ep
ub
lic/p
riva
teo
ffic
es
of
Ba
ng
lad
esh
;
Th
eG
oB
ha
sm
ad
ee
ffort
sto
Th
eO
rdin
an
ceh
as
be
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68
UN
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dw
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69
UN
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Do
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the
sea
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itie
s.
70
Chapter 3
Criminalization and Law Enforcement 3.1 Criminalization of Offences 3.2 Law Enforcement Measures Matrix on compliance with articles 15-42
Criminalization and Law Enforcement
Prevention and eradication of corruption require a comprehensive andmultidisciplinary approach. Chapter III of the United Nations Conventionagainst Corruption (UNCAC) obligates States Parties to criminalize a widerange of acts of corruption (articles 15-27) and to establish a series ofprocedural measures and mechanisms that support such criminalization(articles 28-41). Some of these obligations are mandatory while others arenon-mandatory. When attributing mandatory obligations to the StatesParties, the UNCAC uses the terms “shall adopt,” “shall establish,” etc. Onthe other hand, in respect to non-mandatory obligations, the UNCAC usesthe terms “shall consider adopting,” “may adopt,” etc. The UNCACemphasis on criminalization and law enforcement indicates that these areessential areas for action in order for Bangladesh to effectively fightcorruption.
3.1 Criminalization of Offences
Articles 15, 16 & 21: Bribery
The UNCAC obligates States Parties to criminalize certain acts of bribery.These are active bribery of national public officials (article 15(a)), passivebribery of national public officials (article 15(b)), and active bribery offoreign public officials and officials of public international organizations(article 16.1). Criminalization of these acts is mandatory on the part of aState Party. The UNCAC also requires States Parties to considercriminalization of passive bribery of foreign public officials and officials ofpublic international organizations (article 16.2), active bribery in the privatesector (article 21(a)), and passive bribery in the private sector (article 21(b)).
In Bangladesh, the Penal Code, 1860 criminalizes the act of “taking by apublic servant of any gratification other than legal remuneration in respectof an official act” (section 161), the act of “obtaining by a public servant ofany valuable thing without consideration from person concerned inproceeding or business transacted by such public servant” (section 165),and any abetment, i.e., instigating or aiding, by any person of any suchtaking or obtaining (section 165A). Moreover, according to the Preventionof Corruption Act, 1947, the act of “accepting or obtaining by a publicservant of any gratification other than legal remuneration in respect of anofficial act” (section 5(1)(a)), and the act of “accepting or obtaining by apublic servant of any valuable thing without consideration from [a] personconcerned in proceeding[s] or business transacted by such public servant”(section 5(1)(b)) amount to punishable criminal misconduct. These penalprovisions adequately address the UNCAC requirements regarding activeand passive bribery of national public officials.
73
However, there is no domestic law categorically criminalizing active briberyof foreign public officials and officials of public international organizationsas required by article 16, paragraph 1 of the UNCAC. Moreover, so far aspassive bribery of foreign public officials and officials of publicinternational organizations and bribery (active or passive) in the privatesector are concerned, the UNCAC standard is yet to be translated into thedomestic laws of Bangladesh.
To ensure compatibility with the mandatory obligation of the UNCAC, it isrecommended that active bribery of foreign public officials and officials ofpublic international organizations be criminalized as required by article 16,paragraph 1 of the Convention. Moreover, passive bribery of foreign publicofficials and officials of public international organizations and bribery(active or passive) in the private sector should also be criminalized.Although criminalization of these offences is not a mandatory requirementof the UNCAC, domestic realities of Bangladesh demand punishment forthese acts. This is because foreign public officials, officials of publicinternational organizations and persons concerned in the private sectorfrequently indulge in acts of bribery. Keeping these acts of bribery outsidethe purview of penal laws would frustrate the efforts of Bangladesh againstcorruption. Accordingly, enactment of new legislation or amendment ofexisting laws may be recommended.
Articles 17 & 22: Embezzlement, misappropriation or otherdiversion of property
States Parties have a mandatory obligation to criminalize embezzlement,misappropriation or other diversion of property by a public official (article17) and a non-mandatory obligation to criminalize embezzlement ofproperty in the private sector (article 22).
Regarding “embezzlement, misappropriation or other diversion of propertyby a public official” (article 17), the domestic standards are quite compatiblewith the UNCAC standard. The Penal Code, 1860 criminalizes the acts of“dishonest misappropriation of property” (section 403) and “criminal breachof trust by [a] public servant” (section 409). These offences, as theirdefinitions indicate, include embezzlement, misappropriation or otherdiversion of property by a public official. Moreover, according to thePrevention of Corruption Act, 1947, the act of “dishonest or fraudulentmisappropriation or conversion by a public servant for his own use of anyproperty entrusted to him or under his control as a public servant orallowing any other person so to do” is punishable criminal misconduct(section 5(1)(c)). On the other hand, definitions of the offences of dishonestmisappropriation of property (section 403) and criminal breach of trust(section 406) as criminalized by the Penal Code, 1860, includeembezzlement of property by a person directing or working in a private
74
sector entity. Accordingly, embezzlement of property in the private sector isalso punishable under the penal laws of Bangladesh.
Although domestic laws of Bangladesh contain several penal provisionsdealing with embezzlement, misappropriation or other diversion ofproperty, these provisions are not equally resorted to by the prosecutingagencies. In many cases, charges are brought under section 409 of thePenal Code, 1860 and/or section 5(1)(c) of the Prevention of CorruptionAct, 1947. Charges under sections 403 and 406 of the Penal Code, 1860to address acts of corruption are rare. This reflects that less attention isbeing paid to bringing the acts of embezzlement, misappropriation or otherdiversion of property in the private sector to justice. Therefore, theGovernment should ensure that penal provisions regarding such acts areput into more frequent practice.
Article 18: Trading in influence
The UNCAC prescribes that States Parties consider criminalization of activeas well as passive trading in influence (article 18). In Bangladesh, the PenalCode, 1860, criminalizes the act of “taking gratification in order to influence[a] public servant by corrupt or illegal means” (section 162), the act of “takinggratification for exercise of personal influence with [a] public servant”(section 163), the act of “obtaining by a public servant of [a] valuable thingwithout consideration from [a] person concerned in proceedings or businesstransacted by such public servant” (section 165) or any abetment, i.e.,instigating or aiding, of any of these offences (sections 164 and 165A).Moreover, according to the Prevention of Corruption Act, 1947, the act of“accepting or obtaining, by a public servant, a valuable thing, withoutconsideration from persons concerned in proceedings or businesstransacted by such public servant” is punishable criminal misconduct(section 5(1)(b)). All these penal provisions adequately address the UNCACrequirements regarding active and passive trading in influence.
Article 19: Abuse of functions
States Parties are required to consider criminalization of intentional abuseof functions or position in violation of laws by a public official whiledischarging official functions for the purpose of obtaining an undueadvantage for any person or entity (article 19). This is a non-mandatoryobligation for the States Parties. In Bangladesh, according to thePrevention of Corruption Act, 1947, “abuse of position, by corrupt orillegal means or otherwise, by a public servant for obtaining or attemptingto obtain for himself or for any other person any valuable thing or pecuniaryadvantage” is a punishable criminal misconduct (section 5(1)(d)).Consequently, Bangladesh has satisfied the UNCAC provision on abuse offunctions.
75
Article 20: Illicit enrichment
It is very difficult to prove the actual transaction of corruption. However, asignificant increase in the assets of a public official, if disproportionate tohis or her lawful income, always conveys a prima facie (on the face of it)presumption that the public official concerned benefited from any suchcorruption. As such, establishment of illicit enrichment as an offence hasbeen found helpful as a deterrent to corruption among public officials in anumber of jurisdictions. Accordingly, the UNCAC prescribes that StatesParties consider criminalization of illicit enrichment (article 20).
The Anti-Corruption Commission Act, 2004 criminalizes the act of“possession of property in excess of known sources of income” (section27). Moreover, according to the Prevention of Corruption Act, 1947,“possession of pecuniary resources or of property disproportionate toknown sources of income by a public servant or any of his dependents, forwhich no reasonable explanation is offered” is punishable criminalmisconduct (section 5(1)(e)). These provisions meet the requirement ofarticle 20 of the UNCAC. Apart from these penal provisions, there isdisciplinary framework by which the cases of illicit enrichment by publicservants can be dealt with. The Government Servants (Conduct) Rules,1979 require every public servant to submit his/her wealth statement at thetime of joining the service and thereafter once every year (rule 13). Non-compliance with this obligation may lead to disciplinary action against thatpublic servant.
Despite the existence of adequate penal and disciplinary provisionsregarding illicit enrichment, over the years these provisions wereunderused; there were hardly any convictions for the offence of illicitenrichment. The historic drive against corruption initiated in 2007 hasactivated the efficacy of penal provisions regarding illicit enrichment. Since2007, 357 persons were asked by the ACC to declare their assets. Onscrutiny of these declarations, the ACC successfully prosecuted andconvicted offenders. On the other hand, until 2008, public servants wouldavoid their obligation of submitting wealth statements on the pretext ofnon-availability of the prescribed wealth statement form. In 2008, theGovernment finalized the form and accordingly, public servants havesubmitted their wealth statements. These statements are now beingverified by government agencies.
In a developing country like Bangladesh where corruption is generallyperceived as one of the most effective means of enrichment, there is noroom to overlook the offence of illicit enrichment. As such, the ongoingactivism of the prosecuting agencies and the Government to deal with illicitenrichment should continue and, if required, be strengthened in the daysto come.
76
Article 23: Laundering of proceeds of crime
The UNCAC obligates States Parties to criminalize “laundering ofproceeds of crime” (article 23). This UNCAC offence includes the act ofconversion or transfer for the purpose of concealing or disguising the illicitorigin of any proceeds of crime, the act of concealment or disguise of thetrue nature, source, location, disposition, movement or ownership of orrights with respect to any such property and the act of acquisition,possession or use of any such property.
The domestic legal regime on money laundering is relatively new. TheMoney Laundering Prevention Act, 2002 was the first penal law dealingwith the offence of money laundering. Since then, the criminal courts havetried few offenders under this Act. Because of some substantive as well asprocedural lacunas imbedded in the Act, the Government repealed it andenacted the Money Laundering Prevention Ordinance (MLPO), 2008. Thepresent legislation came into force on 15 April, 2008. This legislation,because of its extensive definition of “money laundering” and “predicateoffence,” reflects better compatibility with article 23 of the UNCAC.
In Bangladesh, the MLPO, 2008 defines “money laundering” in such anextensive way that includes transfer, conversion, remittance orconcealment of any property acquired through the commission of anypredicate offence (section 2(k)). Under this Ordinance, money laundering isa criminal offence (section 4). It is pertinent to mention here that thedefinition of “predicate offence” as offered by section 2(q) of the MLPO,2008 is also very extensive. Accordingly, domestic standards arecompatible with the UNCAC requirement.
Article 24: Concealment
The UNCAC requires that States Parties consider criminalization ofintentional concealment or continued retention of property with theknowledge that such property is the result of any offence established inaccordance with the UNCAC, but without having any participation in anysuch offence (article 24).
So far as the domestic penal norms of Bangladesh are concerned,concealment of any property acquired through the commission of anypredicate offence amounts to money laundering (section 2) and as such ispunishable (section 4) in accordance with the MLPO, 2008. Moreover, thePenal Code, 1860 criminalizes “dishonest or fraudulent removal orconcealment of property” (section 424), “dishonestly receiving or retainingstolen property” (section 411) and “assisting in concealment of stolenproperty” (section 414). It is relevant here to mention here that under thePenal Code, 1860, “stolen property” includes, inter alia, the property in
77
respect of which “dishonest misappropriation” or “criminal breach of trust”has been committed (section 410). All these penal provisions adequatelyaddress the elements of article 24 of the UNCAC.
Until 2008, the domestic legal regime on concealment was not effectivealthough there were many provisions in the Penal Code, 1860 to thateffect. This is because the offences of the Penal Code, 1860 require theproof of “dishonesty” or “fraud” as a precondition for punishment. In thisregard, the newly enacted penal provision of the MLPO, 2008 seems moreprosecution-friendly. As such, one can expect that in the days to come thelegal regime on concealment would be stronger and more efficacious.
Article 25: Obstruction of justice
Article 25 of the UNCAC requires the establishment of two offencesrelating to obstruction of justice. One is related to the use of physical force,intimidation, or the promise and offering of an undue advantage to obtainfalse testimony in proceedings concerning UNCAC offences (article 25(a)).Another provision relates to the use of physical force or intimidation tointerfere with the exercise of official duties by a justice or law enforcementofficial (article 25(b)).
In Bangladesh, under the Penal Code, 1860, use of criminal force (section352), and intimidation or threat (sections 506-507) are, ipso facto (by thatvery act), punishable. As such, these penal provisions can be invoked toaddress both offences described in article 25 of the UNCAC. The PenalCode, 1860 also criminalizes the acts of giving false testimony (sections193-196), causing the disappearance of evidence (section 201) anddestruction of a document to prevent its production as evidence (section204). Abetment, i.e., instigating or aiding, of any of the abovementionedoffences is also punishable. Furthermore, section 7 of the MLPO, 2008provides that obstruction or refusal to assist an investigating officer formoney laundering constitutes an offence. These offences contain theelements of the offence as described in article 25(a) of the UNCAC.
Interference with judicial proceedings can be tried under different penalprovisions relating to contempt of lawful authority of public officials andinsult or interruption of judicial proceedings by any such official (the PenalCode, 1860, sections 175, 178, 179, 180, 228). Moreover, use of criminalforce to deter a public servant in discharging his/her duty as criminalizedby the same Code (section 353) can be used to punish a personcommitting an offence described in article 25(a) of the UNCAC.Furthermore, the Contempt of Courts Ordinance, 2008 defines the terms“contempt of courts” in such an extensive manner that includes any actinterfering with the course of justice administered by the courts (section 2)and provides punishment for such acts (section 13).
78
In Bangladesh, because of a strong legal regime and consistent judicialactivism in upholding its prestige and dignity, the offence of interfering inthe exercise of judicial functions, as prescribed in article 25(a) of theUNCAC, is frequently brought to justice. However, because of a weakdomestic framework for protection of witnesses, penal provisionscorresponding to the offence as described in article 25(b) of the UNCACare infrequently used for prosecution. It is therefore recommended thatwitness protection mechanisms be strengthened.
Article 26: Liability of legal persons
Article 26 of the UNCAC requires the establishment of criminal, civil oradministrative liability for legal entities for the UNCAC offences. Thisobligation is mandatory, to the extent that it is consistent with domesticlegal principles.
Domestic standards of Bangladesh comply with the UNCAC requirement.The definition of the term “person,” as provided by the Penal Code, 1860,includes legal persons (section 11). Accordingly, in Bangladesh, legalpersons are amenable to criminal punishment for offences punishable withfines only. Additionally, civil and administrative liability of legal persons isacknowledged by the domestic legal regime. In Bangladesh, corporatebodies can be identified as perpetrators of many acts amounting tocorruption. Nevertheless, these legal persons are hardly prosecuted, letalone convicted, for any corruption offences. Therefore, so far as criminalliability of legal persons is concerned, the provision of the Penal Code,1860 acknowledging such liability by giving an extensive definition for theterm “person” practically remains nugatory. This is because the domesticlaws of Bangladesh do not contain any rule enabling the courts to presumeconstructive mens rea (guilty mind) of legal persons. In the absence ofsuch rule of presumption, criminal liability of legal persons cannot beensured since almost all the offences of corruption demand mens rea ofthe accused. To remedy the situation, amendment of existing laws shouldbe given serious thought so that mens rea can be imputed on legalpersons accused of committing acts of corruption.
Article 27: Participation, attempt and preparation
Under the UNCAC, States Parties are obliged to establish as criminaloffence, the participation in any capacity as an accomplice, assistant orinstigator in the commissions of any UNCAC offence (article 27.1). Thisobligation is mandatory. In addition, States Parties may wish to considerthe criminalization of attempts to commit an offence (article 27.2) or thepreparation of any such offence (article 27.3).
79
According to the Penal Code, 1860 and the other laws on corruption, suchas section 2(k) of MLPO, 2008, participation in and attempt of any offenceare generally punishable in Bangladesh. However, preparation to commitan offence is not punishable. Hence, the domestic laws of Bangladesh arefully compatible with the mandatory obligation of the UNCAC and partiallycompatible with its non-mandatory requirements.
In this regard, criminalization of preparation to commit an UNCAC offenceas a fulfillment of the non-mandatory obligation of the UNCAC is not veryeasy to suggest. If we consider the fundamental principles of the criminallaws of Bangladesh and their practical implications, it is feared that itwould be a troublesome task to fix the criteria of defining “preparation”without putting the legitimate rights of an accused at risk and suchcriminalization would be prone to abuse by the investigating andprosecuting agencies and personnel. However, comprehensive researchand continuing debates in the public sphere might suggest viable optionsthat Bangladesh can avail itself of in this regard.
3.2 Law Enforcement Measures
Article 28: Knowledge, intent and purpose as elements of an offence
The UNCAC provides that knowledge, intent or purpose required for thecommission of an UNCAC offence be inferred by courts in judicialproceedings from objective factual circumstances. This provision calls forevidentiary provisions in domestic laws.
Generally, the criteria to infer “knowledge,” “intent” or “purpose” is notregulated in Bangladesh by any statute. This is left to the courts’ objectivejudgment. Nevertheless, domestic standards enable the courts to presumecertain mental states of a person accused of corruption. For example, thePenal Code, 1860, in sections 161, 162, 163, 165, and 165A, criminalizestaking or obtaining by and giving or offering to any public servant anygratification or any valuable thing provided such acts of taking, obtaining,giving or offering are done with certain specified intention or purpose(s). Intrial of such offences, the court, on the proof of actus rea (such taking,obtaining, giving or offering), may presume, unless the contrary is proved, theintention or purpose(s) required to constitute the offence (the Criminal LawAmendment Act, 1958, section 7 paragraphs (2) and (3)). The Prevention ofCorruption Act, 1947 also contains similar special rules of evidence (section4). Moreover, the Criminal Law Amendment Act, 1958 provides that whenany person is charged for corruption, the fact that such person or any otherperson through him or on his behalf is in possession, for which he cannotsatisfactorily account, of pecuniary resources or property disproportionate tohis known sources of income, or that such person has, on or about the timeof offence with which he is charged, obtained an accretion to his pecuniary
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resources or property for which he cannot satisfactorily account may be takeninto consideration by the court as a relevant fact in deciding the whether heis guilty (section 7(1)). Accordingly, the UNCAC requirement is duly addressedin the domestic laws of Bangladesh.
Article 29: Statute of limitations
The UNCAC requires that States Parties establish a long period oflimitations for UNCAC offences and suspension of such statute orestablishment of a longer statute of limitations for alleged offendersevading the administration of justice.
In Bangladesh, there exists no statute of limitations prescribing the timelimit for commencement of criminal proceedings. As such, the domesticstandard is more prosecution-friendly than the UNCAC in the sense thatcriminal proceedings cannot be barred by limitations. Since article 29 ofthe UNCAC does not require States Parties without statutes of limitation tointroduce them, domestic standards of Bangladesh fully comply with theUNCAC requirement. It is relevant to mention here that although thereexists no limitation period for initiation of criminal proceedings, courtsalways require reasonable explanation if there is delay in initiating such aproceeding. If such delay is not reasonably explained to the satisfaction ofthe court, the benefit of doubt goes in favor of the accused.
Article 30: Prosecution, adjudication and sanctions
Article 30 provides for mandatory and non-mandatory obligations relatingto prosecution, adjudication and sanctions. States Parties should take intoaccount the gravity of the offence while prescribing punitive measures(article 30.1). Such measures do not preclude any disciplinary action takenby competent authorities against civil servants (article 30.8). They are alsorequired to establish or maintain an appropriate balance between anyimmunities or privileges accorded to their public officials and thepossibility of effectively investigating, prosecuting and adjudicatingUNCAC offences (article 30.2). States Parties must take appropriatemeasures to ensure the presence of any defendant released during trial atsubsequent criminal proceedings (article 30.4) and to take into account thegravity of the offences concerned when considering early release or paroleof persons convicted of UNCAC offences (article 30.5). They should alsoendeavor to ensure that discretionary powers relating to prosecution areexercised to maximize the effectiveness of law enforcement measures(article 30.3) and to consider establishing mechanisms through which apublic official accused of an UNCAC offence may be removed, suspendedor reassigned (article 30.6). States Parties should also considerestablishing procedures for the disqualification from public office ofpersons convicted of an UNCAC offence (article 30.7).
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In Bangladesh, punishments prescribed for corruption related offences areproportionate to the gravity of those offences. In most cases, offendersliable for offences relating to bribery and trading in influence can bepunished with imprisonment for up to three years and/or fines. Forcommission of similar offences, imprisonment of a public servant mayextend to seven years. Generally, offenders liable for embezzlement,misappropriation or other diversion of property can be punished withimprisonment for up to two or three years and/or fines. In case of publicservants, the term of imprisonment may extend to imprisonment for life orimprisonment for up to ten years. In all other cases, the amount of finesimposed on an offender liable for corruption shall not be less than the gainillegally derived. These punishments do not affect the initiation orcontinuation of any disciplinary proceeding against a public servant (theGovernment Servants (Discipline and Appeal) Rules, 1985).
Domestic laws do not prescribe any immunities or jurisdictional privilegesfor public officials that are disproportionate to the need or efficacy ofinvestigation, prosecution or trial. Until 2004, previous sanction wasnecessary to prosecute a public servant for corruption cases. With theenactment of the Anti-Corruption Commission Act, 2004, this jurisdictionalprivilege for public servants has been abolished. Most of the offences underthe domestic laws corresponding to UNCAC offences are non-bailable.Therefore, the accused is not generally entitled to claim bail as of right.However, the court may, in appropriate cases, grant bail in favor of anaccused. Conditions imposed on bail are matters of judicial discretion.According to the Government Servants (Discipline and Appeal) Rules,1985, government servants can be suspended for their alleged involvementin any offences. Moreover, according to the Public Servants (Dismissal onConviction) Ordinance, 1985, a public servant convicted of any offencepunishable with death, transportation or imprisonment for a term exceedingsix months and/or fined with taka one thousand or above will standdismissed from service from the date of judgment (section 3(1) read withschedule). The Constitution also disqualifies a person convicted of anoffence involving moral turpitude and sentenced to imprisonment for a termof two years and/or above from participating in an election to Parliament fora term of five years since release (article 66). Similar restriction applies forelection to local government bodies such as union parishad (the LocalGovernment (Union Parishads) Ordinance, 1983, section 7), paurashava(the Paurashava Ordinance, 1977, section 10) and city corporation (theDhaka City Corporation Ordinance, 1983, section 11; the Chittagong CityCorporation Ordinance, 1982, section 11; the Khulna City CorporationOrdinance, 1984, section 11; the Rajshahi City Corporation Act, 1987,section 13; the Sylhet City Corporation Act, 2001, section 8; the BarisalCity Corporation Act, 2001, section 8). On the whole, it appears that theUNCAC requirement is adequately addressed in the domestic laws ofBangladesh.
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The substantive provisions of domestic laws stated above are frequentlyresorted to. Public servants accused of corruption are in almost all theappropriate cases subjected to disciplinary actions. Once any such publicservant is convicted and awarded imprisonment for a term exceeding sixmonths and/or fines of taka one thousand or more, his service isautomatically terminated. Moreover, electoral laws disqualifying corruptconvicts are also frequently put into practice because of objections raisedby competing candidates. There was an instance where a member ofParliament lost his membership status for conviction in a corruption caseeven after he was elected.
Article 31: Freezing, seizure and confiscation
One of the most important ways to prevent offenders from profiting fromtheir acts of corruption is to ensure that States have strong confiscationregimes that provide for the identification, freezing, seizure andconfiscation of illicitly acquired funds and property. As such, article 31 ofthe UNCAC prescribes measures for confiscation.
The substantive obligations of States Parties arising out of article 31 arefound in paragraphs 1, 3, 4, 5 and 6, while procedural powers to trace,locate, gain access to and administer assets are found in the remainingparagraphs. States Parties are required to take necessary measures toenable confiscation of proceeds of crime derived from the UNCACoffences (article 31.1), property into which proceeds of crime areintermingled by way of transformation or conversion (article 31 paragraphs4 and 5), and income or other benefits derived from proceeds of crime(article 31.6). Additionally, States Parties are also obligated to takenecessary measures to enable the identification, tracing, freezing orseizure of such property (article 31.2) and to regulate the administration offrozen, seized or confiscated property (article 31.3).
Provisions for confiscation of property are contained in several laws ofBangladesh. The Anti-Corruption Commission Act, 2004 allows for theconfiscation of any property that has been acquired by illegal means or isdisproportionate to the legal source of income (section 27(1)). Thisprovision is broader in its application than the UNCAC. The Criminal LawAmendment Act, 1958 also empowers the courts to confiscate theproceeds of corruption (section 9). Moreover, courts can order freezing orattachment of properties allegedly acquired by illegal means ordisproportionate to the legal source of income, even before thecommencement of trial (the Anti-Corruption Commission Rules, 2007,rule 18). The Criminal Law Amendment Ordinance, 1944 also contains asimilar provision (section 4). Moreover, the Money Laundering PreventionOrdinance, 2008 empowers the courts to freeze, attach (section 14) orconfiscate (section 17) the property of any person accused of money
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laundering. Generally, administration of frozen or attached property isdetermined at the discretion of the courts (the Criminal Law AmendmentOrdinance, 1944, section 9) while the duty to administer attached propertylies with the Government. However, in case of any property attached,frozen, or confiscated in relation to an offence amounting to moneylaundering, the concerned court can appoint a receiver for the properadministration of such property (the Money Laundering PreventionOrdinance, 2008, section 21).
On the whole, it appears that domestic standards are fully compatible withthe UNCAC. However, over the years domestic standards providing forfreezing, attachment and confiscation of proceeds of corruption practicallyremained dormant. Before the massive drive of the ACC against corruptioninitiated in 2007, these provisions were hardly resorted to. However, since2007, these provisions have been applied and accordingly, illegallyacquired properties of many persons accused of corruption have beenfrozen, attached and confiscated. Although recourse to the legal regime onfreezing, seizure and confiscation is too recent to be evaluated, one canexpect that this recent trend, if continued in the long run, will constitute animportant deterrent that might have as great an effect as the punishmentsof imprisonment and fines. Moreover, the threat of freezing, seizure andconfiscation will render the crime of corruption less attractive and thus playan important preventing role in the fight against corruption.
Articles 32 & 33: Protection of witnesses, experts, victimsand reporting persons
Unless people feel free to report, testify and communicate their knowledgeand experience to the relevant authorities, all objectives of the UNCACcould be undermined. This is why the UNCAC calls for the protection ofwitnesses, experts, victims (article 32) and reporting persons (article 33).While the arrangement for protection of witnesses, experts, and victims ismandatory, that of reporting persons is non-mandatory. States Parties aremandated by the UNCAC to take appropriate measures against potentialretaliation or intimidation of witnesses, victims and experts. States are alsoencouraged to provide procedural and evidentiary rules for strengtheningthese protective measures as well as extending similar protection toreporting persons.
In Bangladesh, there is no specialized legal arrangement for protection ofwitnesses, experts, and victims (with exception to the protection of victimsof gender violence which is outside the remit of this study). In relation toreporting persons, section 28 of the MLPO, 2008 provides protection tothe Government, any government official or any reporting organizationfrom being sued or prosecuted, by any person that is affected or likely tobe affected due to proceedings brought in good faith under the Ordinance.
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Nonetheless, this lack of protection for other persons is a major constraintfor the prosecution in corruption cases. Witnesses lack the necessaryassurances for their safety and security in order to testify in court. In caseswhere they appear, they are hesitant to speak the truth, especially whenthey feel that the accused persons are politically, financially or otherwiseinfluential. This non-compliance with the UNCAC goes against thelegitimate interests of the prosecution. It also contributes to the lack ofexposure of many cases of corruption. Hence, to meet the UNCACrequirement it is recommended that either the existing laws are amendedor new legislations are made so that witnesses, experts, victims andreporting persons are safeguarded against any retaliation and intimidation.In particular, the options of ensuring confidentiality of a reporting person’sidentity, permitting the giving of testimony through the use ofcommunication technology, cross-border arrangement for relocation ofwitnesses, experts, victims and reporting persons under apprehension ofthreat, special security arrangement for such persons, etc., can beconsidered. In this regard, consulting witness, victim, and whistleblowerprotection laws of different countries could be of great help.
Article 34: Consequences of acts of corruption
The UNCAC contains a general obligation for States Parties to takemeasures, with due regard to the rights of third parties acquired in goodfaith and in accordance with the fundamental principles of the domesticlaw, to address the consequences of corruption. In this context, it issuggested that States Parties may wish to consider corruption as arelevant factor in legal proceedings to: (a) annul or rescind a contract; (b)withdraw a concession or other similar instrument; or (c) take any otherremedial action.
Domestic laws contain many provisions to address the consequences ofcorruption. The Contract Act, 1872 provides that an agreement is void ifany part of a single consideration for one or more of its objects is unlawful(section 24). As corruption is unlawful, it renders such contracts null andvoid. Additionally, corruption amounting to mala fide may be a sufficientground for the withdrawal of any concessions in any contract or similarinstrument. Furthermore, according to the Criminal Law AmendmentOrdinance, 1944, property procured by means of corruption, even if it is inthe possession of a transferee, can be attached or forfeited, unless s/he isa bona fide transferee for value (sections 4 and 13). With regard to bonafide transferees, section 17(3) of the MLPO, 2008 also recognizes the rightof third parties to property acquired in good faith. This provision states thatif a person in good faith and for proper value had purchased the propertybefore the order of forfeiture was passed by the court under section 17 andis able to convince the court that s/he had no knowledge of the propertybeing laundered and had purchased it in good faith, the court may order
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the convicted person to deposit the sold value of the said property in thegovernment treasury within a timeframe determine by the court, instead ofgiving a forfeiture order. Accordingly, the domestic laws meet the UNCACobligation.
So far as the consequences of corruption are concerned, the Constitutionof the People’s Republic of Bangladesh goes beyond the UNCAC. It statesthat, “the State shall endeavor to create conditions in which, as a generalprinciple, persons shall not be able to enjoy unearned incomes...” (article20(2)). Therefore, it is the constitutional duty of the State to address theconsequences of corruption in a more pro-active manner. Mere fulfillmentof the UNCAC requirement would not be sufficient. Therefore, theGovernment should consider going beyond the prescription of remedialactions in legal proceedings and develop preventive mechanisms so that aperson is unable to enjoy incomes derived from corrupt transactions.
Article 35: Compensation for damage
The UNCAC requires that States Parties take such measures as may benecessary, to ensure that victims of corruption have the right to initiatelegal proceedings against those responsible for that damage in order toobtain compensation. This mandatory requirement as outlined in article 35does not require that victims be guaranteed compensation or restitution,but that legislative or other measures are provided, whereby suchcompensation can be sought or claimed.
The domestic legal system of Bangladesh recognizes the right to claimcompensation for any damage in accordance with the law of torts. Anaggrieved person, by filing a civil suit, can do so. Victims of corruptionare no exception in this regard and they can also be awardedcompensation in criminal proceedings (the Code of Criminal Procedure,1898, section 545). As such, domestic laws meet the requirement of theUNCAC. However, there is hardly any precedent of using these domesticstandards in favor of any victim of corruption. Moreover, in practice, theamount of court fees required to file any civil suit for compensation is amajor factor that deters corruption victims from coming forward withtheir lawful claim of compensation. As such, this amount can be reducedfor corruption victims.
Article 36: Specialized authorities
The UNCAC requires that States Parties establish a body or bodiesspecialized in combating corruption through law enforcement. Such abody or bodies must be granted the necessary independence to be ableto carry out their functions effectively, without any undue influence, andshould have the appropriate training and resources to carry out their tasks.
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In Bangladesh, the Anti-Corruption Commission (ACC) has beenestablished under the provisions of the Anti-Corruption Commission Act,2004 as the specialized authority for combating corruption. It comprisesthree Commissioners, who have at least 20 years of experience of servicein the fields of law, education, administration, judiciary or armed forces. ASelection Committee, consisting of two judges of the Supreme Court(nominated by the Chief Justice of Bangladesh), the Comptroller andAuditor General (CAG), the Chairman of the PSC, and a former CabinetSecretary, is responsible for recommending the appointment of theCommissioners who have a guaranteed tenure of four years. TheCommissioners are supported by an office of over a thousand staff thatinclude 6 Directorates, i.e., administration, legal and prosecution, enquiryand investigation, research, evaluation, prevention and public awareness,and pending matters, each headed by a Director General, 19 directors and81 deputy directors. Under the law, the ACC has been guaranteedfunctional independence (sections 3 and 24). Furthermore, the MLPO, 2008established the Bangladesh Bank and the Financial Intelligent Unit as theregulatory body for preventing and combating money laundering.Accordingly, the UNCAC requirement is reasonably reflected in thedomestic legal standard. However, allocation of more resources, greaterfinancial and administrative autonomy and imparting necessary training toits personnel will enhance the effectiveness of the ACC in the discharge ofits functions
Established in 2004, the ACC experienced a re-constitution in 2007. Sincethen it has been working with tremendous enthusiasm, showingunprecedented activism and increasingly gaining public confidence. In2007 (as of 23 April, 2008), the ACC filed 362 criminal cases of corruption.Of them, 166 are under investigation, 148 on trial and judgments havebeen received in 48 cases. However, to institutionalize this current imageand effectiveness of the ACC, along with the continued political will andcommitment to combating corruption, an independent judiciary and otherwatchdog institutions are essential. To make the ACC more effective, theinstitutional feableness of some other institutions of national importancemust also be cured. In 2007, the judiciary of Bangladesh was completelyseparated from the executive. This is a historical achievement. Now moreattention should be paid to ensure that the independence of the judiciaryis safeguarded. While the office of the Tax Ombudsman is functioning, theoffice of the Ombudsman is yet to be established. However, onceestablished, the office of the Ombudsman could play a vital role insupplementing the activities of the ACC. This is because the Constitutionof the People’s Republic of Bangladesh, the supreme law of the land,empowers the Ombudsman to investigate any action taken by a Ministry,public officer or statutory public authority (article 77). Due importanceshould also be given to the reform of the public accounts committee of theParliament and the Office of the CAG, so that these bodies can be more
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effective in fighting corruption. These issues are at the forefront of publicdebates on good governance.
Article 37: Cooperation with law enforcement authorities
Under article 37 of the UNCAC, States Parties are required to takeappropriate measures to encourage persons taking part in the commissionof an UNCAC offence (a) to supply information to competent authorities forinvestigative and evidentiary purposes; and (b) to provide specific facts tohelp authorities. This obligation is mandatory. Additionally, States Partiesare required to consider the options of immunity from prosecution (article37.2) and mitigation of sentences (article 37.3) for such persons who haveassisted in providing information relevant to the case. However, thisobligation is non-mandatory.
Domestic standards comply with the UNCAC requirement. The CriminalLaw Amendment Act, 1958 provides: “at any stage of investigation,enquiry, and trial the Special Judge, with a view to obtaining the evidenceof any person supposed to have been directly or indirectly concerned inor privy to the offence, may for reasons to be recorded in writing, tenderpardon to such person on condition of his making a full and truedisclosure of the whole of the circumstances within his knowledge relativeto the offence and to every other person concerned, whether as principalor abettor, in the commission thereof . . .” (section 6(2)). The Code ofCriminal Procedure, 1898 contains similar provisions (sections 337 and338). Furthermore, there are provisions under the domestic laws whichactually oblige related persons to cooperate with the investigatingauthorities. For example, section 7 of the MLPO, 2008 has criminalizedobstruction or refusal to assist a concerned officer engaged ininvestigation under the Ordinance, failure to comply without reasonablegrounds with a reporting obligation, and failure to supply informationrelating to money laundering. Moreover, providing false informationconcerning the source of funds or the identity of any account holder,beneficial owner, or nominee also amounts to a criminal offence undersection 8 of the MLPO, 2008. This arrangement, designed by thedomestic laws of Bangladesh, is meant to encourage, and in some casescompel, cooperation with law enforcement authorities.
In practice, the arrangement designed by the domestic laws does notensure sufficient cooperation with the law enforcement authorities. Severalfactors impede such cooperation. First, it is an enabling provisionempowering the court to grant pardons to the accused. It does not providethe choice to cooperate of one’s own accord to claim any immunity orexemption. Second, statements by an accused to law enforcementagencies are not generally admissible in courts of law in Bangladesh. Thishinders fair cooperation with law enforcement agencies. Third, the
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absence of protection mechanisms for witnesses and reporting personsdiscourages cooperation with law enforcement agencies. However, themassive drive and campaign against corruption, initiated by the ACC in2007, has inspired people to cooperate with law enforcement authorities.To ensure long-term sustainable cooperation with law enforcing agencies,laws can be amended to uproot or at least minimize the abovementionedfactors that impede such cooperation.
It is relevant to mention here that on 5 June, 2008 the Honourable Presidentissued an Ordinance on the establishment of a Truth and AccountabilityCommission (section 04 of the Ordinance No. XXVII of 2008). Once thisCommission, a quasi-judicial body, starts functioning, persons enriched inan illicit manner shall be dealt with some sort of leniency provided theymake a voluntary disclosure about their corrupt enrichment.
Article 38: Cooperation between national authorities
According to article 38 of the UNCAC, a State Party is required to takenecessary measures to encourage, in accordance with its domestic law,cooperation between its public authorities as well as its public officials andits authorities responsible for investigating and prosecuting criminaloffences. Such cooperation may include: informing the latter authorities,on their own initiative, when there are reasonable grounds to believe thatoffences of “bribery of national public officials,” “bribery in the privatesector” or “laundering of proceeds of crime” has been committed (article38(a)); or providing, upon request, to the latter authorities all necessaryinformation (article 38(b)).
Domestic standards do not, in general, provide obligations for publicauthorities to inform suo motu (on its own motion) the investigating orprosecuting authorities. However, according to the Anti-CorruptionCommission Act, 2004, public authorities are duty bound to providenecessary information if the ACC requires (section 23). Furthermore,section 23(2) of the Money Laundering Prevention Ordinance, 2008obliges the Bangladesh Bank to provide information related to moneylaundering or suspicious transactions upon request from any investigatingorganization unless there is any bar under the existing laws or for any othercause. Accordingly, the domestic standard partially meets the UNCACrequirement since it ensures cooperation of public authorities, if suchcooperation is sought for. To make it more compatible with the UNCACstandard, public authorities may be brought under a reporting obligation toinform the prosecuting and investigating agencies about any transaction ofcorruption within their knowledge.
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Article 39: Cooperation between national authorities and the private sector
Article 39 of the UNCAC requires States Parties to take necessary measuresto encourage, in accordance with its domestic law, cooperation betweennational investigating and prosecuting authorities and entities of the privatesector, particularly financial institutions, relating to matters involving thecommission of UNCAC offences (article 39.1). Beside this mandatoryobligation, States Parties should consider encouraging their nationals andother persons with a habitual residence in their territory to report to thenational investigating and prosecuting authorities the commission of anUNCAC offence (article 39.2).
According to the Anti-Corruption Commission Act, 2004, every person isduty-bound to provide necessary information if the ACC requires suchinformation; failure to provide this is a criminal offence (section 19).Additionally, according to the Money Laundering Prevention Ordinance(MLPO), 2008, any unreasonable refusal to cooperate with an officerconcerned with investigating money laundering is a criminal offence(section 7). Moreover, the MLPO, 2008 identifies banks, financialinstitutions, insurance companies, money changers, companies ororganizations remitting or transferring money, and any other organizationswhich conduct business with the approval of the Bangladesh Bank (BB),as “reporting organizations” for the prevention of money laundering.Section 25 obliges the reporting organizations to cooperate with the BB bykeeping the correct and full information of their clients’ identity and recordsof transactions; furthermore, they must provide these records to the BB ondemand. Reporting organizations are also required to inform the BBproactively and immediately of facts on suspicious, unusual, or doubtfultransactions which may likely be related to money laundering. Theseprovisions of domestic laws ensure cooperation, if such cooperation isdemanded by national authorities. Thus, the UNCAC requirement ispartially complied with.
In practice, prosecuting and investigating agencies are receivingcooperation whenever they seek it. Specific penal provisions are ensuringsuch cooperation. Nevertheless, the end result is not encouraging enoughfor the fight against corruption. Various factors are contributing this result.Firstly, domestic laws do not obligate any person or authority tocooperate with such agencies other than what they had asked for. This isminimizing the expectation that persons or authorities having knowledgeor information on the commission of corruption would feel bound to comeforward and cooperate with the investigating and prosecuting agencies.Secondly, domestic laws do not contain adequate protectionmechanisms for reporting persons. Since, perpetrators of corruption areinfluential persons, the vulnerability of reporting persons is discouragingsuo moto (on its own motion) cooperation. Thirdly, laws and policies of
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Bangladesh do not contain any incentives for such cooperation.Consequently, the level of cooperation between national authorities andthe public sector which now exists is far below the level visualized by theUNCAC.
To make the domestic legal regime fully compliant with the requirement ofthe UNCAC and also to deal with practical shortcomings, suo motocooperation between national authorities and the private sector can beencouraged by ensuring better protection of reporting persons and also bygiving incentives for such cooperation. Unless this is done, it is likely thatmany cases of corruption will remain undetected and accordingly, theproblem of corruption will be more acute day by day.
Article 40: Bank secrecy
Bank secrecy laws may operate as a hurdle in the investigation andprosecution of serious crimes with financial aspects. Therefore, theUNCAC requires that, in cases of domestic investigation of UNCACoffences, States Parties have appropriate mechanisms available withintheir domestic legal system to overcome obstacles that may arise out ofthe application of bank secrecy laws.
The Code of Criminal Procedure, 1898 empowers the investigatingauthority to have access to documents or information relating to anything inthe custody of a bank or banker, or the bank account of any person. Thiswould enable law enforcement to overcome obstacles arising out of banksecrecy laws in case of investigation; however, this is only possible with anorder of the court (section 165). Additionally, under section 25 of the MLPO,2008, reporting organizations are under a duty to provide the BangladeshBank with information about their clients and transactions on demand fromthe BB. Consequently, domestic laws are compatible with the UNCACstandards. During a massive drive against corruption initiated in 2007, theACC has filed many cases where they have substantially relied on bankinformation. Indeed, bank secrecy laws have not posed any significant legalthreat for the ACC.
Article 41: Criminal record
The UNCAC suggests that States Parties may wish to consider adoptingsuch legislative or other measures as may be necessary to take intoconsideration any previous conviction in another State of an allegedoffender for the purpose of using such information in criminal proceedingsrelated to an UNCAC offence. However, taking such measures is non-mandatory.
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According to the Evidence Act, 1872, previous conviction of an accusedby a foreign court is not, ipso facto (by that very fact), admissible in anyjudicial proceeding in Bangladesh (section 43). As such, this optionalguideline of the UNCAC is not reflected in the domestic standards ofBangladesh.
The UNCAC requirement as outlined in article 41, although a non-mandatory guideline, is very important for ensuring effective lawenforcement. Day by day, corruption is taking international dimensions.The perpetrators of corruption as well as the proceeds of corruption arecrossing borders with ever greater ease. In these days, the rigid rule ofevidence as prescribed by section 43 of the Evidence Act, 1872 seemsquite ineffective and inadequate. Hence, it may be recommended thatthe existing laws be amended so that courts can take into considerationany previous conviction in another state of an alleged offender and usethe same in criminal proceedings relating to an offence of corruption.
Article 42: Jurisdiction
The UNCAC requires that States Parties establish jurisdiction with respectto the UNCAC offences committed in their territory or on board aircraftand vessels registered under their laws (article 42.1). States Parties arealso required to establish jurisdiction in cases where they cannot extraditea person on the grounds of nationality (article 42.3), or for any otherreasons (article 42.4). In addition, States Parties are invited to considerestablishing jurisdiction in cases where their nationals are victimized,where the offence is committed by a national or stateless person residingin their territory, where the offence is linked to money laundering plannedto be committed in their territory, or the offence is committed against theState (article 42.2).
Mandatory and non-mandatory obligations of the UNCAC as expressed inarticle 42 are partially complied with by the laws of Bangladesh. Accordingto the Penal Code, 1860, the jurisdiction of the criminal courts ofBangladesh is very extensive. Every person is liable to punishment if s/hecommits any offence within the territory of Bangladesh (section 2). At thesame time, Bangladeshi citizens and persons on any ship or aircraftregistered in Bangladesh are liable to be tried and punished byBangladeshi courts if they commit any offence, even beyond the territoryof Bangladesh (sections 3 and 4). However, domestic laws of Bangladeshdo not establish jurisdiction in cases where a fugitive offender is notextradited.
In practice, the extra-territorial jurisdiction of the criminal courts ofBangladesh is hardly exercised because of an inadequate domestic regimeon mutual legal assistance and other forms of international cooperation. To
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make the extra-territorial jurisdiction of the criminal courts more effective,Bangladesh should have a stronger regime on extradition, enter intoagreements and arrangements with other countries for assistance incriminal investigation and civil or administrative proceedings relating tocorruption, and transmission of information on corruption; accordingly, theGovernment should establish enabling provisions in the procedural laws toeffectively use these modes of assistance in judicial proceedings. It shouldbe noted that in support of this end, Bangladesh is in the process ofnegotiating in regional forums like the South Asian Association forRegional Cooperation and the Bay of Bengal Initiative for Multi-SectoralTechnical and Economic Cooperation.
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ing
,o
fa
ny
such
taki
ng
or
ob
tain
ing
(se
ctio
n1
65
A);
Th
ese
act
sa
rep
un
ish
ab
lecr
imin
alm
isco
nd
uct
acc
ord
ing
toth
eP
reve
ntio
no
fC
orr
up
tion
Act
,1
94
7(s
ect
ion
5);
Acc
ord
ing
ly,
the
ma
nd
ato
ryre
qu
ire
me
nt
ofU
NC
AC
isd
uly
fulfi
lled
by
the
do
me
stic
leg
alr
eg
ime
.
Alth
ou
gh
do
me
stic
sta
nd
ard
sa
de
qu
ate
lycr
imin
aliz
ea
ctiv
ea
sw
ell
as
pa
ssiv
eb
rib
ery
of
na
tion
alp
ub
lico
ffic
ials
,th
ere
exi
sts
no
relia
ble
con
solid
ate
dd
ata
toa
sse
ssth
eir
pra
ctic
al
ap
plic
atio
ns,
imp
lica
tion
sa
nd
eff
ica
cy.
Art
icle
16
:S
tate
sP
art
ies
are
req
uir
ed
to:
•cr
imin
aliz
e“a
ctiv
eb
rib
ery
of
fore
ign
pu
blic
off
icia
ls
Do
me
stic
sta
nd
ard
sd
on
ot
con
tain
an
ysp
eci
ficp
en
al
pro
visi
on
sto
de
alw
ithb
rib
ery
of
fore
ign
pu
blic
off
icia
lsa
nd
off
icia
lso
fp
ub
licin
tern
atio
na
l
Do
me
stic
sta
nd
ard
sa
rein
com
pa
tible
with
the
req
uir
em
en
to
fth
eU
NC
AC
.
Sin
ced
om
est
icst
an
da
rds
do
no
tco
nta
ina
ny
pe
na
lp
rovi
sio
ns
reg
ard
ing
bri
be
ryo
ffo
reig
np
ub
lico
ffic
ials
an
do
ffic
ials
of
pu
blic
inte
rna
tion
al
Le
ga
lpro
visi
on
sm
ay
be
intr
od
uce
dto
ad
dre
ssb
rib
ery
of
fore
ign
pu
blic
off
icia
lsa
nd
off
icia
lso
fp
ub
licin
tern
atio
na
l
94
95
UN
CA
CP
rovi
sio
ns
Do
mes
tic
Leg
al/
Re
gu
lato
ryR
eg
ime
Co
mp
atib
ility
bet
wee
nU
NC
AC
an
dD
om
est
icR
eg
ime
Co
mp
lian
ce
an
dG
ap
sb
etw
een
Law
sa
nd
Pra
ctic
esR
em
ark
s
an
do
ffic
ials
of
pu
blic
inte
rna
tion
al
org
an
iza
tion
;”
•co
nsi
de
rcr
imin
aliz
atio
no
f“p
ass
ive
bri
be
ryo
ffo
reig
np
ub
lico
ffic
ials
an
do
ffic
ials
of
pu
blic
inte
rna
tion
al
org
an
iza
tion
s.”
org
an
iza
tion
s.o
rga
niz
atio
ns,
the
qu
est
ion
of
pra
ctic
alc
om
plia
nce
an
dg
ap
sd
oe
sn
ota
rise
.
org
an
iza
tion
s.
Art
icle
17
:S
tate
sP
art
ies
are
req
uir
ed
tocr
imin
aliz
e“e
mb
ezz
lem
en
t,m
isa
pp
rop
ria
tion
or
oth
er
div
ers
ion
”if
com
mitt
ed
inte
ntio
na
llyb
ya
pu
blic
off
icia
lfo
rh
is/h
er
be
ne
fito
rfo
rth
eb
en
efit
of
an
oth
er
pe
rso
n/e
ntit
yin
resp
ect
of
an
yp
rop
ert
y/fu
nd
s/se
curi
ties/
thin
gs
of
valu
ee
ntr
ust
ed
toh
im/h
er
by
virt
ue
of
his
/he
rp
osi
tion
.
Pe
na
lCo
de
,1
86
0
Pre
ven
tion
of
Co
rru
ptio
nA
ct,
19
47
Th
eP
en
alC
od
e,1
86
0cr
imin
aliz
es
“cri
min
alb
rea
cho
ftr
ust
by
pu
blic
serv
an
t”(s
ect
ion
40
9)
an
d“d
ish
on
est
mis
ap
pro
pri
atio
no
fp
rop
ert
y”(s
ect
ion
40
3).
Th
ese
offe
nce
s,a
sth
eir
de
finiti
on
sin
dic
ate
,in
clu
de
em
be
zzle
me
nt,
mis
ap
pro
pri
atio
no
ro
the
rd
ive
rsio
no
fp
rop
ert
yb
ya
pu
blic
off
icia
l;
Th
eP
reve
ntio
no
fC
orr
up
tion
Act
,1
94
7st
ate
sth
atc
rim
ina
lb
rea
cho
ftr
ust
an
dd
ish
on
est
mis
ap
pro
pri
atio
no
fp
rop
ert
y,if
com
mitt
ed
by
ap
ub
licse
rva
nt,
are
pu
nis
ha
ble
crim
ina
lmis
con
du
ct(s
ect
ion
5);
Acc
ord
ing
ly,
the
UN
CA
Cre
qu
ire
me
nt
isd
uly
fulfi
lled
by
Inm
an
yca
ses,
pe
na
lp
rovi
sio
ns
corr
esp
on
din
gto
art
icle
17
of
the
UN
CA
Ca
rere
sort
ed
tob
yp
rose
cutio
na
ge
nci
es.
the
do
me
stic
leg
alr
eg
ime
.
UN
CA
CP
rov
isio
ns
Do
me
sti
cL
eg
al
/R
eg
ula
tory
Re
gim
e
Co
mp
ati
bil
ity
be
twe
en
UN
CA
Ca
nd
Do
me
sti
cR
eg
ime
Co
mp
lian
ce
an
dG
ap
sb
etw
ee
nL
aw
sa
nd
Pra
cti
ce
sR
em
ark
s
Art
icle
18
:S
tate
sP
art
ies
are
req
uir
ed
toco
nsi
de
rcr
imin
aliz
atio
no
f“t
rad
ing
inin
flue
nce
”,i.e
.,in
ten
tion
al
pro
mis
e/o
fferi
ng
/giv
ing
too
rso
licita
tion
/acc
ep
tan
ceb
ya
pu
blic
off
icia
lor
an
yo
the
rp
ers
on
ofa
nu
nd
ue
ad
van
tag
ein
ord
er
tha
tth
ep
ub
lico
ffic
ialo
rth
at
oth
er
pe
rso
na
bu
sein
flue
nce
with
avi
ew
too
bta
inin
gfr
om
an
ad
min
istr
atio
no
rp
ub
lica
uth
ori
tyo
fth
eS
tate
an
un
du
ea
dva
nta
ge
.
Pe
na
lCo
de
,1
86
0
Pre
ven
tion
of
Co
rru
ptio
nA
ct,
19
47
Th
eP
en
alC
od
e,1
86
0cr
imin
aliz
es
taki
ng
gra
tific
atio
nin
ord
er
toin
flue
nce
ap
ub
licse
rva
nt
by
corr
up
tor
ille
ga
lme
an
s(s
ect
ion
16
2),
taki
ng
gra
tific
atio
nfo
re
xerc
ise
of
pe
rso
na
lin
flue
nce
with
ap
ub
licse
rva
nt
(se
ctio
n1
63
),o
bta
inin
gb
ya
pu
blic
serv
an
ta
valu
ab
leth
ing
with
ou
tco
nsi
de
ratio
nfr
om
ap
ers
on
con
cern
ed
inp
roce
ed
ing
so
rb
usi
ne
sstr
an
sact
ed
by
such
pu
blic
serv
an
t(s
ect
ion
16
5)
or
an
ya
be
tme
nt
(se
ctio
ns
16
4&
16
5A
);
Acc
ord
ing
toth
eP
reve
ntio
no
fCo
rru
ptio
nA
ct,
19
47
,o
bta
inin
gb
ya
pu
blic
serv
an
ta
valu
ab
leth
ing
with
ou
tco
nsi
de
ratio
nfr
om
pe
rso
nco
nce
rne
din
pro
cee
din
gs
or
bu
sin
ess
tra
nsa
cte
db
ysu
chp
ub
licse
rva
nt
isa
pu
nis
ha
ble
crim
ina
lmis
con
du
ct(s
ect
ion
5);
Acc
ord
ing
ly,
the
op
tion
al
req
uir
em
en
to
fth
eU
NC
AC
isd
uly
fulfi
lled
by
the
do
me
stic
Th
ere
exi
sts
no
relia
ble
con
solid
ate
dd
ata
toa
sse
ssp
ract
ica
lap
plic
atio
ns,
imp
lica
tion
sa
nd
eff
ica
cy.
leg
alr
eg
ime
.
96
97
UN
CA
CP
rov
isio
ns
Do
me
sti
cL
eg
al
/R
eg
ula
tory
Re
gim
e
Co
mp
ati
bil
ity
be
twe
en
UN
CA
Ca
nd
Do
me
sti
cR
eg
ime
Co
mp
lian
ce
an
dG
ap
sb
etw
ee
nL
aw
sa
nd
Pra
cti
ce
sR
em
ark
s
Art
icle
19
:S
tate
sP
art
ies
are
req
uir
ed
toco
nsi
de
rcr
imin
aliz
atio
no
fin
ten
tion
al
ab
use
of
fun
ctio
ns
or
po
sitio
nin
vio
latio
no
fla
ws
by
ap
ub
lico
ffic
ial,
wh
iled
isch
arg
ing
off
icia
lfu
nct
ion
s,fo
rth
ep
urp
ose
of
ob
tain
ing
an
un
du
ea
dva
nta
ge
for
an
yp
ers
on
or
en
tity.
Pre
ven
tion
of
Co
rru
ptio
nA
ct,
19
47
Acc
ord
ing
toth
eP
reve
ntio
no
fCo
rru
ptio
nA
ct,
19
47
,a
bu
seo
fp
osi
tion
,by
corr
up
to
rill
eg
alm
ea
ns
or
by
oth
erw
ise
,b
ya
pu
blic
serv
an
tfo
ro
bta
inin
go
ra
tte
mp
ting
too
bta
info
rh
imse
lfo
rfo
ra
ny
oth
er
pe
rso
na
ny
valu
ab
leth
ing
or
pe
cun
iary
ad
van
tag
e
isa
pu
nis
ha
ble
crim
ina
lm
isco
nd
uct
(se
ctio
n5
);
Acc
ord
ing
ly,
the
op
tion
al
req
uir
em
en
to
fUN
CA
Cis
du
lyfu
lfille
db
yth
ed
om
est
icle
ga
lre
gim
e.
Th
ere
exi
sts
no
relia
ble
con
solid
ate
dd
ata
toa
sse
ssp
ract
ica
lap
plic
atio
ns,
imp
lica
tion
sa
nd
eff
ica
cy.
Art
icle
20
:S
tate
sP
art
ies
are
req
uir
ed
toco
nsi
de
rcr
imin
aliz
atio
no
fin
ten
tion
ally
com
mitt
ed
“illi
cit
en
rich
me
nt”
,i.e
.,a
sig
nifi
can
tin
cre
ase
inth
ea
sse
tso
fa
pu
blic
off
icia
lth
at
he
/sh
eca
nn
ot
rea
son
ab
lye
xpla
inin
rela
tion
toh
is/h
er
law
fuli
nco
me
.
An
ti-C
orr
up
tion
Co
mm
issi
on
Act
(AC
C),
20
04
Pre
ven
tion
of
Co
rru
ptio
nA
ct,
19
47
Go
vern
me
nt
Se
rva
nts
(Co
nd
uct
)R
ule
s,1
97
9
Do
me
stic
sta
nd
ard
sa
reco
mp
atib
lew
ithth
eo
ptio
na
lre
qu
ire
me
nt
ofU
NC
AC
;
Th
eA
CC
Act
,20
04
crim
ina
lize
d“i
llici
te
nri
chm
en
t”(s
ect
ion
27
);
Acc
ord
ing
toth
eP
reve
ntio
no
fCo
rru
ptio
nA
ct,
19
47
,p
oss
ess
ion
ofp
ecu
nia
ryre
sou
rce
so
ro
fp
rop
ert
yd
isp
rop
ort
ion
ate
tokn
ow
nso
urc
es
of
inco
me
by
ap
ub
licse
rva
nto
ra
ny
of
his
/he
rd
ep
en
de
nts
,fo
rw
hic
hn
o
Inp
ract
ice
,th
ep
rovi
sio
ns
con
tain
ed
inth
eA
CC
Act
,2
00
4a
nd
the
Pre
ven
tion
of
Co
rru
ptio
nA
ct,
19
47
we
ren
ot
reso
rte
dto
un
til2
00
7a
nd
the
pro
visi
on
of
the
Go
vern
me
nt
Se
rva
nts
(Co
nd
uct
)R
ule
s,1
97
9u
ntil
20
08
.A
tp
rese
nt,
the
sep
rovi
sio
ns
are
ext
en
sive
lyb
ein
gu
sed
lea
din
gto
rem
ark
ab
lesu
cce
ssin
the
figh
ta
gin
stco
rru
ptio
n.
Th
eo
ng
oin
ga
ctiv
ism
of
the
pro
secu
ting
ag
en
cie
sa
nd
the
Go
vern
me
nt
tod
ea
lwith
illic
ite
nri
chm
en
tsh
ou
ldco
ntin
ue
an
d,
ifre
qu
ire
d,
be
stre
ng
the
ne
din
the
da
ysto
com
e.
rea
son
ab
lee
xpla
na
tion
is
UN
CA
CP
rov
isio
ns
Do
me
sti
cL
eg
al
/R
eg
ula
tory
Re
gim
e
Co
mp
ati
bil
ity
be
twe
en
UN
CA
Ca
nd
Do
me
sti
cR
eg
ime
Co
mp
lian
ce
an
dG
ap
sb
etw
ee
nL
aw
sa
nd
Pra
cti
ce
sR
em
ark
s
offe
red
,is
ap
un
ish
ab
lecr
imin
alm
isco
nd
uct
(se
ctio
n 5)
;
Th
eG
ove
rnm
en
tS
erv
an
ts(C
on
du
ct)
Ru
les,
19
79
con
tain
sd
isci
plin
ary
fra
me
wo
rkb
yw
hic
hth
eca
ses
of
illic
ite
nri
chm
en
to
fp
ub
licse
rva
nts
can
be
de
alt
with
(ru
le1
3).
Art
icle
21
:S
tate
sP
art
ies
are
req
uir
ed
toco
nsi
de
rcr
imin
aliz
atio
no
f“b
rib
ery
inp
riva
tese
cto
rs”.
Do
me
stic
sta
nd
ard
sd
on
ot
con
tain
an
ysp
eci
ficp
en
al
pro
visi
on
sto
de
alw
ithb
rib
ery
inth
ep
riva
tese
cto
r.
Do
me
stic
sta
nd
ard
sd
on
ot
me
et
the
op
tion
alr
eq
uir
em
en
to
fth
eU
NC
AC
.
Sin
ced
om
est
icst
an
da
rds
do
no
tco
nta
ina
ny
pe
na
lp
rovi
sio
ns
reg
ard
ing
bri
be
ryin
the
pri
vate
sect
or,
the
qu
est
ion
of
pra
ctic
al
com
plia
nce
an
dg
ap
sd
oe
sn
ot
ari
se.
Le
ga
lpro
visi
on
sm
ay
be
intr
od
uce
dto
ad
dre
ssb
rib
ery
inth
ep
riva
tese
cto
r.
Art
icle
22
:S
tate
sP
art
ies
are
req
uir
ed
toco
nsi
de
rcr
imin
aliz
atio
no
fe
mb
ezz
lem
en
tin
pri
vate
sect
or
ifco
mm
itte
din
ten
tion
ally
inth
eco
urs
eo
fe
con
om
ica
ctiv
ites
by
ap
ers
on
dir
ect
ing
/w
ork
ing
ina
pri
vate
sect
or
en
tity
inre
spe
cto
fan
yth
ing
so
fva
lue
en
tru
ste
dto
him
/he
rb
yvi
rtu
eo
fhis
/he
rp
osi
tion
.
Pe
na
lCo
de
,1
86
0T
he
Pe
na
lCo
de
,18
60
crim
ina
lize
s“c
rim
ina
lbre
ach
of
tru
st”
(se
ctio
n4
06
)a
nd
“dis
ho
ne
stm
isa
pp
rop
ria
tion
ofp
rop
ert
y”(s
ect
ion
40
3);
Th
ese
off
en
ces,
as
the
ird
efin
itio
ns
ind
ica
te,
incl
ud
ee
mb
ezz
lem
en
to
fp
rop
ert
yb
ya
pe
rso
nd
ire
ctin
g/w
ork
ing
ina
pri
vate
sect
or
en
tity;
As
such
,d
om
est
icst
an
da
rds
are
com
pa
tible
with
the
Do
me
stic
pe
na
lpro
visi
on
sa
rera
rely
pu
tin
top
ract
ice
for
pu
nis
hin
ga
cts
of
em
be
zzle
me
nt,
mis
ap
pro
pri
atio
na
nd
oth
er
div
ers
ion
of
pro
pe
rty
inth
ep
riva
tese
cto
r.
Th
eG
ove
rnm
en
tsh
ou
lde
nsu
reth
at
mo
rea
tte
ntio
nis
pa
idto
pro
secu
tee
mb
ezz
lem
en
t,m
isa
pp
rop
ria
tion
an
do
the
rd
ive
rsio
no
fp
rop
ert
yin
the
pri
vate
sect
or.
op
tion
alr
eq
uir
em
en
to
fth
eU
NC
AC
.
98
99
UN
CA
CP
rovi
sio
ns
Do
mes
tic
Leg
al/
Re
gu
lato
ryR
eg
ime
Co
mp
atib
ility
bet
wee
nU
NC
AC
an
dD
om
est
icR
egim
e
Co
mp
lian
cean
dG
aps
bet
wee
nL
aws
an
dP
ract
ices
Rem
ark
s
Art
icle
23:
Sta
tes
Par
ties
are
req
uire
dto
crim
ina
lize
“lau
nd
erin
go
fpro
cee
ds
of
crim
e”,i
.e.,
any
ofth
efo
llow
ing
acts
ifin
ten
tiona
llyco
mm
itted
with
the
kno
wle
dg
eth
att
hepr
op
ert
yco
nce
rne
dis
the
pro
cee
ds
of
crim
e:
•co
nve
rsio
no
rtr
an
sfe
ro
fp
rop
ert
yfo
rth
ep
urp
ose
ofco
nce
alin
g/d
isgu
isin
gth
eill
icit
orig
ino
fthe
pro
pe
rty
or
ofh
elp
ing
an
yp
ers
onin
volv
edin
the
com
mis
sion
ofth
ep
red
icat
eo
ffen
ceto
evad
eth
ele
gal
cons
eque
nces
;
•co
ncea
lme
ntor
disg
uise
oft
hetr
ue
na
ture
,so
urc
e,lo
catio
n,di
spos
itio
n,m
ove
men
tor
ow
ne
rshi
po
for
righ
tsw
ithre
spe
ctto
pro
pe
rty;
and
•ac
quis
ition
,pos
sess
ion
,o
ru
seof
pro
pe
rty.
Mo
ne
yL
au
nd
erin
gP
reve
ntio
nO
rdin
an
ce,
20
08
Th
eM
on
ey
La
un
de
ring
Pre
ven
tion
Ord
ina
nce
,20
08
defin
es“m
oney
laun
der
ing”
insu
chan
exte
nsiv
ew
ayth
atin
clu
de
str
an
sfer
,co
nve
rsio
n,
rem
itta
nce
orco
ncea
lmen
tof
an
yp
rop
ert
ya
cqui
red
thro
ug
hth
eco
mm
issi
ono
fany
pre
dic
ate
offe
nce
(sec
tion
2).
Un
de
rth
isO
rdin
anc
e,m
on
ey
lau
nd
erin
gis
acr
imin
al
offe
nce
(sec
tion
4);
Acc
ordi
ngly
,do
mes
ticst
an
da
rds
are
com
patib
lew
ithth
eU
NC
AC
req
uire
men
t.
Giv
enth
att
heM
on
ey
La
un
de
ring
Pre
ven
tion
Ord
ina
nce
,2
00
8ca
me
into
forc
ein
Apr
il,20
08,i
twou
ldb
eto
oea
rlyto
com
me
nto
nits
prac
tical
effi
cacy
and
impl
icat
ions
.
UN
CA
CP
rovi
sio
ns
Do
mes
tic
Leg
al/
Reg
ula
tory
Re
gim
e
Co
mp
atib
ility
bet
wee
nU
NC
AC
an
dD
om
est
icR
egim
e
Co
mp
lian
cean
dG
aps
bet
wee
nL
aws
an
dP
ract
ices
Rem
ark
s
req
uire
dto
crim
ina
lize
inte
ntio
nalc
once
alm
ento
rco
ntin
ued
rete
ntio
no
fpro
pert
yw
ithth
ekn
owle
dge
that
such
prop
erty
isth
ere
sult
ofa
nyof
fenc
ees
tabl
ishe
din
acc
ord
an
cew
ithU
NC
AC
but
with
outh
avin
gan
ypa
rtic
ipa
tion
ina
nysu
chof
fenc
e.
Ord
inan
ce,2
008
Pen
alC
ode
,186
0
Laun
derin
gP
reve
ntio
nO
rdin
ance
,200
8,
conc
ealm
ent
ofa
nypr
oper
tyac
quire
dth
rou
ghth
eco
mm
issi
onof
any
pred
ica
teof
fenc
ea
mou
nts
tom
oney
lau
nd
erin
g(s
ect
ion
2)
and
assu
chis
pun
isha
ble
(sec
tion
4);
The
Pen
alC
ode
,186
0cr
imin
aliz
es“d
ish
ones
tor
frau
dule
ntre
mov
alor
con
cea
lme
nto
fpro
pe
rty”
(sec
tion
424)
,“di
sho
nest
lyre
ceiv
ing
orre
tain
ing
stol
enpr
oper
ty”
(sec
tion
411)
and
“ass
istin
gin
conc
ealm
ento
fst
olen
prop
erty
”(s
ectio
n41
4)
;U
nder
the
Pe
na
lCo
de
18
60
,“s
tole
npr
oper
ty”
incl
udes
,in
ter
alia
,th
ep
rop
ert
yin
resp
ecto
fwhi
ch“d
isho
nest
mis
ap
pro
pria
tion
”o
r“c
rim
ina
lbr
each
oft
rust
”ha
sbe
enco
mm
itted
(sec
tion
410
);
The
sedi
ffere
nto
ffenc
esu
nd
er
do
mes
ticla
ws,
ifco
nsid
ered
asa
who
le,m
eet,
the
UN
CA
Cre
qui
rem
ent.
Co
de
,18
60
are
not
effic
acio
usen
ough
tobr
ing
all
conc
ealm
ent
sto
just
ice
beca
use
they
requ
ireth
epr
oofo
f“di
shon
esty
”or
“fra
ud
”as
ap
reco
nd
itio
nfo
rpu
nish
men
t.In
this
reg
ard,
the
new
lyen
acte
dM
one
yLa
unde
ring
Pre
ven
tion
Ord
inan
ce,2
008
see
ms
tore
flect
the
spiri
tso
fthe
UN
CA
C.
toco
me
the
Mon
eyL
au
nd
erin
gP
reve
ntio
nO
rdin
ance
,200
8w
ou
ldbe
anef
fect
ive
tool
tode
alw
ithth
eof
fenc
eo
fcon
ceal
men
t.
Art
icle
25:
Sta
tes
Par
ties
are
requ
ired
tocr
imin
aliz
ean
yo
fP
ena
lCo
de,1
860
The
Pen
alC
ode
,186
0cr
imin
aliz
esth
eac
tsof
givi
ngIn
prac
tice
,the
offe
nces
corr
espo
ndin
gto
artic
le25
(a)
Itis
reco
mm
end
edth
at
witn
ess
prot
ectio
n
Art
icle
24:
Sta
tes
Par
ties
are
Mon
eyLa
unde
ring
Pre
vent
ion
Acc
ordi
ngto
the
Mon
eyT
hepr
ovis
ions
ofth
eP
enal
Itis
expe
cted
tha
tin
the
days
100
101
UN
CA
CP
rovi
sio
ns
Do
mes
tic
Leg
al/
Re
gu
lato
ryR
eg
ime
Co
mp
atib
ility
bet
wee
nU
NC
AC
an
dD
om
est
icR
egim
e
Co
mp
lian
cean
dG
aps
bet
wee
nL
aws
an
dP
ract
ices
Rem
ark
s
the
follo
win
ga
cts,
ifco
mm
itte
din
ten
tion
ally
,in
rela
tion
toth
eco
mm
issi
on
of
UN
CA
Co
ffen
ces:
•u
seo
fp
hys
ica
lfo
rce
,th
rea
tso
rin
timid
atio
no
rp
rom
ise
,o
ffe
ring
or
giv
ing
of
an
un
du
ea
dva
nta
ge
toin
du
cefa
lse
test
imo
ny
or
toin
terf
ere
inth
eg
ivin
go
fte
stim
on
yo
rth
ep
rod
uct
ion
of
evi
de
nce
ina
pro
cee
din
g;
an
d
•u
seo
fp
hys
ica
lfo
rce
,th
rea
tso
rin
timid
atio
nto
inte
rfe
rew
ithth
ee
xerc
ise
ofo
ffic
iald
utie
sb
ya
just
ice
or
law
en
forc
em
en
toff
icia
l.
Mo
ne
yL
au
nd
erin
gP
reve
ntio
nO
rdin
an
ce(M
LP
O),
20
08
Co
nte
mp
tof
Co
urt
sO
rdin
an
ce,
20
08
fals
ete
stim
on
y(s
ect
ion
s1
93
-1
96
),ca
usi
ng
dis
ap
pe
ara
nce
ofe
vid
en
ce(s
ect
ion
20
1)
an
dd
est
ruct
ion
of
ad
ocu
me
nt
top
reve
nt
itsp
rod
uct
ion
as
evi
de
nce
(se
ctio
n2
04
);
Se
ctio
n7
of
the
ML
PO
,20
08
pro
vid
es
tha
tob
stru
ctio
no
rre
fusa
lto
ass
ist
an
inve
stig
atin
go
ffic
er
for
mo
ne
yla
un
de
ring
con
stitu
tes
an
offe
nce
;
Acc
ord
ing
toP
en
alC
od
e,
inte
rfe
ren
cew
ithju
dic
ial
pro
cee
din
gs
can
be
trie
du
nd
er
diff
ere
ntp
en
al
pro
visi
on
s(s
ect
ion
s1
75
,17
8,
17
9,
18
0,2
28
);
Fu
rth
erm
ore
,u
seo
fcri
min
al
forc
e(s
ect
ion
35
2)
an
din
timid
atio
no
rth
rea
t(s
ect
ion
s5
06
-50
7)
are
,ip
sofa
cto
,p
un
ish
ab
le;
use
of
crim
ina
lfo
rce
tod
ete
ra
pu
blic
serv
an
tfr
om
dis
cha
rge
of
his
/he
rd
uty
isa
no
ffe
nce
(se
ctio
n3
53
);
Inte
rfe
ren
cew
ithju
dic
ial
fun
ctio
ns
isa
lso
crim
ina
lize
db
yth
eC
on
tem
pt
of
Co
urt
sO
rdin
an
ce,
20
08
(se
ctio
n1
3);
of
the
UN
CA
Ca
ree
ffe
ctiv
ely
pro
secu
ted
.B
ut,
off
en
ces
corr
esp
on
din
gto
art
icle
25
(b)
of
the
UN
CA
Ca
rela
rge
lyn
ot
pro
secu
ted
be
cau
seo
faw
ea
kd
om
est
icre
gim
eo
np
rote
ctio
no
fw
itne
sse
s.
me
cha
nis
ms
be
stre
ng
the
ne
du
nd
er
the
exi
stin
gd
om
est
icla
ws.
UN
CA
CP
rovi
sio
ns
Do
mes
tic
Leg
al/
Reg
ula
tory
Re
gim
e
Co
mp
atib
ility
bet
wee
nU
NC
AC
an
dD
om
est
icR
egim
e
Co
mp
lian
cean
dG
aps
bet
wee
nL
aws
an
dP
ract
ices
Rem
ark
s
The
seof
fenc
esun
der
dom
estic
law
s,if
cons
ider
eda
sa
wh
ole
,mee
tthe
UN
CA
Cre
quire
men
t.
Art
icle
26:
With
outp
reju
dice
toth
ecr
imin
allia
bilit
yof
natu
ralp
erso
nsco
mm
ittin
gU
NC
AC
offe
nce
s,S
tate
sP
artie
sar
ere
qu
ired
toes
tabl
ish
crim
ina
l,ci
vilo
rad
min
istr
ativ
elia
bili
tyfo
rpa
rtic
ipa
tion
ina
nysu
chof
fenc
ea
ndpr
escr
ibe
effe
ctiv
e,p
ropo
rtio
nate
and
diss
uasi
vecr
imin
alo
rno
n-cr
imin
als
anct
ions
,inc
ludi
ngm
one
tary
sanc
tions
.
Pen
alC
ode
,186
0T
hede
finiti
onof
the
term
“pe
rso
n”,
aspr
ovi
ded
byth
eP
ena
lCo
de,1
860,
incl
ude
sle
galp
erso
ns(s
ectio
n11
).A
cco
rdin
gly
lega
lpe
rso
ns
are
amen
abl
eto
crim
inal
puni
shm
ent
for
offe
nces
puni
shab
lew
ithfin
eon
ly;
The
irci
vila
ndad
min
istr
ativ
elia
bilit
yis
ackn
ow
ledg
ed
byth
edo
mes
ticle
gal
regi
me;
The
puni
shm
ents
for
corr
uptio
nca
ses
are
effe
ctiv
e,
prop
ortio
nate
and
dis
suas
ive;
Acc
ordi
ngly
,do
mes
ticst
anda
rds
com
ply
with
the
req
uire
me
nto
fthe
UN
CA
C.
Sin
ceth
ed
omes
ticla
ws
of
Ban
gla
desh
dono
tcon
tain
any
rule
enab
ling
the
cour
tsto
pres
ume
cons
truc
tive
men
sre
ao
fleg
alpe
rson
s,co
rpor
ate
bodi
esca
nea
sily
avoi
dpr
osec
utio
nan
dco
nvic
tion
.As
such
,leg
alp
ers
on
sar
ep
ract
ica
llyno
tam
ena
ble
toth
eju
risdi
ctio
nof
crim
ina
lcou
rts.
Am
end
men
tofe
xist
ing
law
ssh
ould
beg
iven
ase
rious
thou
ghts
oth
atm
ens
rea
can
beim
pute
don
lega
lper
sons
accu
sed
ofco
mm
ittin
gth
eac
tso
fcor
rup
tion.
Art
icle
27:
Sta
tes
Par
ties
are
req
uire
dto
:
•cr
imin
aliz
epa
rtic
ipat
ion
inan
yca
paci
tysu
chas
anac
com
plic
e,a
ssis
tan
tor
inst
iga
tor
inan
yU
NC
AC
offe
nce;
Pen
alC
ode
,186
0
Mon
ey
Lau
nde
ring
Pre
ven
tion
Ord
inan
ce,2
008
Par
ticip
atio
nin
and
atte
mp
ting
any
offe
nces
corr
esp
on
din
gto
the
UN
CA
Ca
rep
un
ish
ab
le.H
ow
eve
r,pr
epar
atio
nto
com
mit
offe
nce
sis
with
few
exce
ptio
nsno
tpun
isha
ble
.
The
reex
ists
nore
liab
leco
nsol
ida
ted
data
toas
sess
prac
tical
appl
icat
ions
,im
plic
atio
nsa
nde
ffica
cy.
The
resh
ould
beco
mpr
ehen
sive
rese
arch
and
cont
inu
ing
deba
tes
inth
epu
blic
sphe
reas
tow
heth
erB
ang
lade
shsh
ould
crim
ina
lize
pre
pa
ratio
nto
com
mit
ano
ffenc
ean
dif
so,
ho
w.
102
103
UN
CA
CP
rovi
sio
ns
Do
mes
tic
Leg
al/
Re
gu
lato
ryR
eg
ime
Co
mp
atib
ility
bet
wee
nU
NC
AC
an
dD
om
est
icR
egim
e
Co
mp
lian
cean
dG
aps
bet
wee
nL
aws
an
dP
ract
ices
Rem
ark
s
•co
nsi
de
rcr
imin
aliz
atio
no
fan
ya
tte
mp
to
ra
ny
pre
pa
ratio
nfo
ra
ny
UN
CA
Co
ffen
ce.
Art
icle
28:
Sta
tes
Pa
rtie
sa
rere
qu
ired
toe
na
ble
itsco
urt
sto
infe
r“k
no
wle
dg
e”,
“in
ten
t”o
r“p
urp
ose
”fr
om
ob
ject
ive
fact
ua
lcir
cum
sta
nce
s.
Cri
teri
ato
infe
r“k
no
wle
dg
e”,
“inte
nt”
or
“pu
rpo
se”
isn
ot
reg
ula
ted
by
sta
tute
.
To
infe
r“k
no
wle
dg
e”,
“in
ten
t”o
r“p
urp
ose
”is
am
att
er
of
fact
an
dle
ftto
the
cou
rts’
ob
ject
ive
jud
gm
en
tb
ase
do
nfa
ctu
alc
ircu
mst
an
ces.
As
such
,do
me
stic
sta
nd
ard
sfu
llyco
mp
lyw
ithth
eU
NC
AC
req
uire
me
nt.
Art
icle
29:
Sta
tes
Pa
rtie
sa
rere
qu
ired
toe
sta
blis
ha
lon
gst
atu
teo
flim
itatio
ns
pe
rio
din
wh
ich
toco
mm
en
cep
roce
ed
ing
sfo
rU
NC
AC
offe
nce
s.
Th
ere
exi
sts
no
sta
tute
of
limita
tion
sp
resc
rib
ing
atim
elim
itfo
rco
mm
en
cem
en
to
fcr
imin
alp
roce
ed
ing
s.
Do
me
stic
sta
nd
ard
sfu
llyco
mp
lyw
ithU
NC
AC
req
uire
me
nt.
Alth
ou
gh
the
ree
xist
sn
olim
itatio
np
eri
od
for
initi
atio
no
fcri
min
alp
roce
ed
ing
,co
urt
sa
lwa
ysre
qu
ire
are
aso
na
ble
exp
lan
atio
nif
the
reis
de
lay
inin
itia
ting
such
ap
roce
ed
ing
.If
such
de
lay
isn
ot
rea
son
ab
lye
xpla
ine
dto
the
satis
fact
ion
ofc
ou
rt,b
en
efit
of
do
ub
tg
oe
sin
favo
ur
of
the
acc
use
d.
Th
ed
om
est
icst
an
da
rdis
mo
rep
rose
cutio
n-f
rie
nd
lyth
an
the
UN
CA
Cin
the
sen
seth
at
crim
ina
lpro
cee
din
gs
can
no
tb
eb
arr
ed
by
limita
tion
s.
Art
icle
30:
Inth
eca
seo
fU
NC
AC
offe
nce
s,S
tate
sP
art
ies
are
req
uir
ed
to:
•p
resc
rib
esa
nct
ion
sp
rop
ort
ion
ate
toth
eg
ravi
tyo
fsu
cho
ffe
nce
s;
•e
sta
blis
ho
rm
ain
tain
an
ap
pro
pria
teb
ala
nce
Co
nst
itutio
no
fth
eP
eo
ple
’sR
ep
ub
lico
fB
an
gla
de
sh
Go
vern
me
nt
Se
rva
nts
(Dis
cip
line
an
dA
pp
ea
l)R
ule
s,1
98
5
An
ti-C
orr
up
tion
Co
mm
issi
on
Act
,2
00
4
Pu
nis
hm
en
tsp
resc
rib
ed
for
corr
up
tion
rela
ted
offe
nce
sa
rep
rop
ort
ion
ate
toth
eg
ravi
tyo
fth
ose
off
en
ces;
Do
me
stic
law
sd
on
ot
pre
scri
be
an
yim
mu
niti
es
or
juris
dic
tion
alp
rivile
ge
sfo
rp
ub
lico
ffic
ials
wh
ich
is
Th
esu
bsta
ntiv
epr
ovis
ions
ofdo
mes
ticla
ws
are
freq
uen
tlypu
tin
topr
actic
e.
UN
CA
CP
rovi
sio
ns
Do
mes
tic
Leg
al/
Re
gu
lato
ryR
eg
ime
Co
mp
atib
ility
bet
wee
nU
NC
AC
an
dD
om
est
icR
eg
ime
Co
mp
lian
ce
an
dG
ap
sb
etw
een
Law
sa
nd
Pra
ctic
esR
em
ark
s
be
twe
en
an
yim
mu
niti
es
or
juri
sdic
tion
alp
rivi
leg
es
acc
ord
ed
top
ub
lico
ffic
ials
for
the
pe
rfo
rma
nce
of
the
irfu
nct
ion
s;
•ta
kea
pp
rop
ria
tem
ea
sure
sto
en
sure
tha
tco
nd
itio
ns
imp
ose
din
con
ne
ctio
nw
ithd
eci
sio
ns
on
rele
ase
pe
nd
ing
tria
l/ap
pe
alo
fa
na
ccu
sed
take
into
con
sid
era
tion
the
ne
ed
toe
nsu
reh
is/h
er
pre
sen
cea
tsu
bse
qu
en
tp
roce
ed
ing
s;
•co
nsi
de
re
sta
blis
hm
en
to
fp
roce
du
res
thro
ug
hw
hic
ha
pu
blic
serv
an
ta
ccu
sed
of
an
ysu
cho
ffen
ceca
nb
ere
mo
ved
,su
spe
nd
ed
or
rea
ssig
ne
d;
•co
nsi
de
re
sta
blis
hm
en
to
fp
roce
du
res
for
dis
qu
alif
ica
tion
ofa
pe
rso
nco
nvi
cte
do
fa
ny
such
off
en
cein
ho
ldin
gp
ub
lico
ffic
eo
ro
ffic
ein
an
en
terp
rise
ow
ne
d,
inw
ho
leo
rin
pa
rt,
by
the
Sta
te.
Pu
blic
Se
rva
nts
(Dis
mis
salo
nC
on
vict
ion
)O
rdin
an
ce,1
98
5
Lo
calG
ove
rnm
en
t(U
nio
nP
ari
sha
ds)
Ord
ina
nce
,1
98
3
Pa
ura
sha
vaO
rdin
an
ce,1
97
7
Dh
aka
City
Co
rpo
ratio
nO
rdin
an
ce,
19
83
Ch
itta
go
ng
City
Co
rpo
ratio
nO
rdin
an
ce,
19
82
Kh
uln
aC
ityC
orp
ora
tion
Ord
ina
nce
,1
98
4
Ra
jsh
ah
iCity
Co
rpo
ratio
nA
ct,
19
87
Syl
he
tCity
Co
rpo
ratio
nA
ct,
20
01
Ba
risa
lCity
Co
rpo
ratio
nA
ct,
20
01
dis
pro
po
rtio
na
teto
the
ne
ed
or
eff
ica
cyo
fin
vest
iga
tion
,p
rose
cutio
no
rtr
ial;
Co
nd
itio
ns
imp
ose
din
con
ne
ctio
nw
ithd
eci
sio
ns
on
rele
ase
pe
nd
ing
tria
l/ap
pe
al
ofa
na
ccu
sed
,b
ein
gm
atte
rso
fju
dic
iald
iscr
etio
n,
are
no
tre
gu
late
db
yla
w;
Th
eC
on
stitu
tion
dis
qu
alif
ies
ap
ers
on
con
vict
ed
of
an
offe
nce
invo
lvin
gm
ora
ltu
rpitu
de
an
dse
nte
nce
dto
imp
riso
nm
en
tfo
ra
term
of
no
tle
ssth
an
two
yea
rsfr
om
ele
ctio
nto
Pa
rlia
me
nt
for
ate
rmo
ffiv
eye
ars
sin
cere
lea
se(a
rtic
le6
6).
Va
rio
us
oth
er
ele
cto
rall
aw
sco
nta
insi
mila
rp
rovi
sio
ns;
On
the
wh
ole
,d
om
est
icst
an
da
rds
com
ply
with
UN
CA
Cre
qu
ire
me
nt.
104
105
UN
CA
CP
rovi
sio
ns
Do
mes
tic
Leg
al/
Re
gu
lato
ryR
eg
ime
Co
mp
atib
ility
bet
wee
nU
NC
AC
an
dD
om
est
icR
eg
ime
Co
mp
lian
cean
dG
aps
bet
wee
nL
aws
an
dP
ract
ices
Re
ma
rks
Art
icle
31
:S
tate
sP
art
ies
are
req
uire
dto
take
ne
cess
ary
me
asu
res
toe
na
ble
con
fisca
tion
an
did
en
tific
atio
n,
tra
cin
g,
fre
ezi
ng
or
seiz
ure
for
the
pu
rpo
seo
fco
nfis
catio
n,
•p
roce
ed
so
fcri
me
de
rvid
ed
fro
mU
NC
AC
offe
nce
so
rp
rop
ert
yth
eva
lue
of
wh
ich
corr
esp
on
ds
tosu
chp
roce
ed
s;
•p
rop
ert
y,e
qu
ipm
en
tor
oth
er
inst
rum
en
talit
ies
use
din
or
de
stin
ed
for
use
insu
cho
ffe
nce
s;
•p
rop
ert
yin
tow
hic
hp
roce
ed
so
fcri
me
are
inte
rmin
gle
d;
•p
rop
ort
ion
ate
valu
eo
fp
rop
ert
yin
tow
hic
hp
roce
ed
so
fcri
me
are
inte
rmin
gle
d;a
nd
•in
com
eo
ro
the
rb
en
efit
sd
eriv
ed
fro
mp
roce
ed
so
fcr
ime
or
fro
mp
rop
ert
yin
tow
hic
hp
roce
ed
so
fcr
ime
are
tra
nsf
orm
ed
,co
nve
rte
do
r
Crim
ina
lLa
wA
me
nd
me
nt
Ord
ina
nce
,1
94
4
Crim
ina
lLa
wA
me
nd
me
nt
Act
,1
95
8
An
ti-C
orr
up
tion
Co
mm
issi
on
(AC
C)
Act
,2
00
4
An
ti-C
orr
up
tion
Co
mm
issi
on
(AC
C)
Ru
les,
20
07
Mo
ne
yL
au
nd
erin
gP
reve
ntio
nO
rdin
an
ce,
20
08
Th
eA
CC
Act
,20
04
allo
ws
con
fisca
tion
of
pro
pe
rty
wh
ich
isa
cqu
ired
by
ille
ga
lme
an
so
rd
isp
rop
ort
ion
ate
tole
ga
lso
urc
es
of
inco
me
(se
ctio
n 27
);
Sim
ilarl
y,th
eC
rim
ina
lLa
wA
me
nd
me
nt
Act
,1
95
8e
mp
ow
ers
the
cou
rtto
con
fisca
teth
ep
roce
ed
so
fco
rru
ptio
n(s
ect
ion
9);
Th
eA
CC
Ru
les,
20
07
allo
ws
the
cou
rts
too
rde
rfr
ee
zin
go
ra
ttach
me
nt
of
pro
pe
rtie
sa
lleg
ed
lya
cqu
ire
db
yill
eg
al
me
an
so
rd
isp
rop
ort
ion
ate
toth
ele
ga
lso
urc
eo
fin
com
ee
ven
be
fore
the
com
me
nce
me
nt
of
tria
l(ru
le1
8).
Th
eC
rim
ina
lLa
wA
me
nd
me
nt
Ord
ina
nce
,1
94
4a
lso
con
tain
ssi
mila
rp
rovi
sio
ns
(se
ctio
n4
);
Th
eM
on
ey
La
un
de
ring
Pre
ven
tion
Ord
ina
nce
,20
08
em
po
we
rsth
eco
urt
sto
fre
eze
,a
ttach
(se
ctio
n1
4)
or
con
fisca
te(s
ect
ion
17
)th
ep
rop
ert
yo
fa
ny
pe
rso
na
ccu
sed
of
mo
ne
yla
un
de
ring
;
Acc
ord
ing
ly,
do
me
stic
Fo
rm
an
yye
ars
,th
ese
do
me
stic
no
rms
rem
ain
ed
virt
ua
llyd
orm
an
t.T
he
ma
ssiv
ed
rive
ag
ain
stco
rru
ptio
nin
itia
ted
in2
00
7a
ctiv
ate
dth
em
an
da
cco
rdin
gly
,o
nm
an
yo
cca
sio
ns,
the
sen
orm
sh
ave
be
en
ap
plie
d.
Th
ere
cen
ttr
en
do
ffr
ee
zin
g,
seiz
ure
an
dco
nfis
catio
n,i
fco
ntin
ue
din
the
lon
gru
n,
will
con
stitu
tea
ne
ffect
ive
de
terr
en
tan
dp
lay
pre
ven
ting
role
inth
efig
ht
ag
ain
stco
rru
ptio
n.
inte
rmin
gle
d.
sta
nd
ard
sre
aso
na
bly
com
ply
with
the
UN
CA
Cre
qu
ire
me
nt.
of:
UN
CA
CP
rov
isio
ns
Do
me
sti
cL
eg
al
/R
eg
ula
tory
Re
gim
e
Co
mp
ati
bil
ity
be
twe
en
UN
CA
Ca
nd
Do
me
sti
cR
eg
ime
Co
mp
lian
ce
an
dG
ap
sb
etw
ee
nL
aw
sa
nd
Pra
cti
ce
sR
em
ark
s
Art
icle
32
:S
tate
sP
art
ies
are
req
uir
ed
to:
•ta
kea
pp
rop
ria
tem
ea
sure
sto
pro
vid
ee
ffect
ive
pro
tect
ion
fro
mp
ote
ntia
lre
talia
tion
or
intim
ida
tion
for
witn
ess
es,
exp
ert
sg
ivin
gte
stim
on
y,vi
ctim
sa
nd
the
irre
lativ
es
an
do
the
rp
ers
on
scl
ose
toth
em
;an
d
•e
nte
rin
toa
gre
em
en
tso
ra
rra
ng
em
en
tsw
itho
the
rst
ate
sfo
rre
loca
tion
of
such
pe
rso
ns.
Th
ere
isn
ole
ga
larr
an
ge
me
nt
for
pro
tect
ion
of
witn
ess
es,
exp
ert
s,vi
ctim
sa
nd
the
irre
lativ
es
an
do
the
rp
ers
on
scl
ose
toth
em
.
Do
me
stic
sta
nd
ard
sd
on
ot
com
ply
with
the
req
uir
em
en
to
fth
eU
NC
AC
.
Th
isn
on
-co
mp
lian
cew
ithth
eU
NC
AC
go
es
ag
ain
stth
ele
giti
ma
tein
tere
sts
of
the
pro
secu
tion
.
Itis
reco
mm
en
de
dth
at
the
do
me
stri
cst
an
da
rds
are
mo
difi
ed
tom
ee
tth
eU
NC
AC
req
uir
em
en
t.
Art
icle
33
:S
tate
sP
art
ies
are
req
uir
ed
top
rovi
de
pro
tect
ion
ag
ain
sta
ny
un
just
ifie
dtr
ea
tme
nt
for
an
yp
ers
on
wh
ore
po
rts
ing
oo
dfa
itha
nd
on
rea
son
ab
leg
rou
nd
sto
the
com
pe
ten
tau
tho
ritie
sa
ny
fact
sco
nce
rnin
gU
NC
AC
offe
nce
s.
Mo
ne
yL
au
nd
eri
ng
Pre
ven
tion
Ord
ina
nce
(ML
PO
),2
00
8In
rela
tion
tore
po
rtin
gp
ers
on
s,se
ctio
n2
8o
fth
eM
LP
O,2
00
8p
rovi
de
sp
rote
ctio
nto
the
Go
vern
me
nt,
an
yg
ove
rnm
en
to
ffic
ialo
ra
ny
rep
ort
ing
org
an
iza
tion
fro
mb
ein
gsu
ed
or
pro
secu
ted
,by
an
yp
ers
on
tha
tis
aff
ect
ed
or
like
lyto
be
aff
ect
ed
du
eto
pro
cee
din
gs
bro
ug
ht
ing
oo
dfa
ithfo
rth
em
on
ey
lau
nd
eri
ng
offe
nce
s.
Sin
ceth
eM
LP
O,
20
08
cam
ere
cen
tlyin
tofo
rce
,it
wo
uld
be
too
ea
rly
toco
mm
en
to
nits
pra
ctic
ale
ffic
acy
;
Th
isn
on
-co
mp
lian
cew
ithre
ga
rdto
the
oth
er
UN
CA
Co
ffen
ces
con
trib
ute
sto
the
no
n-e
xpo
sure
of
ma
ny
case
so
fco
rru
ptio
n.
Itis
reco
mm
en
de
dth
at
the
do
me
stic
sta
nd
ard
sa
rem
od
ifie
dto
me
et
the
UN
CA
Cre
qu
ire
me
nt.
106
107
UN
CA
CP
rovi
sio
ns
Do
mes
tic
Leg
al/
Reg
ula
tory
Re
gim
e
Co
mp
atib
ility
bet
wee
nU
NC
AC
an
dD
om
est
icR
egim
e
Co
mp
lian
cean
dG
aps
bet
wee
nL
aws
an
dP
ract
ices
Rem
ark
s
the
righ
tso
fthi
rdpa
rtie
sac
quire
din
good
faith
,Sta
tes
Par
ties
are
requ
ired
toco
nsid
erco
rrup
tion
asa
rele
vant
fact
orin
lega
lpr
ocee
ding
sto
ann
ulor
resc
ind
aco
ntra
ct,w
ithdr
awa
conc
essi
onor
othe
rsi
mila
rin
stru
men
tor
take
any
oth
erre
med
iala
ctio
n.
Crim
inal
Law
Am
end
me
ntO
rdin
ance
,194
4
Mon
eyLa
unde
ring
Pre
vent
ion
Ord
inan
ce(M
LP
O),
200
8
com
patib
lew
ithth
ere
quire
men
toft
heU
NC
AC
;
The
Con
trac
tAct
,187
2pr
ovid
esth
ata
nag
reem
ent
isvo
idif
any
par
tofa
sing
leco
nsid
erat
ion
for
one
orm
ore
ofits
obje
cts
isun
law
ful
(sec
tion
24).
Thu
s, c
orru
ptio
nbe
ing
unla
wfu
l,a
cont
ract
cann
otl
egal
lyex
ists
if it
s co
n-si
dera
tion
am
oun
tsto
corr
uptio
n;
Cor
rupt
ion
am
oun
ting
tom
ala
fide
may
besu
ffici
ent
tow
ithdr
awa
conc
essi
onor
sim
ilar
inst
rum
ento
rto
seek
othe
rre
me
dial
actio
n;
Acc
ordi
ngto
the
Cri
min
alLa
wA
men
dm
entO
rdin
anc
e,19
44,
prop
erty
proc
ured
bym
eans
ofco
rrup
tion,
even
ifin
the
poss
essi
ono
fatr
ansf
ere
eun
less
s/he
isa
bona
fide
tran
sfer
ee
for
valu
e,c
anbe
atta
ched
(sec
tion
6)an
dfo
rfe
ited
(sec
tion
13);
Sec
tion
17(3
)of
the
ML
PO
,20
08a
lso
reco
gni
zes
the
righ
tof
third
part
ies
topr
oper
tyac
quire
din
good
faith
.
Peo
ple
’sR
epub
lico
fB
ang
lade
shad
dres
ses
the
cons
eque
nces
ofc
orru
ptio
nfr
oma
wid
erco
nte
xtth
anth
eU
NC
AC
.Ito
blig
ate
sth
eS
tate
tocr
eate
cond
ition
sin
whi
chpe
rson
ssh
alln
otb
eab
leto
enjo
yu
near
ned
inco
mes
.T
here
fore
,dev
elop
men
tof
prev
entiv
em
echa
nism
sto
addr
ess
the
cons
equ
ence
sof
corr
uptio
nis
aco
nstit
utio
nal
duty
ofth
eG
over
nm
ent.
Art
icle
34:
With
due
rega
rdto
Con
trac
tA
ct,1
872
Dom
estic
stan
dard
sar
eT
heC
onst
itutio
no
fthe
UN
CA
CP
rov
isio
ns
Do
me
sti
cL
eg
al
/R
eg
ula
tory
Re
gim
e
Co
mp
ati
bil
ity
be
twe
en
UN
CA
Ca
nd
Do
me
sti
cR
eg
ime
Co
mp
lian
ce
an
dG
ap
sb
etw
ee
nL
aw
sa
nd
Pra
cti
ce
sR
em
ark
s
Art
icle
35
:S
tate
sP
art
ies
are
req
uir
ed
toe
nsu
reth
eri
gh
tto
see
kco
mp
en
satio
nfo
rd
am
ag
esu
ffere
db
yvi
ctim
so
fco
rru
ptio
n.
La
wo
fto
rts
Co
de
of
Cri
min
alP
roce
du
re,
18
98
Do
me
stic
sta
nd
ard
sfu
llyco
mp
lyw
ithth
eU
NC
AC
req
uir
em
en
t;
Th
ed
om
est
icle
ga
lsys
tem
allo
ws
civi
lsu
itsb
ase
do
nla
wo
fto
rts
cla
imin
gco
mp
en
satio
nfo
ra
ny
da
ma
ge
;
Un
de
rse
ctio
n5
45
of
the
Co
de
of
Cri
min
alP
roce
du
re,
18
98
,tr
ialc
ou
rts
as
we
lla
sa
pp
ella
teo
rre
visi
on
alc
ou
rts
can
aw
ard
com
pe
nsa
tion
tovi
ctim
s.
Th
ere
ish
ard
lya
ny
pre
ced
en
to
fusi
ng
the
sed
om
est
icst
an
da
rds
infa
vor
of
an
yvi
ctim
ofc
orr
up
tion
.
To
en
sure
be
tte
ra
cce
sso
fco
rru
ptio
nvi
ctim
sto
cla
imco
mp
en
satio
n,
the
am
ou
nt
of
cou
rtfe
es
sho
uld
be
red
uce
d.
Art
icle
36
:S
tate
sP
art
ies
are
req
uir
ed
toe
nsu
reth
ee
xist
en
ceo
fsp
eci
aliz
ed
ind
ep
en
de
nt
au
tho
ritie
sfo
rco
mb
atin
gco
rru
ptio
nth
rou
gh
law
en
forc
em
en
t.
An
ti-C
orr
up
tion
Co
mm
issi
on
Act
,2
00
4
Mo
ne
yL
au
nd
eri
ng
Pre
ven
tion
Ord
ina
nce
(ML
PO
),2
00
8
Th
eA
nti-
Co
rru
ptio
nC
om
mis
sio
nA
ct,2
00
4e
sta
blis
he
sth
eA
nti-
Co
rru
ptio
nC
om
mis
sio
n(A
CC
)a
sa
spe
cia
lize
da
uth
ori
tyfo
rco
mb
atin
gco
rru
ptio
n;
Th
eA
CC
ha
s,a
cco
rdin
gto
sect
ion
s3
an
d2
4o
fth
esa
idA
ct,
fun
ctio
na
lin
de
pe
nd
en
ceto
pe
rfo
rmits
fun
ctio
ns
with
ou
ta
ny
un
du
ein
flen
ce;
Th
eM
LP
O,
20
08
est
ab
lish
ed
the
Ba
ng
lad
esh
Ba
nk
an
dth
eF
ina
nci
alI
nte
llig
en
tUn
ita
sth
ere
gu
lato
ryb
od
yfo
r
Aft
er
itsre
con
stitu
tion
in2
00
7,
the
AC
Ch
as
sho
we
dre
ma
rka
ble
succ
ess
inits
op
era
tion
ala
ctiv
itie
s.H
ow
eve
r,to
ma
keit
mo
ree
ffect
ive
,in
stitu
tion
al
fea
ble
ne
sso
fso
me
oth
er
inst
itutio
ns
of
na
tion
al
imp
ort
an
cem
ust
be
cure
d.
Itis
reco
mm
en
de
dth
at
ind
ep
en
de
nce
of
the
jud
icia
ryb
esa
feg
ua
rde
d,
the
Off
ice
of
the
Om
bu
dsm
an
be
est
ab
lish
ed
an
dth
ep
ub
lica
cco
un
tsco
mm
itte
eo
fth
eP
arl
iam
en
ta
nd
the
Off
ice
of
the
Co
mp
tro
ller
an
dA
ud
itor
Ge
ne
ral(
CA
G)
be
refo
rme
d.
108
109
UN
CA
CP
rovi
sio
ns
Do
mes
tic
Leg
al/
Re
gu
lato
ryR
eg
ime
Co
mp
atib
ility
bet
wee
nU
NC
AC
an
dD
om
est
icR
eg
ime
Co
mp
lian
cean
dG
aps
bet
wee
nL
aws
an
dP
ract
ices
Re
ma
rks
pre
ven
ting
an
dco
mb
atin
gm
on
ey
lau
nd
erin
g;
Acc
ord
ing
ly,
do
me
stic
sta
nd
ard
sfu
llyco
mp
lyw
ithth
eU
NC
AC
req
uir
em
en
t.
Art
icle
37
:S
tate
sP
art
ies
are
req
uire
dto
:
•ta
kea
pp
rop
ria
tem
ea
sure
sto
en
cou
rag
ep
ers
on
sw
ho
pa
rtic
ipa
teo
rh
ave
pa
rtic
ipa
ted
ina
no
ffen
ceto
sup
ply
info
rma
tion
an
dp
rovi
de
fact
ua
l,sp
eci
fich
elp
toco
mp
ete
nta
uth
ori
ties
tha
tm
ay
con
trib
ute
tod
ep
rivin
go
ffe
nd
ers
of
the
pro
cee
ds
ofc
rim
ea
nd
tore
cove
rin
gsu
chp
roce
ed
s;a
nd
•co
nsi
de
rp
rovi
sio
ns
for
imm
un
ityfr
om
pro
secu
tion
or
miti
ga
ting
pu
nis
hm
en
to
fan
ysu
chp
ers
on
.
Crim
ina
lLa
wA
me
nd
me
nt
Act
,1
95
8
Co
de
of
Crim
ina
lPro
ced
ure
,1
89
8
Mo
ne
yL
au
nd
erin
gP
reve
ntio
nO
rdin
an
ce(M
LP
O),
20
08
Do
me
stic
sta
nd
ard
sco
mp
lyw
ithth
eU
NC
AC
req
uir
em
en
tin
as
mu
cha
sa
no
ffe
nd
er
can
be
pri
vile
ge
dw
ithp
ard
on
ince
rta
incr
imin
alc
ase
s;
Acc
ord
ing
toth
eC
rim
ina
lLa
wA
me
nd
me
nt
Act
,1
95
8(s
ect
ion
6(2
))a
nd
the
Co
de
of
Crim
ina
lPro
ced
ure
,1
89
8(s
ect
ion
s3
37
an
d3
38
),o
nfu
lfillm
en
to
fce
rta
inco
nd
itio
ns,
an
off
en
de
rca
nb
eg
ran
ted
pa
rdo
n;
Se
ctio
n7
of
the
ML
PO
,20
08
ha
scr
imin
aliz
ed
ob
stru
ctio
no
rre
fusa
lto
ass
ist
aco
nce
rne
do
ffic
er
en
ga
ge
din
inve
stig
atio
nu
nd
er
the
Ord
ina
nce
,fa
ilure
toco
mp
lyw
itho
ut
rea
son
ab
leg
rou
nd
sw
itha
rep
ort
ing
ob
liga
tion
,a
nd
failu
reto
sup
ply
info
rma
tion
rela
ting
tom
on
ey
lau
nd
erin
g;
InM
ay,
20
07
,th
e
Inp
ract
ice
,la
we
nfo
rce
me
nt
au
tho
ritie
sd
on
otr
ece
ive
suffi
cie
nt
coo
pe
ratio
n.
Th
em
ass
ive
driv
ea
nd
cam
pa
ign
ag
ain
stco
rru
ptio
n,
initi
ate
db
yth
eA
CC
in2
00
7,
ha
sin
spire
de
very
bo
dy
toco
op
era
tew
ithla
we
nfo
rce
me
nta
uth
ori
ties.
UN
CA
CP
rov
isio
ns
Do
me
sti
cL
eg
al
/R
eg
ula
tory
Re
gim
e
Co
mp
ati
bil
ity
be
twe
en
UN
CA
Ca
nd
Do
me
sti
cR
eg
ime
Co
mp
lian
ce
an
dG
ap
sb
etw
ee
nL
aw
sa
nd
Pra
cti
ce
sR
em
ark
s
Go
vern
me
nt
ap
pro
ved
leg
isla
tion
on
the
est
ab
lish
me
nt
of
aT
ruth
an
dA
cco
un
tab
ility
Co
mm
issi
on
.O
nce
this
Co
mm
issi
on
ise
sta
blis
he
d,
pe
rso
ns
en
rich
ed
ina
nill
icit
ma
nn
er
sha
llb
esh
ow
nso
me
len
ien
cyp
rovi
de
dth
ey
ma
kea
volu
nta
ryd
iscl
osu
rea
bo
ut
the
irco
rru
pt
en
rich
me
nt.
Art
icle
38
:S
tate
sP
art
ies
are
req
uir
ed
tota
kea
pp
rop
ria
tem
ea
sure
sto
en
cou
rag
eco
op
era
tion
,p
art
icu
larl
ye
xch
an
ge
of
ne
cess
ary
info
rma
tion
,be
twe
en
pu
blic
au
tho
ritie
sa
nd
inve
stig
atin
go
rp
rose
cutin
ga
uth
ori
ties.
An
ti-C
orr
up
tion
Co
mm
issi
on
Act
(AC
C),
20
04
Mo
ne
yL
au
nd
eri
ng
Pre
ven
tion
Ord
ina
nce
(ML
PO
),2
00
8
Acc
ord
ing
toth
eA
CC
Act
,2
00
4,
pu
blic
au
tho
ritie
sa
red
uty
-bo
un
dto
pro
vid
en
ece
ssa
ryin
form
atio
nif
the
AC
Cre
qu
ire
s(s
ect
ion
23
);
Se
ctio
n2
3(2
)o
fth
eM
LP
O,
20
08
ob
lige
sth
eB
Bto
pro
vid
ein
form
atio
nre
late
dto
mo
ne
yla
un
de
rin
go
rsu
spic
iou
str
an
sact
ion
su
po
nre
qu
est
fro
ma
ny
inve
stig
atin
go
rga
niz
atio
nu
nle
ssth
ere
isa
ny
ba
ru
nd
er
the
exi
stin
gla
ws
or
for
an
yo
the
rca
use
;
Do
me
stic
sta
nd
ard
se
nsu
reco
op
era
tion
of
pu
blic
au
tho
ritie
s,if
such
coo
pe
ratio
nis
sou
gh
tfo
r.A
cco
rdin
gly
,th
eU
NC
AC
req
uir
em
en
tis
pa
rtia
lly
Th
ere
exi
sts
no
relia
ble
con
solid
ate
dd
ata
toa
sse
ssp
ract
ica
lap
plic
atio
ns,
imp
lica
tion
sa
nd
eff
ica
cy.
Th
ep
ub
lica
uth
ori
ties
sho
uld
be
bro
ug
ht
un
de
ra
rep
ort
ing
ob
liga
tion
toin
form
the
pro
secu
ting
an
din
vest
iga
ting
ag
en
cie
sa
bo
uta
ny
tra
nsa
ctio
no
fco
rru
ptio
nw
ithin
the
irkn
ow
led
ge
.
com
plie
dw
ith.
110
111
UN
CA
CP
rovi
sio
ns
Do
mes
tic
Leg
al/
Re
gu
lato
ryR
eg
ime
Co
mp
atib
ility
bet
wee
nU
NC
AC
an
dD
om
est
icR
eg
ime
Co
mp
lian
ce
an
dG
ap
sb
etw
een
Law
sa
nd
Pra
ctic
esR
em
ark
s
Art
icle
39
:S
tate
sP
art
ies
are
req
uir
ed
to:
•ta
kea
pp
rop
ria
tem
ea
sure
sto
en
cou
rag
eco
op
era
tion
be
twe
en
na
tion
ali
nve
stig
atin
go
rp
rose
cutin
ga
uth
ori
ties
an
dp
riva
tese
cto
re
ntit
ies,
pa
rtic
ula
rly
fina
nci
ali
nst
itutio
ns,
rela
ting
tom
att
ers
invo
lvin
gth
eco
mm
issi
on
ofU
NC
AC
off
en
ces;
•co
nsi
de
re
nco
ura
gin
gci
tize
ns
an
dre
sid
en
tsto
rep
ort
ton
atio
na
lin
vest
iga
ting
or
pro
secu
ting
au
tho
ritie
sth
eco
mm
issi
on
of
UN
CA
Co
ffen
ces.
An
ti-C
orr
up
tion
Co
mm
issi
on
Act
(AC
C),
20
04
Mo
ne
yL
au
nd
eri
ng
Pre
ven
tion
Ord
ina
nce
(ML
PO
),2
00
8
Acc
ord
ing
toth
eA
CC
Act
,2
00
4,
eve
ryp
ers
on
isd
uty
-b
ou
nd
top
rovi
de
ne
cess
ary
info
rma
tion
ifth
eA
CC
req
uire
sa
nd
failu
reto
do
so is
acr
imin
alof
fenc
e(s
ectio
n 19
);
Acc
ord
ing
toth
eM
LP
O,
20
08
an
yu
nre
aso
na
ble
refu
salt
oco
op
era
tew
itha
no
ffic
er
con
cern
ed
with
inve
stig
atin
gm
on
ey
lau
nd
eri
ng
isa
crim
ina
loff
en
ce(s
ect
ion
7);
Th
eM
LP
O,
20
08
ide
ntif
ies
ba
nks
,fin
an
cia
lin
stitu
tion
s,in
sura
nce
com
pa
nie
s,m
on
ey
cha
ng
ers
,co
mp
an
ies
or
org
an
iza
tion
sre
mitt
ing
or
tra
nsf
err
ing
mo
ne
y,a
nd
an
yo
the
ro
rga
niz
atio
ns
wh
ich
con
du
ctb
usi
ne
ssw
ithth
ea
pp
rova
lof
the
BB
as
“rep
ortin
go
rga
niz
atio
ns”
for
the
pre
ven
tion
of
mo
ne
yla
un
de
rin
g;
Do
me
stic
sta
nd
ard
se
nsu
reco
op
era
tion
,if
such
coo
pe
ratio
nis
de
ma
nd
ed
by
na
tion
ala
uth
ori
ties;
Inp
ract
ice
,p
rose
cutin
ga
nd
inve
stig
atin
ga
ge
nci
es
are
rece
ivin
gco
op
era
tion
wh
en
eve
rth
ey
see
kit
bu
tn
atio
na
lau
tho
ritie
sa
nd
the
pu
blic
sect
or
are
no
te
xte
nd
ing
volu
nta
ryco
op
era
tion
du
eto
som
ew
ea
kne
sse
sin
exi
stin
gla
ws
an
dp
olic
ies.
Vo
lun
tary
coo
pe
ratio
no
fn
atio
na
lau
tho
ritie
sa
nd
the
sect
or
can
be
en
cou
rag
ed
by
en
suri
ng
be
tte
rp
rote
ctio
no
fre
po
rtin
gp
ers
on
sa
nd
als
ob
yg
ivin
gin
cen
tive
sfo
rsu
chco
op
era
tion
.
Acc
ord
ing
ly,
the
UN
CA
Cre
qu
ire
me
nt
isp
art
ially
com
plie
dw
ith.
UN
CA
CP
rov
isio
ns
Do
me
sti
cL
eg
al
/R
eg
ula
tory
Re
gim
e
Co
mp
ati
bil
ity
be
twe
en
UN
CA
Ca
nd
Do
me
sti
cR
eg
ime
Co
mp
lian
ce
an
dG
ap
sb
etw
ee
nL
aw
sa
nd
Pra
cti
ce
sR
em
ark
s
Art
icle
40
:S
tate
sP
art
ies
ar
req
uir
ed
toe
nsu
rea
pp
rop
ria
tem
ech
an
ism
sto
ove
rco
me
ob
sta
cle
sth
at
ma
ya
rise
ou
to
fth
ea
pp
lica
tion
of
ba
nk
secr
ecy
law
sin
the
case
of
inve
stig
atio
no
fU
NC
AC
offe
nce
s.
Co
de
of
Cri
min
alP
roce
du
re,
18
98
Mo
ne
yL
au
nd
eri
ng
Pre
ven
tion
Ord
ina
nce
(ML
PO
),2
00
8
Th
eC
od
eo
fC
rim
ina
lP
roce
du
re,
18
98
(se
ctio
n1
65
)a
llow
sth
ein
vest
iga
ting
au
tho
rity
too
verc
om
eo
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am
en
de
da
cco
rdin
gly
.
Chapter 4
International Cooperation 4.1 Extradition 4.2 Mutual Legal Assistance 4.3 Other Forms of International CooperationMatrix on compliance with articles 43-50
International Cooperation
117
To combat corruption, international cooperation is essential for successfulefforts to prevent, investigate, prosecute, punish, recover and return illicitgains. Consequently, the UNCAC attributes considerable importance tothis issue. Indeed, for Bangladesh to effectively fight corruption, energyand resources must be devoted to working with other countries in thisendeavor. This chapter focuses on compliance and gaps in different areasof international cooperation, specifically extradition and mutual legalassistance, along with other forms of international cooperation.
4.1 Extradition
As offenders committing corruption related offences might flee to anotherjurisdiction to avoid prosecution, the extradition process is necessary to bringthem to justice. Accordingly, article 44 of the UNCAC details obligations of theStates Parties regarding extradition of alleged offenders; article 45 is alsorelevant to this issue as it addresses the transfer of sentenced persons.
Article 44: Extradition
The mandatory obligations under article 44 of the UNCAC are to grantextradition of offenders with respect to the UNCAC offences criminalizedby both the States Parties concerned (article 44.1), or in cases where theUNCAC offences are not punishable by domestic laws, to regard allUNCAC offences as “extraditable offences” for the conclusion ofextradition treaties (article 44.2). Furthermore, States Parties should notconsider these offences to be “political offences” (article 44.4). StatesParties that require a treaty basis for extradition may consider theConvention as the legal basis for extradition to another State Partyregarding corruption offences (article 44.5) and must notify the Secretary-General of the United Nations on whether they will permit the Conventionto be used as a basis for extradition to other States Parties (article 44. 6(a)).Furthermore, they must seek to conclude extradition treaties with otherStates Parties if they do not use the Convention as the legal basis forextradition (article 44.6(b)). States Parties which take the Convention aslegal basis shall recognize UNCAC offences as extraditable offences(article 44.7). The requested State Party may refuse extradition subject toits domestic law (article 44.8). States Parties are also required to simplifythe evidentiary requirements and ensure the presence of the offender atproceedings (article 44.9). In the event of refusal on the grounds that theoffender is its national, the State Party is required to submit the case to
competent authorities without delay for prosecution and cooperate inrelation to procedural and evidentiary aspects to ensure the efficiency ofsuch prosecution (article 44.11). If extradition is refused because theaccused is the requested State Party’s own national, the requested StateParty shall consider enforcement of the sentence imposed by the domesticlaw of the requesting State Party (article 44.13). In the event of refusal,States Parties are required to safeguard the rights of the offenders andensure fair treatment during proceedings (article 44.14). A State Party mayrefuse extradition based on apprehension of discriminatory treatment(article 44.15), but it may not refuse an extradition request on the soleground that the offence involves fiscal matters (article 44.16). Moreover,before refusing extradition, the requesting State Party should be consultedand provided with opportunities to present its opinion and informationrelevant to its allegations (article 44.17).
In Bangladesh, the extradition regime is governed by the Extradition Act(EA), 1974. Bangladesh has opted for compliance of the UNCAC throughthe formulation of treaties as the legal basis for extradition. The EA, 1974spells out a list of extraditable offences. Bribery and embezzlement are theonly extraditable offences under the UNCAC that have been listed.Consequently, there is a gap in this area as the remaining UNCAC offencesare not recognized by the domestic law as extraditable offences.Recognizing Convention offences universally across all States Parties is animportant step to full implementation of the UNCAC provisions and isessential for bringing an offender to justice. Accordingly, the list ofextraditable offences would need to be amended to include all of theUNCAC offences. One aspect of the domestic law of Bangladesh thatcomplies with the requirements of the UNCAC is that Bangladesh does notallow refusal of extradition on the sole ground that the offence isconsidered to involve fiscal matters.
According to the EA, 1974, both national and alien fugitive offenders canbe extradited. However, to conduct such extradition, the EA, 1974 requiresthat there be an extradition treaty in place between Bangladesh and thecountry requesting said extradition. So far, Thailand is the only countrywith which Bangladesh has an extradition treaty. Nevertheless, theprovision for extradition is currently being negotiated in severalagreements for mutual legal assistance. Provisions for extradition havebeen included in two of the three money-laundering preventionagreements currently under process/recently negotiated with India andcountries of the South Asian Association for Regional Cooperation(SAARC) and the Bay of Bengal Initiative for Multi-Sectoral Technical andEconomic Cooperation. Moreover, in the absence of any treaty, theGovernment may, through gazette notification, establish extradition
118
relations with any country and thus extend cooperation for extradition inthe same manner as if there were a treaty. Extending cooperation forextradition through gazette notification is an important step towardscompliance with the UNCAC provisions because it serves to bridge thegap created by the absence of extradition treaties in situations whereextradition is needed to bring an offender to justice or track the proceedsof crime. With regard to practice, Bangladesh has yet to use its extraditionmechanism for the extradition of corruption offenders. Over the years, onlya few instances of extradition have taken place for other criminal offences;in particular, the Extradition Treaty with Thailand was used only once toreturn a fugitive offender.
The grounds for which extradition may be refused are contained in section5(2) of the EA, 1974. According to said section, Bangladesh may refuse anextradition request from another State Party on grounds that (a) theoffence in question is political in nature; (b) the offender has already beentried and/or sentenced and is serving sentence in Bangladesh; or (c) s/hemay be subject to discriminatory treatment for reasons of race, religion ornationality. The EA, 1974 also maintains that there will be no extradition foroffences punishable for less than twelve months. This clause in the EA,1974 serves to protect the offender from extradition for flimsy offences.However, the definition of “political offence” is not clearly spelled out,which may allow an offender to use this clause to escape extradition.
The required procedures for evidentiary requirements are quite simpleunder the EA, 1974. Section 9 of the EA, 1974 provides that evidence fortrial is acceptable if the relevant documents or copies are authenticated bya judge, magistrate or official of the state. The domestic laws in this respectcomply with article 44.9 of the UNCAC which requires States Parties tosimplify the evidentiary requirements at extradition proceedings. However,the extradition treaty with Thailand is more complicated and requires therequesting State Party to provide details of the extradition request, such asdocuments and other evidence linking the offender with the crime for whichextradition is sought, the statement of the case against the offender, a copyof the warrant for arrest, and so on. Thus, although the EA, 1974 iscompliant with the UNCAC, the extradition treaty is not. Therefore, in theinterest of bringing an offender to justice and moving closer to compliance,extradition treaties should be simplified in line with the EA, 1974.
The matter of taking an offender into custody is detailed in section 11 ofthe EA, 1974 which empowers the Government to issue warrants to takean offender into custody for the purposes of surrendering him/her to arequesting party. However, the GoB is not allowed to extradite before theexpiry of 15 days from the date of the offender being taken into custody.
119
If the extradition request is refused on the ground that the person soughtis a national of the requested country, the UNCAC requires the requestedcountry to submit a case against the offender without delay and cooperateon evidentiary and procedural aspects (article 44.11). There is no specificprovision in the EA, 1974 to start proceedings without delay in such asituation. Under the Penal Code, 1860 any competent court of Bangladeshhas jurisdiction to prosecute a Bangladeshi national for an act which is anoffence under domestic law, irrespective of the place of occurrence.Furthermore, the court is also allowed to collect evidence from a foreigncountry through evidence commissions under section 503(b) of theCriminal Procedure Code (CrPC), 1898. Accordingly, there is no bar underthe domestic law against commencing such proceedings or cooperatingon evidentiary matters.
Domestic laws also ensure fair treatment of an offender. Article 31 of theConstitution of Bangladesh provides that any person is entitled to enjoythe protection of law and be treated in accordance with the law while inBangladesh. The EA, 1974 also provides that bail under the CrPC will beapplicable for the fugitive offender in the same manner as if s/hecommitted the offence in Bangladesh. Thus domestic laws are compatiblewith UNCAC provisions insofar as safeguarding rights and fair treatment ofthe offender is concerned.
There is no provision in the EA, 1974 which allows for the extradition of aBangladeshi national to a foreign country only for the purposes of servinga sentence imposed by a foreign country. Moreover, in Bangladesh, foreignsentences are not enforceable. Consequently, there is a gap in compliancewith article 44.13 of the UNCAC which states that if extradition, sought forpurposes of enforcing a sentence, is refused because the person is anational of the requested State Party, the requested State Party shallconsider enforcing the sentence. There are various reasons for notenforcing foreign criminal judgments, such as, differences in principles ofdomestic laws, variation in social and cultural practices and values,religious influence on domestic law, economic conditions, and sovereigntyconsiderations. However, once the legal regimes of States Parties are incompliance with the UNCAC, their legal mechanisms for fightingcorruption will be similar in nature, making it a waste of resources to retrya case for an UNCAC related offence. Accordingly, Bangladesh shouldconsider including a provision for enforcing foreign criminal judgments, inparticular, judgments of another State Party for an offence under theUNCAC.
The EA, 1974 empowers the GoB to stay extradition proceedings anddischarge the offender if the Government is of the opinion that the case is
120
trivial in nature, was not made in good faith, or for other policy reasons.There is no specific requirement in the EA, 1974 that the court mustconsult with the requesting State Party before reaching such decision.However, during proceedings both the requesting State Party and thefugitive offender are allowed to provide opinions and information insupport of their positions. Arguably, this is in accordance with article 44.17of the UNCAC which provides that before refusing extradition, therequested State Party shall consult the requesting State Party and give anopportunity for the requesting State Party to present its opinion andprovide information relevant to its allegation.
From the above analysis, it is evident that the gaps in compliance withrespect to article 44 arise mainly from differences between domestic lawsand the UNCAC regarding the recognition of extraditable offences, a lackof bilateral treaties that respond to extradition requests, andunenforceability of foreign sentences. The existence of such gaps thwartsany efforts to track down proceeds of crime and bring offenders to justice.As such, speedy elimination of these gaps is desirable. In this respect,recognizing all UNCAC offences as extraditable offences, concludingbilateral treaties as early as possible, and responding to extraditionrequests through gazette notification are effective steps towardscompliance.
Article 45: Transfer of sentenced persons
Article 45 of the UNCAC encourages the existence of bilateral ormultilateral agreements for transferring sentenced persons to their ownterritory to complete their sentences.
Bangladesh has yet to have any agreements with States Parties allowingthe transfer of sentenced persons to their own territory to complete theirsentences. Section 5(2)(g) of the EA, 1974 bars such transfer and prohibitsthe surrender of any fugitive offender who is serving sentence under anyconviction until the end of his/her sentence. The extradition treaty withThailand provides for the extradition of offenders against whom a judicialpenalty has been pronounced; however, the treaty does not enableextradition in the event that such an offender has begun to serve his/hersentence in Bangladesh. This is in line with the domestic regime but doesnot reflect the UNCAC ambition contained in article 45.
Transferring offenders to their own country is important as it gives them achance to reintegrate back into their society. Nevertheless, the prohibitionin the EA, 1974 on transferring sentenced persons is likely rooted in othernotable concerns, namely the fear that offenders may be subject to
121
mistreatment or would avoid punishment in their own country due toreasons such as political protection. However, the risk of sentencenullification can be protected against. One way to comply with the UNCACprovision and ensure that offenders serve out their sentences is tonegotiate bilateral treaties on the issue of transfer of sentenced persons ona case by case basis. Consequently, Section 2(g) of the EA, 1974 shouldalso be amended to allow for the transfer of sentenced persons on a caseby case basis, depending on the severity of the case and the likelihood ofmistreatment of the offender.
4.2 Mutual Legal Assistance
Article 46: Mutual legal assistance
Article 46 of the UNCAC requires States Parties to ensure the widestmeasure of mutual legal assistance (MLA) in investigations, prosecutions,judicial proceedings, and asset confiscation and recovery in relation tocorruption offences (article 46.1). Specifically, it requires such assistancefor the purposes of taking evidence from persons, identifying and tracingthe proceeds of crime, providing documents and records, and recovery ofassets (article 46.3) along with providing assistance in investigations,prosecution and judicial proceedings in relation to offences for which alegal entity may be held liable under article 26 (article 46.2). States Partiesmay provide information on criminal matters to other States Parties withoutprior request, where they believe that this can assist in inquiries, criminalproceedings or the formulation of a formal request from that State Party(article 46 paragraphs 4 and 5). Furthermore, States Parties may decline torender assistance on the ground of absence of dual criminality; however, aState Party may offer assistance in the absence of dual criminality throughnon-coercive measures (article 46.9(b)). States Parties are also required tonotify the Secretary-General of the United Nations of their central authoritydesignated for the purpose of article 46, as well as of the language(s)acceptable to them in this regard (article 46 paragraphs 13 and 14). MLAmay be refused if such a request is likely to prejudice the requestedcountry’s sovereignty (article 46.21(b)). However, the UNCAC makes itclear that assistance cannot be refused on the grounds of bank secrecy(article 46.8) or for offences involving fiscal matters (article 46.22).Additionally, the UNCAC requires States Parties to apply paragraphs 9 to29 of article 46 to govern the modalities of MLA in the absence of a mutuallegal assistance treaty with another State Party (article 46 paragraphs 7and 9-29). Finally, States Parties shall consider entering into bilateral ormultilateral agreements or arrangements to give effect to or enhance MLA(article 46.30).
122
The Government through Gazette Notification (UN-SOC-6027/07, dated 27April, 2008) nominated the Ministry of Home Affairs and the Office of theAttorney General as the designated central authorities to receive andexecute requests for MLA; additionally, Bangladesh has agreed to useEnglish as the accepted language for the purpose of the Convention. TheSecretary-General of the UN has also been notified on these matters;consequently, Bangladesh has complied with the requirements underarticle 26, paragraphs 13 and 14, of the UNCAC, which will create moreopportunities for providing mutual legal assistance. Bangladesh can nowrespond to any request for MLA from a State Party if such request if madethrough the central authority and there is no bar in the domestic lawagainst providing such cooperation. However, countries which are yet tonominate a central authority may not receive cooperation in the absenceof a MLA agreement. Furthermore, there are some situations in which MLAmay only be provided if there is a treaty allowing such cooperation, suchas in cases requiring assistance for extradition.
Additionally, the GoB has taken steps to provide necessary legalprovisions in the domestic regime to ensure widest MLA, particularly inrelation to money-laundering offences. Section 26 of the MoneyLaundering Prevention Ordinance (MLPO), 2008 provides that theGovernment, or in some cases Bangladesh Bank (BB), may signmemorandum of understanding (MOU), and bilateral or multilateralagreements with foreign countries and organizations to prevent moneylaundering. Once such agreements are signed, it will allow the Governmentor the BB to request and provide information in response to requests fromother countries so long as it will not affect national security. Assistance canalso be provided in relation to the forfeiture or transmission of property.Further, as section 3 of MLPO makes it clear that the provisions of thisOrdinance will prevail over any other law, disclosure of information will notbe barred by other restrictive laws on disclosure of information, namely theOfficial Secrets Act, 1923, the Evidence Act, 1872, the GovernmentServants (Conduct) Rules, 1979 and the Rules of Business, 1996, as longas such disclosure does not pose a threat to national security.Furthermore, the CrPC authorizes any investigating authority to haveaccess to documents or information related to anything in a bank’scustody. Thus, bank secrecy laws cannot impede criminal investigations.The Bangladesh Bank, in its capacity as the country’s central bank, isauthorized to have access to bank account information of any individual orcompany on demand; this authority can be used to facilitate investigationsor proceedings. In addition, where there are formal understandings oragreements, the BB will be able to share information with other States.
123
Moreover, section 503(2B) of the CrPC provides limited allowances forseeking assistance to gather evidence through commissions which canexamine witnesses abroad, but it does not contain provisions for seekingother types of MLA or for responding to incoming MLA requests for helpwith investigation, prosecution and judicial proceedings. However, underthese domestic provisions, assistance can be provided for offencescommitted both by natural persons as well as legal entities.
Bangladesh is yet to have any mechanism for information sharing oncriminal matters with States Parties. However, MLA for information sharingin South Asia can be provided on a real time basis through two SAARCmechanisms, namely the SAARC Drug Offence Monitoring Desk (SDOMD)and the SAARC Trafficking Offence Monitoring Desk (STOMD). Under thismechanism, Bangladesh informs the SDOMD and STOMD of anyinformation relating to drug and trafficking offences that it considershelpful in controlling such crimes. Bangladesh should consider developingsimilar mechanisms among the UNCAC States Parties to combatcorruption related offences.
Bangladesh now has the necessary legal basis for mutual legal assistance inrelation to corruption related offences under the UNCAC. When MLA will beprovided through the central authority, such assistance should be conductedfollowing the procedural requirements and guidance provided in the differentparagraphs of article 46. Bangladesh has recently initiated a number of MLAagreements and is quite up-to-date in adopting breakthrough methods ofinformation sharing like the two SAARC mechanisms mentioned above.Further, the SAARC countries are also working on increasing regionalcooperation to combat corruption. Nevertheless, the international mobility ofoffenders and the use of advanced technology, among other factors, makeit more necessary than ever for law enforcement and judicial authorities tocollaborate and assist the State Party that has assumed jurisdiction over thematter. Indeed, without such cooperation it may not be possible to gatherevidence and/or locate either the proceeds of crime or the offender in time.Consequently, any information sharing constraints that still exist should beremedied as soon as possible. Bangladesh is somewhat behind with respectto providing MLA for all other aspects of criminal proceedings, such asinvestigation, prosecution, and judicial proceedings due to the absence ofnecessary legal provisions and bilateral or multilateral agreements. The gapsin compliance can thus be narrowed through incorporating provisions forMLA in the areas of investigation and prosecution in domestic laws; mostimportantly, Bangladesh should also negotiate more bilateral and multilateraltreaties for MLA.
124
4.3 Other Forms of International Cooperation
To combat corruption effectively and provide both extradition and mutuallegal assistance, other mechanisms of international cooperation arerequired, particularly with respect to investigation and law enforcement.The UNCAC emphasizes various mechanisms of international cooperationin the areas of investigation, proceedings and law enforcement.
Article 43: International cooperation
The UNCAC requires that States Parties cooperate in criminal matters,particularly in cases of extradition, mutual legal assistance, transfer of criminalproceedings and law enforcement, including joint investigations and specialinvestigative techniques (article 43.1). Moreover, whenever dual criminality isnecessary for international cooperation, States Parties must deem thisrequirement fulfilled if the conduct underlying the offence for which assistanceis sought is a criminal offence under the laws of both States Parties. TheConvention makes it clear that the underlying conduct of the criminal offenceneed not be defined in the same terms by both States Parties, nor does it haveto be placed within the same category of offence (article 43.2).
The Government of Bangladesh recognizes the importance of internationalcooperation in criminal matters, particularly in relation to extradition, MLA,transfer of criminal proceedings and law enforcement. Bangladesh mayprovide MLA through the central authorities as nominated under article 46.Additionally, the Extradition Act (EA), 1974 provides a legal basis forcooperation for extradition.
The UNCAC explanation of the issue of “dual criminality” appears to be inline with the domestic provision to some extent. The UNCAC provides thatif the underlying conduct is treated as an offence in both countries, therequirement of dual criminality will be fulfilled even if different terms areused between countries. In the explanation for section 4 of the PenalCode, 1860 it is stated that “offence” includes every act committedoutside Bangladesh, which if committed in Bangladesh would bepunishable under the Code. Therefore, under the domestic law it is thenature of the act which is considered in classifying said act as an offence.Accordingly, if a person is accused of conduct which will amount to anoffence in Bangladesh, the fact that the conduct is termed differently inanother state will not bar providing cooperation, as long as necessaryarrangements for cooperation are in place. However, as this domesticdefinition of offences only relates to offences under the Penal Code, thesame meaning may not be given to offences under other corruption relatedacts/ordinances. Consequently, this issue of dual criminality should be
125
addressed by ensuring that there are clear provisions making all corruptionassociated acts qualify as “offences.”
The present legal regime complies with the UNCAC requirements to someextent. However, there are areas which need to be addressed, namelytransfer of criminal proceedings, cooperation for law enforcement andinvestigation. Detailed discussion on these issues will take place in thefollowing paragraphs.
Article 47: Transfer of criminal proceedings
States Parties are required to consider transferring prosecution of anoffence established in accordance with the Convention to one another’sproceedings in cases where such transfer is considered to be in theinterest of the proper administration of justice, particularly where severaljurisdictions are involved, for the purposes of concentrating prosecution.
In Bangladesh, there is no direct provision regarding the transfer of legalproceedings to another State Party. The requirement under this article isquite significant as corruption related offences are often committed in orthrough several jurisdictions which makes it more practical, efficient andfairer for all concerned parties to consolidate the case in one place. If thereis no domestic provision in place related to the transfer of proceedings itwill be difficult to try such cases. Accordingly, it is necessary for newlegislative provisions to be introduced which allow the courts or theGovernment to have the power to transfer proceedings to another StateParty in appropriate circumstances.
Article 48: Law enforcement cooperation
The UNCAC obligates States Parties to cooperate closely with one anotherto strengthen the channels of communication among their respective lawenforcement authorities (article 48.1(a)), to undertake specific forms ofcooperation in order to obtain information about persons and themovement of proceeds and instrumentalities of crime (article 48.1(a)(i),(ii)),to provide each other items or quantities of substances for analysis orother investigative purposes (article 48.1(c)), to exchange informationconcerning specific means and methods used in related offences (article48.1(d)), to promote exchanges of personnel and other experts (article48.1(e)), and to conduct other cooperation measures for the purposes offacilitating early identification of offences (article 48.1(f)). States Partiesshall consider entering into bilateral agreements on direct cooperationbetween their law enforcement agencies, and in the absence of any suchagreement, may consider the UNCAC as a basis for MLA (article 48.2). In
126
addition, States Parties shall cooperate to respond to UNCAC offencescommitted through the use of modern technology (article 48.3).
The membership of Bangladesh in the International Criminal PoliceOrganization (INTERPOL) provides it with law enforcement assistance fromother states. The Government uses such assistance to “identify andlocate” offenders, including suspects of corruption related offences. As aSAARC member, such an exchange of information can be done throughthe SDOMD and the STOMD, to a limited extent. In addition, the FinancialIntelligence Unit (FIU) of the Anti-Money-Laundering Department of theBangladesh Bank received assistance from the United States for theinstallation of software to detect and analyze financial crimes.Furthermore, the Government has obtained assistance for investigationpurposes from different international and national experts.
However, Bangladesh has not met the international standards in relation tocontrolling offences committed through the use of modern technology dueto a lack of technology and resources. Since corruption related offencesinvolve the use of modern technology, it is crucial that Bangladesh improveits capacity in this regard. Bangladesh can benefit from technologicalassistance, information and experience sharing, and training for capacitybuilding from countries which already have adequate facilities incontrolling offences involving modern technology. There is no agreementwith any individual State Party regarding the exchange of information onmethods of committing offences or for providing substances forinvestigation. Furthermore, domestic legislation has yet to comply with theUNCAC provisions related to ensuring law enforcement cooperation.
Early steps at removing hindrances to information sharing will helpfacilitate tracking down UNCAC offenders and thus prevent them fromacting with impunity. Furthermore, the use of modern information andcommunication techniques would assist in this regard as well. Thus, as astep to becoming more compatible with UNCAC provisions, Bangladeshcan sign MOUs to expand the ambit of cooperation and enter intoagreements with other States Parties, particularly neighboring countries,pertaining to exchange of information on methods of committing offences.
Article 49: Joint investigations
The UNCAC requires that the States Parties consider bilateral or multilateralagreements or arrangements regarding the establishment of joint investigativebodies to conduct joint investigations, prosecutions and proceedings in morethan one state. Furthermore, in absence of such agreements, States Partiesmay consider undertaking joint investigations on a case by case basis.
127
Bangladesh has not entered into any bilateral or multilateral agreements toestablish a joint investigative body. However, such a body can be createdon a case by case basis, depending upon requests by a State Party. TheGovernment can also make requests to INTERPOL or to any specificcountry for joint investigation of a particular incident.
Formation of joint investigative bodies is important as elements of corruptionrelated offences may concern and involve more than one state. Domestic lawsdiffer across countries and as such can work as a barrier to investigationsconducted by a particular state. Furthermore, the States Parties may alsobenefit from the experience, expertise, and investigation techniques of othercountries through the formation of such bodies. Accordingly, Bangladeshshould adopt legislative provisions allowing for the creation of jointinvestigative bodies and take practical steps to establish them.
Article 50: Special investigation techniques
A State Party must establish controlled delivery as an investigativetechnique available at the domestic and international level, if permitted bythe basic principles of its domestic legal system (article 50.1); have thelegal ability to provide on a case by case basis international cooperationwith respect to controlled deliveries, where not contrary to the basicprinciples of its domestic legal system (article 50.3); and whereappropriate, establish electronic surveillance and undercover operationsas investigative techniques available at the domestic and internationallevel (article 50.1).
Under section 97(a) of the Telecommunication Act, 2001, the Governmentmay interfere with the communication of any user of any service providerin the interest of the security of the state or public order. Furthermore, theRapid Action Battalion and the Detective Branch of the police haveconducted undercover investigations at the domestic level. However,these provisions are more often implemented to facilitate domesticinvestigation rather than aid international cooperation. Accordingly,despite some laws in place, Bangladesh has yet to develop such complexinvestigation techniques as prescribed by the UNCAC. Such techniquesare useful as corruption related crimes are often very complex, requiringlong-term sophisticated investigation and infiltration to actually detect thecrime and gather necessary evidence. As Bangladesh seeks to betterequip itself in the fight against corruption, it would be helpful to seekoutside assistance in the form of experts or international assistance todevelop these special investigative capabilities.
128
Ch
ap
ter
4In
tern
ati
on
al C
oo
pera
tio
n (
Art
icle
s 4
3—
50)
UN
CA
CP
rov
isio
ns
Do
me
sti
cL
eg
al
/R
eg
ula
tory
Re
gim
eC
om
pa
tib
ilit
yb
etw
ee
nU
NC
AC
an
dD
om
es
tic
Re
gim
e
Co
mp
lia
nc
ea
nd
Ga
pb
etw
ee
nL
aw
an
dP
rac
tic
eR
em
ark
s
Art
icle
43
:S
tate
Pa
rtie
sa
rere
qu
ire
dto
coo
pe
rate
incr
imin
alm
atte
rsp
art
icu
larl
yin
case
so
fe
xtra
diti
on
,m
utu
all
eg
ala
ssis
tan
ce,
tra
nsf
er
ofcr
imin
al
pro
cee
din
gs,la
we
nfo
rce
me
ntin
clu
din
gjo
int
inve
stig
atio
na
nd
spe
cia
lin
vest
iga
tive
tech
niq
ue
s;
Du
alc
rim
ina
lity
req
uir
em
en
tsa
red
ee
me
dfu
lfille
dif
the
offe
nce
iscr
imin
aliz
ed
by
law
so
fb
oth
Sta
tes
Pa
rtie
s.
Ext
rad
itio
nA
ct(E
A),
19
74
Pe
na
lCo
de
,1
86
0
Th
eG
ove
rnm
en
tre
cog
niz
es
the
imp
ort
an
ceo
fin
tern
atio
na
lco
op
era
tion
inre
latio
nto
ext
rad
itio
n,
ML
A,
tra
nsf
er
ofcr
imin
al
pro
cee
din
gs
an
dla
we
nfo
rce
me
nt.
Ba
ng
lad
esh
ma
yp
rovi
de
ML
Ath
rou
gh
the
cen
tra
la
uth
ori
ties
as
no
min
ate
du
nd
er
art
icle
46
.A
dd
itio
na
lly,
the
EA
, 1
97
4p
rovi
de
sa
leg
alb
asi
sfo
rco
op
era
tion
for
extr
ad
itio
n.
Th
ele
ga
lre
gim
eis
com
plia
nt
with
the
UN
CA
Cre
qu
ire
me
nts
toso
me
ext
en
t;
Th
ed
ua
lcri
min
alit
yre
qu
ire
me
nt
of
the
UN
CA
Cis
inlin
ew
ithd
om
estic
pro
visi
on
sto
som
ee
xte
nt.
Cla
rific
atio
nsh
ou
ldb
em
ad
ere
latin
gto
the
issu
eo
fd
ua
lcr
imin
alit
y.
Art
icle
44
:S
tate
sP
art
ies
are
req
uir
ed
to:
•g
ran
te
xtra
diti
on
of
offe
nd
ers
;
•re
ga
rda
llU
NC
AC
offe
nce
sa
s“e
xtra
dita
ble
offe
nce
s”a
nd
no
tto
con
sid
er
the
sea
s“p
olit
ica
loff
en
ces”
;
•ta
keth
eU
NC
AC
as
the
leg
alb
asi
sfo
re
xtra
diti
on
or
op
tfo
rco
mp
lian
ce
Ext
rad
itio
nA
ct(E
A),
19
74
Co
nst
itutio
no
fth
eP
eo
ple
’sR
ep
ub
lico
fB
an
gla
de
sh
Th
eC
od
eo
fC
rim
ina
lP
roce
du
re(C
rPC
),1
89
8
Pe
na
lCo
de
,1
86
0
Ba
ng
lad
esh
ha
so
pte
dfo
rb
ilate
ralt
rea
ties;
Un
de
rth
eE
A,1
97
4,b
oth
na
tion
ala
nd
alie
nfu
giti
veo
ffe
nd
ers
can
be
extr
ad
ited
bu
ta
ne
xtra
diti
on
tre
aty
isn
ece
ssa
ryfo
rth
is;
So
far,
Ba
ng
lad
esh
ha
se
nte
red
into
an
ext
rad
itio
ntr
ea
tyo
nly
with
Th
aila
nd
;
Ina
bse
nce
of
tre
aty
,th
eG
ove
rnm
en
tm
ay
esta
blis
h
Ext
rad
itio
nis
tob
ein
clu
de
din
ML
Aa
gre
em
en
tscu
rre
ntly
un
de
rp
roce
ss;
Ext
en
din
gco
op
era
tion
for
ext
rad
itio
nth
rou
gh
ga
zette
no
tific
atio
nis
an
imp
ort
an
tst
ep
tow
ard
sco
mp
lian
ceb
eca
use
itb
rid
ge
sth
eg
ap
cre
ate
db
yth
ea
bse
nce
of
tre
atie
sin
situ
atio
ns
wh
ere
ext
rad
itio
nis
ne
ed
ed
;
Ba
ng
lad
esh
ha
sye
tto
use
itse
xtra
diti
on
me
cha
nis
mfo
r
Th
elis
to
fe
xtr
ad
itab
leo
ffe
nce
sin
the
Sch
ed
ule
of
the
EA
,1
97
4sh
ou
ldb
ea
me
nd
ed
toin
clu
de
UN
CA
Co
ffe
nce
s;
Bila
tera
lextr
ad
itio
ntr
ea
ties
sho
uld
be
ne
go
tiate
da
se
arl
ya
sp
oss
ible
.A
ltern
ativ
ely
,it
ma
yre
spo
nd
toe
xtr
ad
itio
nre
qu
est
sth
rou
gh
ga
zett
en
otif
ica
tion
;
Inth
ein
tere
sto
fb
rin
gin
ga
no
ffe
nd
er
toju
stic
e,
129
UN
CA
CP
rov
isio
ns
Do
me
sti
cL
eg
al
/R
eg
ula
tory
Re
gim
eC
om
pa
tib
ilit
yb
etw
ee
nU
NC
AC
an
dD
om
es
tic
Re
gim
e
Co
mp
lian
ce
an
dG
ap
be
twe
en
La
wa
nd
Pra
cti
ce
Re
ma
rks
thro
ug
hb
ilate
ralt
rea
ties
an
dn
otif
yth
eU
NS
ecr
eta
ry-G
en
era
l;
•si
mp
lify
evi
de
ntia
ryre
qu
ire
me
nts
an
de
nsu
rep
rese
nce
ofo
ffe
nd
ers
at
pro
cee
din
gs;
Inth
ea
bse
nce
ofa
ne
xtra
diti
on
tre
aty
the
Co
nve
ntio
nm
ay
be
tre
ate
da
sth
ele
ga
lba
sis
for
ext
rad
itio
n;
Sta
tes
Pa
rtie
sm
ay
refu
see
xtra
diti
on
req
ue
sts
;
Ife
xtra
diti
on
isre
fuse
db
eca
use
the
req
ue
ste
do
ffe
nd
er
isn
atio
na
lof
req
ue
ste
dS
tate
Pa
rty,
the
UN
CA
Cre
qu
ire
sth
at
req
ue
ste
dco
un
try
sho
uld
sub
mit
aca
sea
ga
inst
the
offe
nd
er
with
ou
td
ela
ya
nd
coo
pe
rate
on
evi
de
ntia
rya
nd
pro
ced
ura
lasp
ect
s;
Ife
xtra
diti
on
isre
fuse
d,a
Sta
teP
art
ysh
all
con
sid
er
en
forc
em
en
to
fse
nte
nce
imp
ose
db
yla
ws
of
are
qu
est
ing
Sta
teP
art
y;
ext
rad
itio
nre
latio
ns
with
an
yS
tate
Pa
rty
thro
ug
hg
aze
tte
no
tific
atio
na
nd
ext
en
dco
op
era
tion
insa
me
ma
nn
er
as
ifit
we
rea
tre
aty
;
Un
de
rP
en
alC
od
e,
an
yco
mp
ete
ntco
urt
of
Ba
ng
lad
esh
ha
sju
risd
ictio
nto
pro
secu
tea
Ba
ng
lad
esh
in
atio
na
lfo
ra
na
ctw
hic
his
an
offe
nce
un
de
rd
om
est
icla
w,
irre
spe
ctiv
eo
fth
ep
lace
ofo
ccu
rre
nce
;
Do
me
stic
law
se
nsu
refa
irtr
ea
tme
nt
of
offe
nd
ers
an
dp
rote
ctio
nu
nd
er
the
law
.A
rtic
le3
1o
fC
on
stitu
tion
of
Ba
ng
lad
esh
pro
vid
es
tha
ta
ny
pe
rso
n,w
hile
inB
an
gla
de
sh,is
en
title
dto
the
pro
tect
ion
of
the
law
an
db
etr
ea
ted
ina
cco
rda
nce
with
the
law
;
Ba
ilu
nd
er
the
CrP
Cw
illb
ea
pp
lica
ble
for
fug
itive
offe
nd
ers
insa
me
ma
nn
er
as
ifs/h
eco
mm
itte
dth
eo
ffe
nce
inB
an
gla
de
sh;
Fo
reig
nse
nte
nce
sa
ren
ot
en
forc
ea
ble
inB
an
gla
de
sh.
ext
rad
itio
no
fco
rru
ptio
no
ffe
nd
ers
;
Th
ed
efin
itio
no
f“p
olit
ica
lo
ffe
nce
”is
no
tcl
ea
rly
spe
lled
ou
t;
Th
eE
A,1
97
4is
com
plia
nt
with
the
UN
CA
Cin
reg
ard
tosi
mp
lifyi
ng
evi
de
ntia
ryre
qu
ire
me
nts
bu
tth
ee
xtra
diti
on
tre
aty
(with
Th
aila
nd
)is
no
t;
Th
ere
isn
op
rovi
sio
nin
EA
for
extr
ad
itio
no
fB
an
gla
de
shi
na
tion
als
toa
fore
ign
cou
ntr
yfo
rp
urp
ose
so
fse
rvin
gse
nte
nce
imp
ose
db
ya
fore
ign
cou
ntr
y;
Fo
reig
nju
dg
me
nts
are
no
te
nfo
rce
ab
lein
Ba
ng
lad
esh
;
Th
ere
isg
ap
inco
mp
lian
cew
itha
rtic
le4
4.1
3o
fU
NC
AC
(re
qu
est
ed
Sta
teP
art
yto
con
sid
er
en
forc
ing
sen
ten
ceif
ext
rad
itio
nso
ug
ht
for
en
forc
ing
ase
nte
nce
isre
fuse
db
eca
use
the
pe
rso
nis
itso
wn
na
tion
al)
.
evi
de
ntia
ryre
qu
ire
me
nts
of
the
ext
rad
itio
ntr
ea
tyw
ithT
ha
ilan
dsh
ou
ldb
esi
mp
lifie
din
the
line
so
fth
eE
A,1
97
4;
Ba
ng
lad
esh
sho
uld
con
sid
er
the
pro
visi
on
for
en
forc
ing
of
fore
ign
crim
ina
lju
dg
me
nts
for
an
UN
CA
Co
ffe
nce
.
130
UN
CA
CP
rov
isio
ns
Do
me
sti
cL
eg
al
/R
eg
ula
tory
Re
gim
eC
om
pa
tib
ilit
yb
etw
ee
nU
NC
AC
an
dD
om
es
tic
Re
gim
e
Co
mp
lian
ce
an
dG
ap
be
twe
en
La
wa
nd
Pra
cti
ce
Re
ma
rks
Ife
xtra
diti
on
isre
fuse
d,
Sta
tes
Pa
rtie
sa
rere
qu
ire
dto
safe
gu
ard
the
rig
hts
of
the
offe
nd
er
an
de
nsu
refa
irtr
ea
tme
nt
for
the
off
en
de
ra
tp
roce
ed
ing
s;
AS
tate
Pa
rty
ma
yre
fuse
ext
rad
itio
no
na
pp
reh
en
sio
no
fdis
crim
ina
tory
tre
atm
en
t;
AS
tate
Pa
rty
can
no
tre
fuse
ext
rad
itio
no
nso
leg
rou
nd
tha
tth
eo
ffe
nce
invo
lve
sfis
calm
att
ers
.
Un
de
rS
ect
ion
5(2
)o
fE
A,
19
74
,B
an
gla
de
shm
ay
refu
see
xtra
diti
on
req
ue
sts
on
gro
un
ds
tha
tth
eo
ffe
nce
inq
ue
stio
nis
po
litic
ali
nn
atu
re;
the
offe
nd
er
ha
sa
lre
ad
yb
ee
ntr
ied
an
d/o
rse
nte
nce
da
nd
isse
rvin
gse
nte
nce
inB
an
gla
de
sh;
or
s/h
em
ay
be
sub
ject
tod
iscr
imin
ato
rytr
ea
tme
nt;
bu
tn
ot
on
the
sole
gro
un
dth
at
itin
volv
es
fisca
lma
tte
rs;
Th
eE
A,1
97
4m
ain
tain
sth
at
the
rew
illb
en
oe
xtra
diti
on
for
off
en
ces
pu
nis
ha
ble
for
less
tha
ntw
elv
em
on
ths;
Pro
ced
ure
sfo
re
vid
en
tiary
req
uir
em
en
tsa
resi
mp
leu
nd
er
the
EA
,1
97
4.
Ho
we
ver,
pro
visi
on
so
fth
ee
xtra
diti
on
tre
aty
with
Th
aila
nd
are
mo
reco
mp
lica
ted
inth
isre
ga
rd;
Alth
ou
gh
the
reis
no
spe
cific
pro
visi
on
inth
eE
A,
19
74
tost
art
pro
cee
din
gs
with
ou
td
ela
y,th
ere
isn
ob
ar
toco
mm
en
cin
gsu
chp
roce
ed
ing
sa
nd
coo
pe
ratin
gin
evi
de
ntia
rym
atte
rs;
131
UN
CA
CP
rov
isio
ns
Do
me
sti
cL
eg
al
/R
eg
ula
tory
Re
gim
eC
om
pa
tib
ilit
yb
etw
ee
nU
NC
AC
an
dD
om
es
tic
Re
gim
e
Co
mp
lian
ce
an
dG
ap
be
twe
en
La
wa
nd
Pra
cti
ce
Re
ma
rks
Th
eE
A,1
97
4e
mp
ow
ers
the
Go
vern
me
nt
tost
ay
ext
rad
itio
np
roce
ed
ing
sa
nd
dis
cha
rge
the
off
en
de
rif
the
case
istr
ivia
lin
na
ture
or
wa
sn
ot
ma
de
ing
oo
dfa
ith.
Ho
we
ver,
bo
thth
ere
qu
est
ing
Sta
teP
art
ya
nd
fug
itive
off
en
de
ra
rea
llow
ed
top
rovi
de
op
inio
ns
an
din
form
atio
nsu
pp
ort
ing
the
irp
osi
tion
du
rin
gp
roce
ed
ing
s.
Art
icle
45
:T
he
art
icle
en
cou
rag
es
bila
tera
la
gre
em
en
tsfo
rth
etr
an
sfe
ro
fse
nte
nce
dp
ers
on
sto
the
iro
wn
terr
itory
toco
mp
lete
the
irse
nte
nce
s.
No
such
ag
ree
me
nte
xist
s.
Ext
rad
itio
nA
ct(E
A),
19
74
Th
ere
isn
op
rovi
sio
nfo
rth
ee
xtra
diti
on
ofa
pe
rso
nse
rvin
ga
sen
ten
cein
Ba
ng
lad
esh
;
Se
ctio
n2
(g)
of
the
EA
,1
97
4b
ars
the
tra
nsf
er
of
sen
ten
ced
pe
rso
ns;
Ext
rad
itio
nis
allo
we
din
the
tre
aty
with
Th
aila
nd
for
offe
nd
ers
ag
ain
stw
ho
mju
dic
ialp
en
alty
ha
sb
ee
np
ron
ou
nce
d;h
ow
eve
r,th
isd
oe
sn
ot
pe
rmit
ext
rad
itio
nfo
rp
ers
on
sth
at
ha
vea
lre
ad
yb
eg
un
tose
rve
the
irse
nte
nce
;
Th
ed
om
est
icla
wis
no
tco
mp
atib
lew
ithth
eU
NC
AC
pro
visi
on
.
Th
eU
NC
AC
am
biti
on
isn
ot
refle
cte
din
the
exi
stin
ga
rra
ng
em
en
t;
Th
ep
roh
ibiti
on
inth
eE
A,
19
74
on
ext
rad
itio
nm
ay
ha
vea
rise
no
ut
of
con
cern
tha
to
ffen
de
rsm
ay
be
sub
ject
tom
istr
ea
tme
nt
or
wo
uld
avo
idp
un
ish
me
nt
inth
eir
ow
nco
un
tyd
ue
top
olit
ica
lp
rote
ctio
n.
Th
eri
sko
fse
nte
nce
nu
llific
atio
nca
nb
ep
rote
cte
da
ga
inst
an
dth
eU
NC
AC
pro
visi
on
sca
nb
eco
mp
lied
with
ifB
an
gla
de
shco
nsi
de
rsn
eg
otia
ting
bila
tera
ltre
atie
so
nth
eis
sue
of
tra
nsf
er
of
sen
ten
ced
pe
rso
ns
on
aca
seb
yca
seb
asi
s;
Se
ctio
n2
(g)
of
the
EA
,1
97
4m
ay
be
am
en
de
dto
allo
wtr
an
sfe
ro
fse
nte
nce
dp
ers
on
on
aca
seb
yca
seb
asi
s.
132
UN
CA
CP
rov
isio
ns
Do
me
sti
cL
eg
al
/R
eg
ula
tory
Re
gim
eC
om
pa
tib
ilit
yb
etw
ee
nU
NC
AC
an
dD
om
es
tic
Re
gim
e
Co
mp
lian
ce
an
dG
ap
be
twe
en
La
wa
nd
Pra
cti
ce
Re
ma
rks
Art
icle
46
:T
he
art
icle
req
uir
es
the
wid
est
me
asu
reo
fm
utu
all
eg
ala
ssis
tan
ce(M
LA
)in
inve
stig
atio
n,
pro
secu
tion
,ju
dic
ial
pro
cee
din
gs,
ass
et
con
fisca
tion
an
dre
cove
ry;
Su
cha
ssis
tan
ceis
req
uir
ed
spe
cific
ally
for
the
pu
rpo
ses
of
taki
ng
evi
de
nce
,tr
aci
ng
pro
cee
ds
ofc
rim
ea
nd
pro
vid
ing
do
cum
en
tsin
the
reco
very
of
ass
ets
;
Sta
tes
Pa
rtie
sm
ay
de
clin
ea
ssis
tan
ceo
ng
rou
nd
so
fa
bse
nce
of
du
alc
rim
ina
lity;
AS
tate
Pa
rty
ma
yo
ffe
ra
ssis
tan
cein
the
ab
sen
ceo
fd
ua
lcri
min
alit
yth
rou
gh
no
n-
coe
rciv
em
ea
sure
s;
Ina
bse
nce
of
ML
A,
aS
tate
Pa
rty
sha
lld
esi
gn
ate
ace
ntr
ala
uth
ori
tyto
rece
ive
req
ue
sts
for
ML
Aa
nd
info
rmth
eU
NS
ecr
eta
ry-G
en
era
la
cco
rdin
gly
;
Sta
tes
Pa
rtie
ssh
ou
ldco
nsi
de
re
nte
rin
gin
tob
ilate
ralo
rm
ulti
late
ral
ag
ree
me
nts
for
ML
A;
Ga
zett
eN
otif
ica
tion
(UN
-S
OC
-60
27
/07
,d
ate
d2
7A
pri
l,2
00
8)
Th
eC
od
eo
fC
rim
ina
lP
roce
du
re(C
rPC
),1
89
8
Mo
ne
yL
au
nd
eri
ng
Pre
ven
tion
Ord
ina
nce
(ML
PO
),2
00
8
Off
icia
lsS
ecr
ets
Act
,1
92
3
Evi
de
nce
Act
,18
72
Go
vern
me
nt
Se
rva
nts
(Co
nd
uct
)R
ule
s,1
97
9
Ru
les
of
Bu
sin
ess
,1
99
6
Th
eG
ove
rnm
en
tth
rou
gh
ga
zett
en
otif
ica
tion
no
min
ate
dce
ntr
ala
uth
ori
ties
top
rovi
de
ML
Aa
ssis
tan
ceto
the
Sta
tes
Pa
rtie
sfo
re
nsu
rin
gw
ide
stM
LA
;
Th
eG
ove
rnm
en
tor
BB
(in
som
eca
ses)
ma
ysi
gn
MO
U,
an
db
ilate
ralo
rm
ulti
late
ral
ag
ree
me
nts
with
fore
ign
cou
ntr
ies
an
d o
rga
niz
atio
ns
top
reve
nt
mo
ne
yla
un
de
rin
g;
Su
cha
gre
em
en
tsw
illa
llow
the
Go
Bo
rth
eB
Bto
req
ue
st/p
rovi
de
info
rma
tion
inre
spo
nse
tore
qu
est
fro
ma
no
the
rS
tate
Pa
rty
solo
ng
as
itd
oe
sn
ot
aff
ect
na
tion
al
secu
rity
;
Th
ep
rovi
sio
ns
of
ML
PO
will
pre
vail
ove
ro
the
rla
ws
on
dis
clo
sure
as
lon
ga
ssu
chd
iscl
osu
red
oe
sn
ot
thre
ate
nn
atio
na
lse
curi
ty;
Se
ctio
n5
03
(2B
)o
fCrP
Cp
rovi
de
slim
ited
pro
visi
on
sfo
rM
LA
for
evi
de
nce
ga
the
rin
gth
rou
gh
Evi
de
nce
Co
mm
issi
on
sb
utd
oe
sn
ot
con
tain
pro
visi
on
sfo
ro
the
rty
pe
so
fM
LA
;
Th
eC
rPC
au
tho
rize
sth
ein
vest
iga
ting
au
tho
rity
toh
ave
acc
ess
toa
ny
ba
nk
rela
ted
do
cum
en
t/in
form
atio
n.
Th
eB
Bis
au
tho
rize
dto
ha
vea
cce
ssto
ba
nk
acc
ou
nt
info
rma
tion
;
Ina
dd
itio
n,
the
BB
will
be
ab
leto
sha
rein
form
atio
nw
itho
the
rS
tate
sP
art
ies
wh
ere
the
rea
refo
rma
lag
ree
me
nts
;
Ba
ng
lad
esh
no
wh
as
the
ne
cess
ary
leg
alb
asi
sfo
rM
LA
insp
eci
ficco
rru
ptio
n-
rela
ted
are
as,
spe
cific
ally
dis
clo
sure
of
info
rma
tion
an
dfo
rfe
iture
ofa
sse
ts;
Ba
ng
lad
esh
isso
me
wh
at
be
hin
din
ML
Afo
rth
eo
the
ra
spe
cts
ofc
rim
ina
lp
roce
ed
ing
ssu
cha
sin
vest
iga
tion
,p
rose
cutio
n,
an
dju
dic
ialp
roce
ed
ing
sd
ue
toth
ea
bse
nce
of
bila
tera
l/mu
ltila
tera
la
gre
em
en
ts.
Ga
ps
inco
mp
lian
ceca
nb
en
arr
ow
ed
thro
ug
ha
me
nd
ing
do
me
stic
law
sto
incl
ud
ep
rovi
sio
ns
for
ass
istin
gin
inve
stig
atio
na
nd
pro
secu
tion
;
Ba
ng
lad
esh
sho
uld
ne
go
tiate
mo
reb
ilate
ralt
rea
ties;
Do
me
stic
law
ssh
ou
ldp
rom
ote
info
rma
tion
sha
rin
g.
133
UN
CA
CP
rov
isio
ns
Do
me
sti
cL
eg
al
/R
eg
ula
tory
Re
gim
eC
om
pa
tib
ilit
yb
etw
ee
nU
NC
AC
an
dD
om
es
tic
Re
gim
e
Co
mp
lian
ce
an
dG
ap
be
twe
en
La
wa
nd
Pra
cti
ce
Re
ma
rks
ML
Aca
nn
ot
be
refu
sed
on
the
gro
un
ds
of
ba
nk
secr
ecy
or
for
offe
nce
sin
volv
ing
fisca
lma
tte
rs.
Ba
nk
secr
ecy
law
sin
Ba
ng
lad
esh
do
no
tin
terf
ere
with
inte
rna
tion
alc
rim
ina
lin
vest
iga
tion
s;
Do
me
stic
leg
isla
tion
isco
mp
atib
lew
ithth
eU
NC
AC
pro
visi
on
toa
gre
at
ext
en
t.
Art
icle
47
:S
tate
sP
art
ies
are
req
uir
ed
totr
an
sfe
rcr
imin
al
pro
cee
din
gs
for
off
en
ces
un
de
rth
eU
NC
AC
toa
no
the
rS
tate
Pa
rty
inth
ein
tere
sto
fp
rop
er
ad
min
istr
atio
no
fju
stic
e.
No
leg
alp
rovi
sio
nT
he
reis
no
dir
ect
pro
visi
on
for
the
tra
nsf
er
of
leg
al
pro
cee
din
gs
toa
no
the
rS
tate
Pa
rty.
Th
ere
qu
ire
me
ntu
nd
er
this
art
icle
issi
gn
ifica
nt,
as
corr
up
tion
rela
ted
off
en
ces
are
ofte
nco
mm
itte
din
seve
ralj
uri
sdic
tion
s.T
hu
sit
isp
ract
ica
lan
dfa
ire
rfo
ra
llco
nce
rne
dto
con
solid
ate
the
case
ino
ne
pla
ce.
Ne
wla
ws
ma
yb
ein
tro
du
ced
wh
ich
allo
wco
urt
so
rth
eG
ove
rnm
en
tto
tra
nsf
er
pro
cee
din
gs
toa
no
the
rS
tate
Pa
rty
ina
pp
rop
ria
teci
rcu
mst
an
ces.
Art
icle
48
:S
tate
sP
art
ies
are
req
uir
ed
to:
stre
ng
the
nth
eco
mm
un
ica
tion
cha
nn
els
am
on
gre
spe
ctiv
ela
we
nfo
rce
me
nta
uth
ori
ties
too
bta
inin
form
atio
na
bo
ut
mo
vem
en
tof
pe
rso
ns
an
dp
roce
ed
so
fcri
me
;
pro
vid
ee
ach
oth
er
item
sfo
ra
na
lytic
alo
rin
vest
iga
tive
pu
rpo
sea
nd
coo
pe
rate
for
faci
lita
ting
ea
rly
ide
ntif
ica
tion
ofo
ffe
nce
s;
Me
mb
ers
hip
inIN
TE
RP
OL
allo
ws
ind
ire
ctla
we
nfo
rce
me
nta
ssis
tan
cefr
om
oth
er
sta
tes.
Th
eG
ove
rnm
en
tu
ses
such
ass
ista
nce
toid
en
tify
an
dlo
cate
off
en
de
rs.
Ba
ng
lad
esh
can
exc
ha
ng
ein
form
atio
no
nd
rug
rela
ted
offe
nce
sth
rou
gh
SD
OM
Da
nd
ST
OM
Dto
limite
de
xte
nt;
Als
o,
the
Fin
an
cia
lIn
telli
ge
nce
Un
it(F
IU)
of
the
An
ti-M
on
ey
La
un
de
rin
gD
ep
art
me
nto
fth
eB
Bre
ceiv
ed
ass
ista
nce
fro
mth
eU
Sfo
rin
sta
llatio
no
fso
ftw
are
tod
ete
cta
nd
an
aly
zefin
an
cia
lcri
me
s;
Ba
ng
lad
esh
isye
tto
rea
chin
tern
atio
na
lsta
nd
ard
sin
rela
tion
toco
ntr
olli
ng
offe
nce
sco
mm
itte
du
sin
gm
od
ern
tech
no
log
y;
Th
ere
are
no
ag
ree
me
nts
with
ind
ivid
ua
lSta
tes
Pa
rtie
so
nin
form
atio
ne
xch
an
ge
reg
ard
ing
UN
CA
Co
ffe
nce
s.
Ba
ng
lad
esh
sho
uld
imp
rove
itste
chn
olo
gic
alr
eso
urc
eca
pa
city
.It
can
be
ne
fitfr
om
tech
no
log
ica
lass
ista
nce
,e
xpe
rie
nce
sha
rin
g,a
nd
tra
inin
gfr
om
cou
ntr
ies
wh
ich
ha
vea
de
qu
ate
faci
litie
sfo
rco
ntr
olli
ng
off
en
ces
com
mitt
ed
thro
ug
hu
seo
fm
od
ern
tech
no
log
y;
Itca
nsi
gn
MO
Us
an
de
nte
rin
toa
gre
em
en
tsw
itho
the
rS
tate
sP
art
ies,
pa
rtic
ula
rly
ne
igh
bo
rin
gco
un
trie
sfo
re
xch
an
ge
of
info
rma
tion
on
134
135
UN
CA
CP
rov
isio
ns
Do
me
sti
cL
eg
al
/R
eg
ula
tory
Re
gim
eC
om
pa
tib
ilit
yb
etw
ee
nU
NC
AC
an
dD
om
es
tic
Re
gim
e
Co
mp
lian
ce
an
dG
ap
be
twe
en
La
wa
nd
Pra
cti
ce
Re
ma
rks
exc
ha
ng
ein
form
atio
no
nsp
eci
ficm
ea
ns
an
dm
eth
od
su
sed
inre
late
do
ffen
ces;
pro
mo
tee
xch
an
ge
of
pe
rso
nn
ela
nd
oth
er
exp
ert
s;
coo
pe
rate
tore
spo
nd
toth
eU
NC
AC
offe
nce
sco
mm
itte
dth
rou
gh
use
of
mo
de
rnte
chn
olo
gy.
Th
eG
ove
rnm
en
tals
oo
bta
ine
da
ssis
tan
cefr
om
inte
rna
tion
ale
xpe
rts
for
inve
stig
atio
np
urp
ose
s;
Th
ere
islim
ited
com
pa
tibili
tyw
ithU
NC
AC
.
me
tho
ds
of
com
mitt
ing
offe
nce
s.
Art
icle
49
:T
he
art
icle
pro
mo
tes
the
est
ab
lish
me
nt
of
join
tin
vest
iga
tive
bo
die
sto
con
du
ctjo
int
inve
stig
atio
ns
inm
att
ers
invo
lvin
gm
ore
tha
no
ne
Sta
teP
art
y.
Th
ere
isn
op
rovi
sio
nin
do
me
stic
law
sfo
r fo
rmin
g a
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Chapter 5
Asset Recovery 5.1 Laundering and Proceeds of Crime 5.2 Prevention and Detection of Proceeds of Crime 5.3 Recovery of Proceeds of Crime Matrix on compliance with articles 14, 23, 51-59
Asset Recovery
The transfer of assets obtained illegally and disguised as such constitutesthe bulk of corrupt activities and amounts to disguising public wealth forpersonal gains. Such activities are harmful to the country as well as theworld. Nationally, it reduces the country’s gross domestic product throughleakages of its earnings. On a global scale, the proceeds of such illegalactivities can be used to finance activities like terrorism. Accordingly, theUNCAC strives to recover such assets.
5.1 Laundering and Proceeds of Crime
Article 14: Prevention of money laundering
Under this article, the UNCAC requires that States Parties establish acomprehensive domestic regulatory and supervisory regime to determoney laundering (article 14.1(a)) and ensure that agencies involved incombating money laundering have the ability to cooperate and exchangeinformation at the national and international levels (article 14.1(b)).Moreover, it also requires that States Parties consider: establishing aFinancial Intelligence Unit (FIU) (article 14.1(b)); implementing measures tomonitor cash movements across their borders (article 14.2); implementingmeasures to require financial institutions to collect information onoriginators of electronic fund transfers, maintain information on the entirepayment chain and scrutinize fund transfers with incomplete informationon the originator (article 14.3); and developing and promoting global,regional and bilateral cooperation among relevant agencies to combatmoney laundering (article 14.5).
Bangladesh has taken broad and effective initiatives to deter and detect allforms of money laundering. The Government recently enacted the MoneyLaundering Prevention Ordinance (MLPO), 2008 which repealed theMoney Laundering Prevention Act, 2002. The MLPO provides theBangladesh Bank (BB) with the necessary powers and extensiveresponsibility to prevent and combat money laundering. It identifies banks,financial institutions, insurance companies, money changers, companiesor organizations remitting or transferring money, and any otherorganizations which conduct business with the approval of the BB, as“reporting organizations” for the prevention of money laundering. The BBis authorized to monitor the activities of reporting organizations to combatand prevent money laundering. The reporting organization has a duty toprovide information related to suspicious transactions or any informationas required by the BB.
The MLPO also ensures that the BB has the necessary power to cooperateand exchange information at the national and international levels to controlmoney laundering. Under section 23(2), the BB may share information with 139
the domestic investigating agencies. According to section 26(2), it canshare information with any foreign country or organization with which thereis a MOU or bilateral agreement. Additionally, section 24 of MLPO, 2008provides for the establishment of a Financial Intelligence Unit (FIU) toprevent and control money laundering (details about the FIU are discussedin the section below on article 58).
Furthermore, Bangladesh has the needed mechanism for monitoring cashmovements across the border. Cash (foreign currency) movement iscontrolled by the Guidelines for Foreign Exchange Transaction (GFET),1996 (Vol-1) issued by the BB; chapter 19 of the GFET contains rules forcash movement across the border. On behalf of the Government, theCustoms Department enforces the rules.
At present, there is a lack of technological facilities for collectinginformation on electronic fund transfer. The Department of CurrencyManagement and Payment System of the BB is responsible for monitoringthe payment of financial institutions. The Department is also responsiblefor developing and running an efficient, secured and reliable paymentsystem in Bangladesh. Since the BB does not have direct onlineconnections with banks or other financial institutions, it has not beenpossible to collect information or monitor every electronic fund payment.However, the BB through its on-site and off-site inspections can monitorelectronic fund transfers and collect information on payment chains.Moreover, in specific cases the BB, as the regulatory body, may requirethat financial institutions provide needed information relating to a particularpayment. Nevertheless, to ensure regular monitoring and convenientscrutiny of electronic fund transfers, modernization of the system isessential. In this regard, the Payment System Division has beenestablished under the Department of Currency Management and PaymentSystem of the BB to work on modernizing the payment system. A threeyear project, the Remittance and Payments Partnership Project, wasundertaken in October 2006 with a grant from the Department of Foreignand International Development, UK, to modernize the existing paymentsystems. The goal of this project is to build safe, fast and efficientremittances, to establish an Automated Clearing House that meetsinternational standards, and develop a sustainable payment system inBangladesh. It is hoped that by the end of 2009, the BB will be able toestablish an efficient payment and settlement system based oninternational best practices which will also allow the BB to collectinformation, and monitor and scrutinize electronic fund transfers.
Money laundering plays an important role in carrying out corruption relatedoffences; accordingly, the UNCAC gives emphasis on controlling saidactivity. The MLPO provides the necessary legal basis to combat moneylaundering and open avenues for global, regional and bilateral cooperation
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in this regard. In 2005, Bangladesh became a party to the UN InternationalConvention for the Suppression of Financing of Terrorism, making it now aparty to all 13 UN conventions on suppressing and financing terrorism.Bangladesh is also a member of the Asia Pacific Group on MoneyLaundering. In addition, under section 26 of the MLPO, the Government,or in appropriate cases the BB, may sign memorandum of understanding(MOU), and bilateral or multilateral agreements with foreign governmentsor organizations to control money laundering. Once such MOUs oragreements are signed, the BB will be able to cooperate in informationsharing and confiscation of stolen property and the FIU will be able toshare information related to “suspicious transactions” with FIUs of othercountries. However, the existence of a domestic legal basis alone is notenough to ensure cooperation. Given that, Bangladesh is in the process ofinitiating MOUs and agreements with different countries, which will createmechanisms for greater cooperation in combating money laundering.
Article 23: Laundering of proceeds of crime
The UNCAC requires that States Parties establish four offences related tomoney laundering. The first offence relates to the conversion or transfer ofthe proceeds of crime for the purpose of concealing or disguising the illicitorigin of property or of helping any person who is involved in thecommission of the predicate offence to evade the legal consequences ofhis/her actions (article 23.1(a)(i)). The next offence is the concealment ordisguise of the nature, source, location, disposition, movement, ownershipof, or rights with respect to the proceeds of crime (article 23.1(a)(ii)). Thethird offence is the acquisition, possession or use of proceeds of crimeknowing, at the time of receipt, that such property is the result of crime(article 23.1(b)(i)). The fourth offence involves the participation inconspiracy to commit, or attempts to aid, abet, facilitate and counsel thecommission of any of the offences prohibited by article 23 (article23.1(b)(ii)). States Parties must apply these offences to proceedsgenerated by “the widest range of predicate offences” (article 23.2(a)). Inaddition, States Parties are required to criminalize any “predicate offence”in relation to the transfer of proceeds of crime (article 23.2(b)). However,dual criminality is necessary for offences committed in a different nation’sjurisdiction to be considered a predicate offence (article 23.2(c)). StatesParties must furnish copies of their laws giving effect to article 23 and ofany subsequent changes to such laws, or a description thereof, to theSecretary-General of the United Nations (article 23.2(d)). However, theConvention permits States Parties to not apply money laundering offencesto those who have committed the predicate offence if the constitution orfundamental legal principles of those States do not allow the prosecutionand punishment of an offender for both the predicate offence and thelaundering of proceeds from that offence (article 23.2(e)).
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Money laundering was declared an offence in Bangladesh through theenactment of the Money Laundering Prevention Act (MLPA) of April 2002.However, the Act had several shortcomings, particularly in relation to thedefinition of money laundering and an inadequate list of reporting agencies.As mentioned above, the Money Laundering Prevention Ordinance(MLPO), 2008 was enacted, replacing the MLPA, 2002, to address thoseissues and bring the domestic law in line with the UNCAC requirements.Despite this, the circulars and guidance notes on prevention of moneylaundering issued by the BB under the MLPA, 2002 continue to be in effect.
The Ordinance defines “money laundering” in an extensive way to includethe transfer, conversion, remitting abroad or bringing from abroad toBangladesh the proceeds or properties acquired through the commissionof a predicate offence for the purpose of concealing or disguising the illicitorigin of the property or illegal transfer of properties acquired or earnedthrough legal or illegal means (MLPO, section 2). Moreover, conducting afinancial transaction with the intent to avoid a reporting requirement,engaging in activities so that the illegitimate source of funds or propertycan be concealed or disguised, and attempting and assisting in the abovementioned conduct will also amount to money laundering. Moneylaundering is a non-bailable criminal offence; the penalty can be up toseven years imprisonment and forfeiture of the property derived frompredicate offence. Special courts established under the Criminal LawAmendment Act, 1958 have jurisdiction to try cases of money laundering.Such courts can take cognizance of offences only at the written complaintmade by the ACC.
The MLPO provides a list of 16 predicate offences, namely: corruption andbribery; counterfeiting currency; counterfeiting documents; extortion;fraud; forgery; illicit arms trafficking; illicit dealing in narcotic drugs andpsychotropic substances; illicit dealing in stolen and other goods;kidnapping, illegal restraint, and hostage taking; murder, grievous bodilyinjury; woman and child trafficking; smuggling and unauthorized cross-border transfer of domestic and foreign currency; robbery or theft;trafficking in human beings; and migrant smuggling and dowry. TheOrdinance also contains a provision to incorporate more offences throughgazette notification. All of the predicate offences listed in the MLPO areseparate offences under different legislation. Money laundering is anoffence under the schedule of the Anti-Corruption Commission (ACC)Act, 2004 and will be tried by special judges. Section 5(7) of the CriminalLaw Amendment Act, 1958 makes an exception to the joinder of chargesand empowers special judges to try more than one offence charged in thesame trial. Accordingly, with regard to legal action in Bangladesh, there isno bar against prosecuting both the predicate offence and the launderingoffence even if the laundered property was acquired through thecommission of the predicate offence.
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The MLPO empowers the BB to supervise the activities of reportingorganizations. Additionally, it authorizes the ACC to investigate all offencesrelated to money laundering and take appropriate steps to address anyproblems related to the detection of money laundering. The MLPO requiresreporting organizations to accurately identify customers and to reportsuspicious transactions to the BB. It also requires that reportingorganizations preserve customer information while an account is open andto continue to keep such information for five years from the date theaccount is closed. A reporting organization must supply this information tothe BB upon request and inform the BB of any suspicious transactions.The MLPO allows the BB to impose fines or in appropriate cases, cancelthe license or inform the licensing authority of the reporting organizationto take necessary action against the concerned reporting organization forfailure or negligence.
Banks in Bangladesh are implementing procedures and “Know YourCustomer” (KYC) practices as required by the MLPO. A detailed “GuidanceNote on Prevention of Money Laundering” has been circulated amongbanks and financial institutions. Banks are also required to have an Anti-Money Laundering Compliance Unit in their head office and designatedAnti-Money Laundering Compliance Officers on anti-money laundering(AML) issues in bank branches. The BB has held discussions with all ChiefCompliance Officers about their obligations, along with conducting regulartraining programs for these officers. Additionally, the BB has heightenedpolice interest in money laundering and terrorist financing. Regionalworkshops around the country have also been conducted with the BBinstructors.
The Bangladesh Bank received 466 suspicious transaction reports sincethe MLPA was passed in 2002. Of these, the BB has referred 51 cases tothe ACC and 21 to the Criminal Investigation Department (CID). Chargesheets/final reports have been issued in 158 instances, 78 of which areunder investigation, while 121 are at the trial stage. Additionally, a few localbanks were fined for non-compliance with the BB directives.
The MLPO has made progress in ensuring the necessary legal regime forcontrolling money laundering making the domestic legal systemcompatible with the requirements of the UNCAC. Despite thisadvancement, the GoB’s money laundering prevention regime requiresstrengthening to comply with international standards. Although Section 28of MLPO contains a safe harbor provision, it does not protect all thereporting officials. Accordingly, legislation should include safe harborprovisions in order to protect reporting individuals, along with bankernegligence accountability that would make individual bankers responsiblefor failure to report laundering activity. Additionally, the Government hasyet to furnish copies of its laws giving effect to article 23, and subsequent
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changes to such laws, to the Secretary-General of the UN. Accordingly, theGovernment should take initiative to make such notification.
Article 58: Financial intelligence unit
Article 58 of the UNCAC requires the establishment of a FinancialIntelligence Unit (FIU) for the purposes of receiving, analyzing anddisseminating reports of suspicious transactions to competent authorities,as well as for preventing the transfer and aiding in the recovery of proceedsof offences established within the Convention.
Section 24 of the MLPO provides the legal basis for establishing aFinancial Intelligence Unit (FIU). A FIU was established within the Anti-Money Laundering Department (AMLD) of the BB in March 2007. Officersfrom the AMLD at various levels, from Assistant Director to ExecutiveDirector, are members of the FIU. The FIU aims to combat financial crimesand retrieve assets and money kept overseas by graft suspects. It focuseson receiving, analyzing and disseminating information to detect suspicioustransactions. The FIU also disseminates information to law enforcementagencies so that they may conduct further investigation and commenceproceedings in appropriate cases, along with using such information totrace, seize and confiscate the respective assets. Additionally, the AMLDrequires banks to have a reporting chain for suspicious transactionswhereby the Chief AML Compliance Officers will in turn report suchtransactions to the FIU.
Under the existing laws, the BB may share information with domestic lawenforcement agencies and other States Parties with which theGovernment or the BB has a MOU permitting such action. The FIU’seffectiveness will be largely enhanced upon Bangladesh’s membershipinto the Egmont Group, a coordinating body for the internationalconsortium of FIUs that promotes and enhances international cooperationin AML and counter-terrorist financing. The Group, with its Secretariat inToronto, Canada, has a membership of 106 FIUs. Preparations areunderway to apply for membership in the Egmont Group. Bangladesh hasfulfilled certain membership conditions, such as amendment of lawsrelating to money laundering and enactment of the Anti-TerrorismOrdinance, 2008 which contains provisions for criminalizing terrorist-financing. Additionally, to become a member, Bangladesh needssponsorship from two countries; Thailand, Malaysia and Mauritius havealready assured Bangladesh that they will act as sponsors. OnceBangladesh becomes a member, the BB would be able to exchangeinformation and expertise with FIUs of the other countries. Likewise, theFIU would play a key role in facilitating information sharing if there areMLAs between Bangladesh and other States Parties.
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Bangladesh fully complies with the requirements of article 58 of theUNCAC and has taken a variety of steps toward both preventinglaundering and aiding in the recovery of laundered property. Significantlegislation includes the MLPO, which contains provisions for tracing,seizing, confiscating and subsequently returning assets that have beentransferred abroad. Despite the comprehensiveness of the law, to beeffective, the analytical capacities of the FIU would benefit from furtherupgrading. Particularly beneficial would be upgrading the current databaseand intelligence analysis system, which allows for the collection andanalysis of suspicious transaction reports, as well as the dissemination ofsuch information to relevant law enforcement agencies. A lack of training,limited resources, along with outdated computer technology, including nocomputer links with the outlying districts, continue to hinder progress.Additionally, if the FIU has access to the databases of other governmentagencies such as those of the Road Traffic Agency or Immigration andCustoms, it will be able to conduct more effective analysis of suspicioustransactions.
5.2 Prevention and Detection of Proceeds of Crime
Article 51: General provision
Declaring the return of assets as a fundamental principle of theConvention, the article requires States Parties to provide the widestmeasure of cooperation and assistance for the recovery of assets toanother State Party.
There are strong allegations that a considerable amount of money hasbeen siphoned from Bangladesh. Accordingly, the issue of asset recoverythrough international cooperation has been given top priority by theGovernment. In compliance with the UNCAC requirements, theGovernment has nominated the Ministry of Home Affairs and the Office ofthe Attorney General as the central authorities and has duly informed theSecretary-General of the UN that the central authorities are the responsibleagents for requests of mutual legal assistance. In order to broaden thescope of cooperation, a new legal regime was introduced. The MoneyLaundering Prevention Ordinance, 2008 allows the Government, or insome cases the BB, to sign memorandum of understanding (MOU), andbilateral or multilateral agreements with foreign countries to control moneylaundering and provide cooperation for forfeiture or delivery of launderedproperty. Moreover, a high powered Task Force on Repatriation ofSiphoned Money has been formed to recover assets from foreigncountries. The Task Force is also working on facilitating internationalcooperation for asset recovery.
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Article 52: Prevention and detection of transfers of proceeds of crime
The UNCAC requires financial institutions of a State Party to verify theidentity of customers or beneficial owners of high-value accounts, and toconduct enhanced scrutiny of accounts sought or maintained by publicofficials, their family members, and close associates (article 52.1). Inaddition, it requires public officials having foreign accounts to report theirexistence to the relevant authority (article 52.2(b)). States Parties must alsoensure that their financial institutions (FIs) maintain transaction records ofsuch persons for an appropriate period (article 52.3). States Parties areobligated to use their regulatory and oversight bodies to prevent theestablishment of banks that have no physical presence or that are notaffiliated with a regulated financial group (article 52.4). Additionally, StatesParties are required to establish effective financial disclosure systems andprovide appropriate sanctions for non-compliance, and to share thatinformation with other States Parties when necessary to investigate, claimand recover proceeds of UNCAC offences (article 52.5). Moreover, StatesParties must also consider taking necessary measures to require appropriatepublic officials having an interest in or authority over a financial account in aforeign country to report that relationship to the relevant authorities and tomaintain proper records related to such accounts (article 52.6)
The MLPO, 2008 contains different provisions for the prevention anddetection of the transfer of proceeds of crime. The BB, as the regulatoryand supervisory authority, has advised banks to maintain an AMLcompliance policy through the issuance of the detailed Guidance Notes onPrevention of Money Laundering and various circulars on the prevention ofmoney laundering. Banks and FIs are required to have an AML complianceunit in their head office and a designated AML Compliance Officer in eachbank branch. The Anti-Money Laundering Circular No. 2 (17 July, 2002) ofthe BB requires all banks and FIs to maintain the correct and completerecords of customer identity and updated details of transactions. FIs havebeen advised to establish the identity of their customers and businessrelationships through KYC procedures. If the account holder is a publicfigure, the account will automatically become a “High Risk Account.” KYCprofiles of such accounts are to be updated at least annually and checkedfor compliance. Since 2004, the BB has conducted training around thecountry for every bank’s headquarters on KYC practices. However,Bangladesh has yet to have a national identity card for all citizens and thevast majority of Bangladeshis do not have passports. Consequently, it isdifficult to enforce effective customer identification requirements, thoughmost banks have introduced referrals. Other than major cities, bankingrecords are maintained manually with little technological support, althoughthis is slowly changing, especially in head offices. Additionally, accountingprocedures used by the BB may not conform to international standards inevery respect. Still, the present Government has taken initiatives to
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prepare national identity cards for every voter which can be used for otherpurposes too. Lastly, the MLPO does not have any specific provisionsregarding financial disclosure of accounts to other States Parties.However, the MLPO allows the BB to sign MOUs with other countries withregards to financial crime investigation; accordingly, financial disclosure toother States Parties is possible where there are agreements on mutuallegal assistance.
The BB Circular No. 14 (25 September, 2007) requires enhanced securityfor accounts of Politically Exposed Persons (PEPs), i.e., public officialswith prominent public functions in foreign countries or suspects ofcorruption. In compliance with the UNCAC provisions and therecommendations of the Financial Action Task Force (FATF), banks havebeen instructed to have risk management systems for identifying PEPs.Banks are further required to obtain approval from senior managementbefore entering into business relationships with such persons, takereasonable measures for establishing sources of wealth and funds, andconduct ongoing monitoring of such relationships. Bangladesh has alsoresponded to requests from the UN Sanction Committee to freeze financialaccounts of black-listed persons and organizations. However, the scope ofCircular No. 14 is limited to foreign persons only; domestic PEPs andcompanies are outside its scope.
The strict onsite and off-site supervision procedures of the BB are largelycompliant with the Basel Standards setup by the Basel Committee onBanking Supervision which encourages contacts and cooperation amongits members and other banking supervisory authorities. The BB CircularNo. 7 (August 2005) provides clear measures for correspondent bankingrequiring that all banks follow detailed procedures to establish suchrelationships. This includes provisions for collection of information relatingto management, business, location, anti-money laundering activities,monitoring and control systems of the respondent bank. Moreover,Circular No. 7 categorically prohibits the establishment or continuance ofrelationships with “shell banks,” i.e., banks that do not have any activitiesor branches in the country where they are incorporated and that are notmembers of any regulated financial group.
With regard to reporting foreign accounts held by public officials, inaccordance with the provisions of the Government Servants (Conduct)Rules, 1979, public officials are under a duty to submit the details of theirwealth, including bank accounts. Moreover, generally a Bangladeshiresident, i.e., a natural person, bank or firm residing in Bangladesh, is notallowed to open bank accounts in a foreign country. Only an AuthorizedDealer (a bank authorized by the Bangladesh Bank to deal in foreignexchange under the Foreign Exchange Regulation Act, 1947) is free toopen and maintain foreign accounts following the rules under the
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Guidelines for Foreign Exchange Transactions, 1996. Thus, the publicofficials are under a duty to report their foreign accounts and as such, thedomestic regime complies with the UNCAC requirements.
The MLPO has successfully brought the domestic legal regime in linewith the UNCAC requirements relating to the verification of identity ofhigh valued customers, maintenance of transaction details,establishment of financial disclosure systems, and sharing of financialinformation. However, financial institutions should introduce electronicrecord keeping systems all over the country. It is hoped that fullcompliance with article 52 will not only allow Bangladesh to detect thetransfer of proceeds of crime, but will also prevent incidents ofcorruption related offences.
5.3 Recovery of Proceeds of Crime
Article 53: Measures for direct recovery of property
The UNCAC obligates a State Party to allow another State Party to initiatecivil actions in its court for the purposes of establishing title to propertyacquired through the commission of an offence under the UNCAC (article53(a)). The courts must be empowered to order payment of compensationdirectly to such State Party (article 53(b)). Furthermore, States Parties musttake necessary measures to permit their courts or competent authorities,when having to decide on confiscation, to recognize another State Party’sclaim as a legitimate owner of property acquired through the commissionof a corruption offence (article 53(c)).
The domestic legal regime complies with the requirement of article 53with respect to upholding the right to bring civil actions and orderingpayment of compensation. Section 84 of the Code of Civil Procedure,1908 allows a recognized foreign State to initiate a civil suit to enforce aprivate right vested in the head of such State or in any officer of suchState in his/her public capacity. This private right refers to the right of aforeign State against a private individual. Accordingly, under the existingdomestic laws, a State Party will be able to initiate a civil action.Furthermore, if a State is allowed to be a party to a suit, the court will beable to make any order to its favor, including the payment ofcompensation. However, the domestic legal regime is silent onrecognizing the legitimacy of ownership of another State Party. Absenceof specific rules relating to recognition may create unnecessary obstaclesand frustrate the process of disposing or recovering proceeds ofcorruption. Consequently, Bangladesh should consider introducingprovisions with such effect.
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Article 54: Mechanisms for recovery of property through internationalcooperation in confiscation
The UNCAC requires that States Parties: permit their authorities to giveeffect to an order of confiscation issued by a court of another State Party(article 54.1(a)); allow their authorities to order the confiscation of suchproperty of foreign origin by adjudication of money laundering or otheroffences within their jurisdiction or by other procedures under domesticlaw (article 54.1(b)); sanction their competent authorities to freeze or seizeproperty upon a freezing or seizure order issued by a competent authorityof a requesting State Party concerning property eventually subject toconfiscation (article 54.2(a)); and permit their competent authorities tofreeze or seize property upon request when there are sufficient grounds fortaking such actions regarding property eventually subject to confiscation(article 54.2(b)). States Parties should also consider allowing confiscationof property of foreign origin by adjudication of money laundering or otheroffences within their jurisdiction or by other procedures under domesticlaw without a criminal conviction, when the offender cannot be prosecutedby reason of death, flight, absence or in other appropriate cases (article54.1(c)); and take additional measures to permit their authorities topreserve property for confiscation, such as on the basis of a foreign arrestor criminal charge related to the acquisition of such property (article54.2(c)).
Section 26(3) of the MLPO empowers courts, upon request of the BB, togive effect to a confiscation order issued by a court of another State Partyand permit confiscation of such property. Accordingly, the domestic legalregime fully complies with the requirements of article 54.1 paragraphs (a)and (b). Nevertheless, the MLPO only mentions “foreign court orders” forconfiscation and is silent on seizure orders of a “foreign competentauthority.” Accordingly, is it questionable whether the courts ofBangladesh will seize property in response to an order from a foreigncompetent authority.
In relation to freezing and seizure, the courts of Bangladesh have widepowers to freeze and seize property of a person who is accused orconvicted of corruption related offences. Rule 18 of the ACC Rules conferspower to the courts to order the freezing or attachment of a person’sproperty that is allegedly acquired by illegal means or is disproportionateto his/her legal source of income, even before the commencement of trial,at the request of an investigating officer of the ACC. Under section 14 ofthe MLPO, the courts may seize or freeze property situated within oroutside Bangladesh of a person accused of money laundering onapplication by the ACC. Furthermore, property obtained through illegalmeans during procurement procedures or by any abuse of power can befrozen or attached by the courts under rule 15A of the Emergency Power
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Rules, 2007. These domestic provisions allow the court to freeze or seizeproperty of both accused and convicted persons situated within or outsideof the country. Moreover, the court may also respond to a request of aState Party for cooperation regarding freezing or seizing property if suchrequest is made by the central authority under article 46 of the UNCAC, tocomply with the obligation under article 54.2(b).
The domestic law complies with the UNCAC requirement under article 54in relation to giving effect to a foreign court’s seizure order. However, thereare still some areas, such as implementing a seizure order of a foreigncompetent authority or taking action in cases where prosecution has notbegun, that have yet to be addressed. To ensure effective and smoothinternational cooperation Bangladesh should address all the gaps in thedomestic legislation.
Article 55: International cooperation for the purposes of confiscation
Article 55 mandates States Parties to provide assistance to a wide extentto another State Party for confiscation of the proceeds of crime. A StateParty is required to: submit requests for confiscation of proceeds of crimeto its competent authorities for the purpose of obtaining an order ofconfiscation and, if such an order is granted, give effect to it (article55.1(a)); present to its competent authorities an order of confiscationissued by a court with a view to giving it effect (article 55.1(b)); takemeasures to identify, trace, freeze or seize proceeds of crime, property,equipment or other instrumentalities (article 55.2); not construe theprovisions of the article as prejudicial to the right of a bona fide third party(article 55.9); and furnish copies of their laws and regulations that giveeffect to the article and of any subsequent changes of such laws to theSecretary-General of the United Nations (article 55.5). If a State Partymakes the existence of a treaty a condition to taking such steps, it shallconsider the Convention as the sufficient treaty basis (article 55.6).However, a State Party is free to respond to confiscation requests inaccordance with the provisions of its domestic laws or any bilateral ormultilateral agreements with the requesting State (article 55.4). In addition,a State Party may refuse such requests or lift provisional measures on thebasis that it did not receive sufficient and timely evidence or that theproperty is of a de minimis value (article 55.7). In case of refusal or liftingof provisional measures, the requested State Party shall give therequesting State Party an opportunity to present the reasons in favor ofcontinuing the measures (article 55.8). Furthermore, paragraph 3 of thearticle 55 provides procedural requirements to be followed when a requestis made pursuant to this article.
Section 26 of the MLPO allows the domestic courts to order whatever itdeems appropriate, upon request from the BB, for the purposes of giving
150
effect to a confiscation order of the court of a foreign country with whichBangladesh has a MLA agreement. The MLPO is silent about identifying,tracing, freezing or seizing proceeds of crime in response to a request froma State Party. International cooperation in this regard comes within theambit of the UNCAC expectation for MLA as stated in article 46.3(k). Thus,if a State Party makes a request to the central authority of Bangladesh, thecentral authority may take necessary steps to address the request.
In addition, the MLPO recognizes the right of a bona fide third party andprovides procedures for such person to claim the property back if it isconfiscated. Accordingly, the domestic provision is compatible with theUNCAC requirement under article 55.9 which emphasizes protecting bonafide third party rights.
Bangladesh has initiated practical steps in order to enhance internationalcooperation. A high powered Task Force on repatriation of siphonedmoney was set up in October, 2007, headed by the Governor of the BB, towork on recovering laundered assets through international cooperation.The Task Force includes members from the Chief Adviser’s Office, Foreignand Home Ministries, Finance Division, National Board of Revenue,Bangladesh Police, ACC and Office of the Attorney General. For the timebeing, the Task Force agreed to sign MOUs with FIUs of countries whichhave large amounts of siphoned money from Bangladesh, rather than signwith all FIUs in the Egmont network. It is hoped that the Task Force will beeffective in enhancing international cooperation for confiscation and assetrecovery.
Bangladesh has yet to furnish copies of their laws and regulations thatallow international cooperation for confiscation to the Secretary-General ofthe UN. Consequently, the Government should begin the process ofmaking such notification along with other notification obligations.Furthermore, Bangladesh has not made or received any requests forconfiscation of proceeds of offences to or from any State Party. It isdesirable that if Bangladesh makes any request for confiscation, it wouldfollow the procedural requirement under paragraph 3 of article 55.Although some provisions are in place, detailed rules relating to handlingor refusal of confiscation requests have not been established. The actualprocedure and practice will be developed in the future. Thus, Bangladeshlargely complies with the UNCAC requirement of ensuring cooperation forthe objective of confiscation. Cooperation for the purpose of confiscationhas a vital role in asset recovery. Since Bangladesh has given priority to theissue of asset recovery, it should take more practical steps to enhancecooperation for confiscation. In order to achieve this, the GoB shouldenact procedural rules and where necessary, conclude bilateralagreements.
151
Article 56: Special cooperation
Article 56 requires States Parties to disclose information related to theproceeds of corruption to other States Parties on its own motion, for thepurposes of assisting in the initiation or carrying out of investigations,prosecutions or judicial proceedings.
Section 26 of the MLPO, 2008 provides that the Government, or inappropriate cases the BB, may disclose information related to moneylaundering to a foreign country or organization with which Bangladesh hasan agreement. Furthermore, under section 24 of the MLPO, the FIU willalso be able to provide or request information from FIUs of other StatesParties regarding a suspicious transaction where an agreement under theOrdinance is present. Thus, the present legal regime in Bangladeshprovides for the disclosure of information related to money laundering toother States Parties where there is an agreement of mutual legalassistance. However, at present there is no obligation for disclosure ofinformation related to the proceeds of offences without prior request froma State Party. The FIU should play an important role in this regard andshould consider a policy for disclosure of information to other FIUs of itsown accord.
Article 57: Return and disposal of assets
The Convention obligates cooperation among States Parties with respectto returning confiscated property to its prior legitimate owners (article 57.1)and to take measures to enable its competent authorities to return theconfiscated property by taking into account the rights of bona fide thirdparties (article 57.2). States Parties may deduct reasonable expensesincurred for the confiscation process (article 57.4)) and may also considerthe conclusion of agreements or arrangements for the final disposition ofassets on a case by case basis (article 57.5). Furthermore, the requestedState Party should return the confiscated property to a requesting StateParty, prior legitimate owners, or victims of the crime as compensation,depending on the circumstances (article 57.3).
The domestic laws of Bangladesh, relating to the return of disposedproperty are in the developing stage. Section 26 of the recently enactedMLPO allows domestic courts, upon request from the BB, to returnconfiscated property to a foreign state with which Bangladesh has a MLAagreement. Moreover, the court may take into account the rights of bonafide third parties when confiscating property under section 17 of theMLPO. These provisions apply to property which are the proceeds of aspecific crime, namely, money laundering. Bangladesh does not have anyprovisions for the disposal of proceeds for every offence under theUNCAC. It is unclear whether the provision under section 26 of the MLPO
152
will be equally applicable to the proceeds of other offences under theConvention. Additionally, the legal provisions are fairly new and have yet tobe implemented by any court, making it difficult to comment on how thecourt will address issues like identifying legitimate owners and deduction ofreasonable expenses. Bangladesh should consider clarifying the position ofthe present laws and fill gaps by enacting new provisions or rules relatingto the disposal of confiscated property. Further, it may also considerconcluding agreements for final disposition on a case by case basis.
Thus, as far as legal provisions are concerned, the domestic regime islargely in compliance with the UNCAC requirements. For a country likeBangladesh, which experiences a considerable amount of laundering ofcriminal proceeds, it is imperative that extensive cooperation isencouraged with regard to the return and disposal of assets.Consequently, Bangladesh will greatly benefit if it can effectivelyimplement the UNCAC provision for cooperation with respect to return anddisposal of property.
Article 59: Bilateral and multilateral agreements and arrangements
The UNCAC advocates the formulation of bilateral or multilateralagreements between States Parties to enhance effectiveness ofinternational cooperation.
Under Section 26 of the MLPO, the Government, or in some cases theBangladesh Bank, can sign memorandum of understanding, multilateraland bilateral agreements, and any other agreements which are recognizedby conventions or international law, with other governments andorganizations. Once such agreements are made, the Government or theBB will be able to share information relating to money laundering, providecooperation for confiscation and disposal of property, and request for thereturn of property from another State Party. Moreover, formulation ofbilateral or multilateral MLA agreements will open different avenues ofinternational cooperation. Although Bangladesh now has the necessarylegal basis for formulation of such agreements, it will not be able to reapany benefits until it actually concludes agreements for cooperation.Accordingly, Bangladesh should focus on completing these types ofagreements or arrangements with other States Parties.
153
Ch
ap
ter
5A
ss
et
Re
co
ve
ry (
Art
icle
14
, 2
3, 5
1—
59
)
UN
CA
CP
rov
isio
ns
Do
me
sti
cL
eg
al
/R
eg
ula
tory
Re
gim
eC
om
pa
tib
ilit
yb
etw
ee
nU
NC
AC
an
dD
om
es
tic
Re
gim
e
Co
mp
lia
nc
ea
nd
Ga
ps
be
twe
en
La
wa
nd
Pra
cti
ce
Re
ma
rks
Art
icle
14
:S
tate
sP
art
ies
are
req
uir
ed
toe
sta
blis
ha
co
mp
reh
en
siv
ere
gu
lato
rya
nd
su
pe
rvis
ory
fra
me
wo
rkto
co
mb
at
mo
ne
yla
un
de
rin
ga
nd
en
su
reth
at
ag
en
cie
sin
vo
lve
dco
op
era
tea
tth
ein
tern
atio
na
la
nd
na
tion
al
leve
ls.
Sta
teP
art
ies
mu
st
als
oco
nsid
er
esta
blis
hin
ga
Fin
an
cia
lIn
telli
ge
nce
Un
it(F
IU)
to;
•im
ple
me
nt
me
asu
res
tom
on
itor
ca
sh
mo
ve
me
nts
acro
ss
bo
rde
rs;
•re
qu
ire
the
irfin
an
cia
lin
stitu
tio
ns
toco
llect
info
rma
tion
on
the
ori
gin
an
dp
aym
en
tch
ain
of
ele
ctr
on
icfu
nd
tra
nsfe
rsa
nd
scru
tiniz
ein
co
mp
lete
info
rma
tion
on
su
ch
tra
nsfe
rs;a
nd
•d
eve
lop
an
dp
rom
ote
glo
ba
l,re
gio
na
lan
db
ilate
ralc
oo
pe
ratio
na
mo
ng
rele
va
nt
Mo
ne
yL
au
nd
eri
ng
Pre
ve
ntio
nO
rdin
an
ce
(ML
PO
),2
00
8
Mo
ne
yL
au
nd
eri
ng
Pre
ve
ntio
nA
ct
(ML
PA
),2
00
2(r
ep
ea
led
)
Gu
ida
nce
for
Fo
reig
nE
xch
an
ge
Tra
nsa
ctio
ns
(GF
ET
),1
99
6(V
ol.
1)
Ba
ng
lad
esh
ha
sta
ke
nw
ide
initia
tive
sto
de
tect/
de
ter
all
form
so
fm
on
ey
lau
nd
eri
ng
;
Th
eB
an
gla
de
sh
Ba
nk
(BB
)is
au
tho
rize
dto
mo
nito
ra
ctiv
itie
so
f“r
ep
ort
ing
org
an
iza
tio
ns”
(ba
nks,o
the
rfin
an
cia
lin
stitu
tes,
mo
ne
ych
an
ge
rs,
org
an
iza
tion
sre
mittin
g/t
ran
sfe
rrin
gm
on
ey);
Se
ctio
n2
3(2
)o
fM
LP
Oa
llow
sth
eB
Bto
sh
are
info
rma
tion
with
do
me
stic
ag
en
cie
s;
Se
ctio
n2
6(2
)a
llow
sth
eB
Bto
sh
are
info
rma
tion
with
Sta
tes
Pa
rtie
s/o
rga
niz
atio
ns
with
wh
ich
aM
OU
exis
ts;
Th
eM
LP
Oe
mp
ow
ers
the
BB
toco
op
era
tea
nd
exch
an
ge
info
rma
tion
at
the
na
tio
na
la
nd
inte
rna
tion
alle
ve
l;
Se
ctio
n2
4o
fM
LP
Op
rovid
es
for
esta
blis
hin
gth
eF
IU;
At
pre
se
nt,
the
reis
ala
ck
of
tech
no
log
ica
lfa
cili
ties
for
mo
nito
rin
ga
nd
co
llectin
gin
form
atio
no
ne
lectr
on
icfu
nd
tra
nsfe
rs.
Ba
ng
lad
esh
isin
the
pro
ce
ss
of
mo
de
rniz
ing
ele
ctr
on
icp
aym
en
tsyste
m,in
itia
tin
gM
OU
s/a
gre
em
en
tsw
ithd
iffe
ren
tco
un
trie
sa
nd
join
ing
the
Eg
mo
nt
Gro
up
of
FIU
s.
154
UN
CA
CP
rov
isio
ns
Do
me
sti
cL
eg
al
/R
eg
ula
tory
Re
gim
eC
om
pa
tib
ilit
yb
etw
ee
nU
NC
AC
an
dD
om
es
tic
Re
gim
e
Co
mp
lia
nc
ea
nd
Ga
ps
be
twe
en
La
wa
nd
Pra
cti
ce
Re
ma
rks
ag
en
cie
sto
co
mb
at
mo
ne
yla
un
de
rin
g.
Cro
ss-b
ord
er
ca
sh
mo
ve
me
ntis
co
ntr
olle
du
nd
er
the
GF
ET
,1
99
6;
Se
ctio
n2
6o
fth
eM
LP
Op
rovid
es
the
leg
alb
asis
for
glo
ba
l,re
gio
na
lan
db
ilate
ralc
oo
pe
ratio
no
nm
on
ey
lau
nd
eri
ng
.
Art
icle
23
:S
tate
sP
art
ies
are
req
uir
ed
toe
sta
blis
hfo
ur
off
en
ce
sre
late
dto
mo
ne
yla
un
de
rin
g,
sp
ecifi
ca
lly:
•co
nve
rsio
n/t
ran
sfe
ro
fp
roce
ed
so
fcri
me
for
co
nce
alin
gth
eill
icit
ori
gin
of
pro
pe
rty;
•co
nce
alm
en
to
fth
en
atu
re/s
ou
rce
/lo
ca
tio
n/
ow
ne
rsh
ipo
fp
roce
ed
so
fcri
me
;
•a
cq
uis
itio
n/p
osse
ssio
no
ru
se
of
pro
ce
ed
so
fcri
me
kn
ow
ing
its
na
ture
;a
nd
•p
art
icip
atio
n/a
sso
cia
tion
with
/co
nsp
ira
cy
toco
mm
it/f
acili
tate
/co
un
se
loffe
nce
sp
roh
ibite
db
ya
rtic
le2
3.
Sta
teP
art
ies
mu
st
furn
ish
co
pie
so
fth
eir
law
sre
late
dto
art
icle
23
toth
eU
N
Mo
ne
yL
au
nd
eri
ng
Pre
ve
ntio
nO
rdin
an
ce
(ML
PO
),2
00
8
Mo
ne
yL
au
nd
eri
ng
Pre
ve
ntio
nA
ct
(ML
PA
),2
00
2(r
ep
ea
led
)
Cir
cu
lars
an
dG
uid
an
ce
No
tes
issu
ed
by
the
BB
un
de
rM
LP
A.
Cri
min
alL
aw
Am
en
dm
en
tA
ct,
19
58
Se
ctio
n2
of
the
ML
PO
de
fine
sm
on
ey
lau
nd
eri
ng
as
the
tra
nsfe
r,co
nve
rsio
n,
rem
ittin
ga
bro
ad
or
bri
ng
ing
fro
ma
bro
ad
toB
an
gla
de
sh
the
pro
ce
ed
so
rp
rop
ert
ies
acq
uir
ed
thro
ug
hth
eco
mm
issio
no
fa
pre
dic
ate
off
en
ce
for
the
pu
rpo
se
ofco
nce
alin
go
rd
isg
uis
ing
the
illic
ito
rig
ino
fth
ep
rop
ert
yo
rill
eg
al
tra
nsfe
ro
fp
rop
ert
ies
acq
uir
ed
or
ea
rne
dth
rou
gh
leg
alo
rill
eg
alm
ea
ns;
Co
nd
uctin
go
ra
tte
mp
ting
afin
an
cia
ltr
an
sa
ctio
nto
avo
ida
rep
ort
ing
req
uir
em
en
tw
illa
lso
am
ou
nt
tom
on
ey
lau
nd
eri
ng
;
Mo
ne
yla
un
de
rin
gis
an
on
-b
aila
ble
cri
min
alo
ffe
nce
with
ap
en
alty
up
tose
ve
nye
ars
imp
riso
nm
en
ta
nd
Th
eB
an
gla
de
sh
Ba
nk
rece
ive
d4
66
su
sp
icio
us
tra
nsa
ctio
nre
po
rts
sin
ce
the
ML
PA
wa
sp
asse
din
20
02
.O
fth
ese
,th
eB
Bh
as
refe
rre
d5
1ca
se
sto
the
AC
Ca
nd
21
toth
eC
rim
ina
lIn
ve
stig
atio
nD
ep
art
me
nt(C
ID).
Ch
arg
esh
ee
ts/f
ina
lre
po
rts
ha
ve
be
en
issu
ed
in1
58
insta
nce
s,7
8o
fw
hic
ha
reu
nd
er
inve
stig
atio
n,
wh
ile1
21
are
at
the
tria
lsta
ge
.A
dd
itio
na
lly,a
few
loca
lb
an
ks
we
refin
ed
for
no
n-
co
mp
lian
ce
with
the
BB
dir
ectiv
es;
Se
ctio
n2
8o
fth
eM
LP
Oco
nta
ins
asa
feh
arb
or
pro
vis
ion
bu
tit
do
es
no
tp
rote
ct
all
rep
ort
ing
off
icia
ls;
Th
eM
PL
Oh
as
ma
de
pro
gre
ss
inm
akin
gth
ed
om
estic
leg
alre
gim
e
Le
gis
latio
nsh
ou
ldp
rovid
esa
feh
arb
or
pro
vis
ion
sfo
rre
po
rtin
gin
div
idu
ala
nd
pro
mo
teb
an
ke
rn
eg
lige
nce
acco
un
tab
ility
:
Th
eG
ove
rnm
en
tsh
ou
ldta
ke
initia
tive
tofu
rnis
hco
pie
so
fd
om
estic
law
sto
the
UN
Se
cre
tary
-Ge
ne
ral.
155
UN
CA
CP
rov
isio
ns
Do
me
sti
cL
eg
al
/R
eg
ula
tory
Re
gim
eC
om
pa
tib
ilit
yb
etw
ee
nU
NC
AC
an
dD
om
es
tic
Re
gim
e
Co
mp
lia
nc
ea
nd
Ga
ps
be
twe
en
La
wa
nd
Pra
cti
ce
Re
ma
rks
Se
cre
tary
-Ge
ne
ral;
Sta
tes
pa
rtie
sa
rea
llow
ed
ton
ot
ap
ply
mo
ne
yla
un
de
rin
go
ffe
nce
sfo
ro
ffe
nd
ers
of
pre
dic
ate
offe
nce
s.
fine
s/fo
rfe
itu
reo
fp
rop
ert
y;
Sp
ecia
lCo
urt
se
sta
blis
he
du
nd
er
the
Cri
min
alL
aw
Am
en
dm
en
tA
ct,
19
58
ha
ve
juri
sd
ictio
nto
try
mo
ne
yla
un
de
rin
gca
se
sa
tth
ew
ritt
en
co
mp
lain
t b
y A
CC
;T
he
ML
PO
als
op
rovid
es
alis
to
f1
6p
red
ica
teo
ffe
nce
s;
the
reis
no
ba
rto
pro
se
cu
ting
bo
thth
em
on
ey
lau
nd
eri
ng
offe
nce
an
dth
ep
red
ica
teo
ffe
nce
;T
he
ML
PO
em
po
we
rsth
eB
Bto
su
pe
rvis
ea
ctiv
itie
so
fre
po
rtin
go
rga
niz
atio
ns;
Th
eM
LP
Ore
qu
ire
sre
po
rtin
go
rga
niz
atio
ns
toid
en
tify
cu
sto
me
rsa
ccu
rate
lya
nd
tore
po
rtsu
sp
icio
us
tra
nsa
ctio
ns
toth
eB
B.
Th
eB
Bm
ay
imp
ose
fin
es
or
ma
yca
nce
llic
en
se
sfo
rfa
ilure
tore
tain
or
rep
ort
da
tao
nsu
sp
icio
us
tra
nsa
ctio
ns.
co
mp
atib
lew
ith
the
UN
CA
Cre
qu
ire
me
nts
.H
ow
eve
r,a
nti-
mo
ne
yla
un
de
rin
gsch
em
es
req
uir
estr
en
gth
en
ing
toco
mp
lyw
ith
inte
rna
tio
na
lsta
nd
ard
s;
Th
eG
ove
rnm
en
tis
ye
tto
furn
ish
co
pie
so
fd
om
estic
law
sto
the
UN
Se
cre
tary
-G
en
era
l.
Art
icle
51
:T
he
art
icle
req
uir
es
the
wid
est
me
asu
reo
fco
op
era
tio
na
nd
assis
tan
ce
for
asse
tre
co
ve
ryto
an
oth
er
Sta
teP
art
y.
Mo
ne
yL
au
nd
eri
ng
Pre
ve
ntio
nO
rdin
an
ce
(ML
PO
),2
00
8
No
tific
atio
nto
UN
Se
cre
tary
-Ge
ne
ral
Th
eG
ove
rnm
en
th
as
no
min
ate
dth
eM
inis
try
of
Ho
me
Aff
air
sa
nd
the
Att
orn
ey
Ge
ne
ral’s
Offic
ea
sth
ece
ntr
ala
uth
ori
tyre
sp
on
sib
lefo
rre
qu
ests
of
Ah
igh
-po
we
red
Ta
sk
Fo
rce
on
Re
pa
tria
tion
of
Sip
ho
ne
dM
on
ey
ha
sb
ee
nfo
rme
dto
reco
ve
ra
sse
tsfr
om
fore
ign
co
un
trie
s.
156
UN
CA
CP
rov
isio
ns
Do
me
sti
cL
eg
al
/R
eg
ula
tory
Re
gim
eC
om
pa
tib
ilit
yb
etw
ee
nU
NC
AC
an
dD
om
es
tic
Re
gim
e
Co
mp
lia
nc
ea
nd
Ga
ps
be
twe
en
La
wa
nd
Pra
cti
ce
Re
ma
rks
mu
tua
la
ssis
tan
ce
an
dh
as
du
lyin
form
ed
the
UN
Se
cre
tary
-Ge
ne
ral;
Th
eM
LP
Oe
mp
ow
ers
the
Go
ve
rnm
en
t,a
nd
the
BB
wh
ere
ap
pro
pri
ate
,to
sig
nM
OU
/ML
Ato
co
ntr
ol
mo
ne
yla
un
de
rin
ga
nd
co
op
era
tefo
rfo
rfe
iture
or
tra
nsfe
ro
fla
un
de
red
pro
pe
rty.
Art
icle
52
:T
he
UN
CA
Cre
qu
ire
sfin
an
cia
lin
stitu
tio
ns
(FIs
)o
fS
tate
sP
art
ies
tove
rify
the
ide
ntit
yo
fcu
sto
me
rso
rth
eb
en
eficia
lo
wn
ers
of
hig
h-
va
lue
acco
un
tso
fp
ub
lico
ffic
ials
,th
eir
fam
ilym
em
be
rsa
nd
clo
se
asso
cia
tes;
Pu
blic
off
icia
lsth
at
ha
ve
fore
ign
acco
un
tsa
rere
qu
ire
dto
rep
ort
itto
the
rele
va
nt
au
tho
rity
;S
tate
sP
art
ies
mu
st
en
su
reth
at
the
irfin
an
cia
lin
stitu
tio
ns
ma
inta
intr
an
sa
ctio
nre
co
rds
ofsu
ch
pe
rso
ns
for
an
ap
pro
pri
ate
pe
rio
d;
FIs
are
als
od
isco
ura
ge
dfr
om
de
alin
gw
ith
ba
nks
Mo
ne
yL
au
nd
eri
ng
Pre
ve
ntio
nO
rdin
an
ce
(ML
PO
),2
00
8
BB
Gu
ida
nce
No
teo
nP
reve
ntio
no
fM
on
ey
La
un
de
rin
g
An
ti-M
on
ey
La
un
de
rin
gC
ircu
lar
No
.2
(Ju
ly,
20
02
),th
eB
an
gla
de
sh
Ba
nk
An
ti-M
on
ey
La
un
de
rin
gC
ircu
lar
No
.7
(Au
gu
st
20
05
),th
eB
an
gla
de
sh
Ba
nk
An
ti-M
on
ey
La
un
de
rin
gC
ircu
lar
No
.1
4(S
ep
tem
be
r2
00
7),
the
Ba
ng
lad
esh
Ba
nk
Th
e G
ove
rnm
en
t S
erv
en
ts(C
on
du
ct)
Ru
les, 1
97
9
Cir
cu
lar
No
.2
req
uir
es
all
ba
nks
an
dF
Isto
ma
inta
inth
eco
rre
ct
an
dco
mp
lete
reco
rds
of
ide
ntity
an
du
pd
ate
dd
eta
ilso
ftr
an
sa
ctio
n;
Acco
rdin
gto
Cir
cu
lar
No
.7
,b
an
ks
an
dF
Isa
rere
qu
ire
dto
follo
wd
eta
iled
pro
ce
du
res
be
fore
esta
blis
hin
gco
rre
sp
on
de
nt
ba
nkin
g;
Un
de
rC
ircu
lar
No
.7
,F
Isa
ren
ota
llow
ed
toe
sta
blis
ho
rco
ntin
ue
rela
tion
sh
ips
with
“sh
ell
ba
nks,”
i.e
.,b
an
ks
tha
td
on
ot
ha
ve
an
ya
ctiv
itie
so
rb
ran
ch
es
inth
eco
un
try
wh
ere
itis
inco
rpo
rate
da
nd
no
ta
me
mb
er
of
an
yre
gu
late
dfin
an
cia
lg
rou
p;
Ba
ng
lad
esh
do
es
no
th
ave
an
atio
na
lid
en
tity
ca
rda
nd
mo
st
citiz
en
sd
on
ot
ha
ve
pa
ssp
ort
s;
as
su
ch
itis
diffic
ult
toe
nfo
rce
eff
ectiv
ecu
sto
me
rid
en
tific
atio
nre
qu
ire
me
nts
,th
ou
gh
mo
st
ba
nks
ha
ve
intr
od
uce
dre
ferr
als
.O
the
rth
an
inm
ajo
rcitie
s,
ba
nkin
gre
co
rds
are
ma
inta
ine
dm
an
ua
llyw
ithlit
tlete
ch
no
log
ica
lsu
pp
ort
,a
ltho
ug
hth
isis
slo
wly
ch
an
gin
g;
Th
esco
pe
of
the
Cir
cu
lar
No
.1
4is
limite
dto
fore
ign
pe
rso
ns,
do
me
stic
PE
Ps
an
dco
mp
an
ies
are
ou
tsid
eits
rem
it;
Co
op
era
tio
nre
ga
rdin
gfin
an
cia
ld
isclo
su
reo
fa
cco
un
tsto
oth
er
Sta
tes
Th
ep
rese
nt
Go
ve
rnm
en
th
as
take
nin
itia
tive
top
rep
are
na
tio
na
lid
en
tity
ca
rds;
Th
efin
an
cia
lin
stit
utio
ns
sh
ou
ldin
tro
du
ce
ele
ctr
on
icre
co
rdke
ep
ing
syste
ma
llo
ve
rth
eco
un
try.
.
157
UN
CA
CP
rov
isio
ns
Do
me
sti
cL
eg
al
/R
eg
ula
tory
Re
gim
eC
om
pa
tib
ilit
yb
etw
ee
nU
NC
AC
an
dD
om
es
tic
Re
gim
e
Co
mp
lia
nc
ea
nd
Ga
ps
be
twe
en
La
wa
nd
Pra
cti
ce
Re
ma
rks
tha
th
ave
no
ph
ysic
al
pre
se
nce
;
Sta
tes
Pa
rtie
sa
rea
lso
req
uir
ed
toh
ave
eff
ectiv
ed
isclo
su
resyste
ms
an
dp
rovid
ea
pp
rop
ria
tesa
nctio
ns
for
no
n-
co
mp
lian
ce
;
Pu
blic
off
icia
lsh
avin
ga
cco
un
tsin
afo
reig
nco
un
try
mu
stre
po
rtit
toa
pp
rop
ria
tea
uth
ori
tie
s.
Gu
ide
line
sfo
rF
ore
ign
Exch
an
ge
Tra
nsa
ctio
ns,
19
96
Fo
reig
nE
xch
an
ge
Re
gu
latio
nA
ct,
19
47
Fo
llow
ing
Cir
cu
lar
No
.1
4a
nd
inco
mp
lian
ce
with
the
UN
CA
Cp
rovis
ion
an
dth
ere
co
mm
en
da
tion
so
fth
eF
ina
ncia
lA
ctio
nT
ask
Fo
rce
,b
an
ks
ha
ve
be
en
instr
ucte
dto
follo
wsp
ecific
pro
ce
du
res
inre
latio
nto
Po
litic
ally
Exp
ose
dP
ers
on
s(P
EP
s);
Th
e C
on
du
ct R
ule
sre
qu
ire
sp
ub
lico
ffic
ials
tosu
bm
itth
ed
eta
ilso
fth
eir
we
alth
,in
clu
din
gb
an
ka
cco
un
ts;
Ge
ne
rally
aB
an
gla
de
sh
ire
sid
en
tis
no
ta
llow
ed
too
pe
nb
an
ka
cco
un
tsin
afo
reig
nco
un
try;
Ba
nks
an
dF
Isa
rere
qu
ire
dto
ha
ve
an
an
ti-m
on
ey
lau
nd
eri
ng
co
mp
lian
ce
un
itin
the
irh
ea
do
ffic
es
an
da
de
sig
na
ted
An
ti-M
on
ey
La
un
de
rin
gC
om
plia
nce
Off
ice
rin
ea
ch
ba
nk
bra
nch
;
Ba
nks
an
dF
Ish
ave
be
en
ad
vis
ed
toe
sta
blis
hth
eid
en
tity
of
the
ircu
sto
me
rsa
nd
bu
sin
ess
rela
tio
nsh
ips
thro
ug
hK
no
wY
ou
rC
lien
tp
roce
du
res.
Pa
rtie
sis
po
ssib
leo
nly
wh
ere
ag
ree
me
nt
on
mu
tua
lle
ga
lassis
tan
ce
exis
ts.
Th
eM
LP
Oa
llow
sth
eB
Bto
sig
nM
OU
sw
ith
oth
er
co
un
trie
sw
ith
reg
ard
sto
fina
ncia
lcri
me
inve
stig
atio
n;
Th
eB
Bh
as
ad
vis
ed
ba
nks
tom
ain
tain
an
an
ti-m
on
ey
lau
nd
eri
ng
co
mp
lian
ce
po
licy
tho
ug
hth
eis
su
an
ce
ofd
eta
iled
Gu
ida
nce
No
tes
on
Pre
ve
ntio
no
fM
on
ey
La
un
de
rin
g;
Ba
ng
lad
esh
ha
sre
sp
on
de
dto
req
ue
sts
fro
mth
eU
NS
an
ctio
nC
om
mitte
eto
fre
eze
fina
ncia
la
cco
un
tso
fb
lack-
liste
dp
ers
on
s.
158
UN
CA
CP
rov
isio
ns
Do
me
sti
cL
eg
al
/R
eg
ula
tory
Re
gim
eC
om
pa
tib
ilit
yb
etw
ee
nU
NC
AC
an
dD
om
es
tic
Re
gim
e
Co
mp
lia
nc
ea
nd
Ga
ps
be
twe
en
La
wa
nd
Pra
cti
ce
Re
ma
rks
Art
icle
53
:S
tate
sP
art
ies
are
req
uir
ed
toa
llow
an
oth
er
Sta
teP
art
yto
initia
tea
civ
ila
ctio
nin
itsco
urt
toe
sta
blis
htitle
top
rop
ert
ya
cq
uir
ed
thro
ug
hco
mm
issio
no
fa
nU
NC
AC
offe
nce
an
dco
urt
ssh
ou
ldb
ee
mp
ow
ere
dto
ord
er
pa
ym
en
to
fco
mp
en
sa
tion
dir
ectly
;S
tate
sP
art
ies
mu
st
take
ne
ce
ssa
rym
ea
su
res
top
erm
itth
eir
co
urt
so
rco
mp
ete
nta
uth
ori
tie
s,
wh
en
ha
vin
gto
de
cid
eo
nco
nfis
ca
tio
n,
tore
co
gn
ize
an
oth
er
Sta
teP
art
y’s
cla
ima
sa
leg
itim
ate
ow
ne
ro
fp
rop
ert
ya
cq
uir
ed
thro
ug
hth
eco
mm
issio
no
fa
co
rru
ptio
no
ffe
nce
.
Th
e C
od
e o
f C
ivil
Pro
ce
du
re, 1
90
8S
ectio
n8
4a
llow
sa
reco
gn
ize
dfo
reig
nS
tate
toin
itia
tea
civ
ilsu
itto
en
forc
ea
pri
va
teri
gh
t;
Th
ep
riva
teri
gh
tre
ferr
ed
tore
co
gn
ize
sth
eri
gh
to
fa
fore
ign
Sta
tea
ga
inst
ap
riva
tein
div
idu
al.
Acco
rdin
gly
,a
Sta
teP
art
yw
illb
ea
ble
toin
itia
teciv
ila
ctio
nu
nd
er
do
me
stic
law
s.
Fu
rth
er,
ifa
Sta
teP
art
yis
allo
we
dto
be
pa
rty
toa
su
it,
co
urt
sca
nm
ake
an
yo
rde
rto
its
favo
r,in
clu
din
gco
mp
en
sa
tion
.
Th
ere
isn
od
ire
ct
do
me
stic
leg
alp
rovis
ion
on
reco
gn
izin
gth
ele
gitim
acy
ofo
wn
ers
hip
ofa
no
the
rS
tate
Pa
rty.
Ba
ng
lad
esh
sh
ou
ldco
nsid
er
intr
od
ucin
gp
rovis
ion
sre
ga
rdin
gre
co
gn
itio
no
fth
ele
gitim
acy
ofo
wn
ers
hip
.
Art
icle
54
:S
tate
sP
art
ies
are
req
uir
ed
top
erm
itth
eir
au
tho
ritie
sto
giv
ee
ffe
ct
toa
no
rde
ro
fco
nfis
ca
tio
nis
su
ed
by
aco
urt
of
an
oth
er
Sta
teP
art
ya
nd
allo
wth
eir
au
tho
ritie
sto
ord
er
the
co
nfis
ca
tion
of
su
ch
pro
pe
rty;
Sta
tes
Pa
rtie
sm
ust
sa
nctio
nth
eir
co
mp
ete
nt
au
tho
ritie
sto
fre
eze
or
Mo
ne
yL
au
nd
eri
ng
Pre
ve
ntio
nO
rdin
an
ce
(ML
PO
),2
00
8
Em
erg
en
cy
Po
we
rR
ule
s,
20
07
Se
ctio
n2
6(3
)o
fth
eM
LP
Oe
mp
ow
ers
aco
urt
,u
po
nre
qu
est
fro
mth
eB
B,
tog
ive
eff
ect
toa
co
nfis
ca
tio
no
rde
ris
su
ed
by
aco
urt
of
an
oth
er
Sta
teP
art
y;
Fu
rth
er,
un
de
rth
eE
me
rge
ncy
Po
we
rR
ule
s,
co
urt
sh
ave
wid
ep
ow
er
tofr
ee
ze
an
dse
ize
pro
pe
rty
ofa
pe
rso
na
ccu
se
do
r
Th
eM
LP
Oo
nly
me
ntio
ns
fore
ign
co
urt
ord
ers
for
co
nfis
ca
tio
n;it
isq
ue
stio
na
ble
wh
eth
er
co
urt
sw
illre
sp
on
dto
an
ord
er
fro
ma
fore
ign
co
mp
ete
nta
uth
ori
tyo
rta
ke
actio
nin
ca
se
sw
he
rep
rose
cu
tion
ha
sn
otb
eg
un
.
Ne
wp
rovis
ion
sre
ga
rdin
gth
ere
sp
on
se
toa
no
rde
ro
fa
fore
ign
co
mp
ete
nt
au
tho
rity
sh
ou
ldb
ee
na
cte
d.
159
UN
CA
CP
rov
isio
ns
Do
me
sti
cL
eg
al
/R
eg
ula
tory
Re
gim
eC
om
pa
tib
ilit
yb
etw
ee
nU
NC
AC
an
dD
om
es
tic
Re
gim
e
Co
mp
lia
nc
ea
nd
Ga
ps
be
twe
en
La
wa
nd
Pra
cti
ce
Re
ma
rks
se
ize
pro
pe
rty
up
on
afr
ee
zin
go
rse
izu
reo
rde
ris
su
ed
by
aco
mp
ete
nt
au
tho
rity
of
an
oth
er
Sta
teP
art
y;
Sta
tes
Pa
rtie
ssh
ou
lda
lso
co
nsid
er
allo
win
gco
nfis
ca
tio
no
fp
rop
ert
yo
ffo
reig
no
rig
inb
ya
dju
dic
atio
no
fm
on
ey
lau
nd
eri
ng
or
oth
er
offe
nce
sw
ith
inth
eir
juri
sd
ictio
no
rb
yo
the
rp
roce
du
res
un
de
rd
om
estic
law
with
ou
ta
cri
min
alc
on
vic
tion
,w
he
nth
eo
ffe
nd
er
ca
nn
ot
be
pro
se
cu
ted
by
rea
so
no
fd
ea
th,
flig
ht,
ab
se
nce
or
ino
the
ra
pp
rop
ria
teca
se
s.
co
nvic
ted
of
co
rru
ptio
n-
rela
ted
offe
nce
s;
Th
eco
urt
ma
ya
lso
resp
on
dto
are
qu
est
of
aS
tate
Pa
rty
for
co
op
era
tion
reg
ard
ing
fre
ezin
go
rse
izin
gp
rop
ert
yif
su
ch
req
ue
st
ism
ad
eb
yth
ece
ntr
ala
uth
ori
tyu
nd
er
art
icle
46
.
Art
icle
55
:S
tate
sP
art
ies
are
ma
nd
ate
dto
pro
vid
ea
ssis
tan
ce
toa
wid
ee
xte
nt
toa
no
the
rS
tate
Pa
rty
for
co
nfis
ca
tio
no
fp
roce
ed
so
fa
cri
me
;A
Sta
teP
art
yis
req
uir
ed
to:
•su
bm
itre
qu
ests
for
co
nfis
ca
tio
no
fp
roce
ed
so
fcri
me
toits
co
mp
ete
nt
au
tho
ritie
sfo
rth
ep
urp
ose
of
ob
tain
ing
Mo
ne
yL
au
nd
eri
ng
Pre
ve
ntio
nO
rdin
an
ce
(ML
PO
),2
00
8
Se
ctio
n2
6o
fth
eM
LP
Oa
llow
sth
ed
om
estic
co
urt
sto
ord
er
wh
ate
ve
rit
de
em
sa
pp
rop
ria
te,
up
on
req
ue
st
fro
mth
eB
B,
for
the
pu
rpo
se
so
fg
ivin
ge
ffe
ct
toa
co
nfisca
tio
no
rde
ro
fth
eco
urt
of
aS
tate
Pa
rty;
Ina
dd
itio
n,
the
ML
PO
reco
gn
ize
sth
eri
gh
to
fa
bo
na
fide
thir
dp
art
ya
llow
ing
su
ch
ap
ers
on
tocla
imth
ep
rop
ert
yb
ack
ifit
isco
nfisca
ted.
Th
eM
LP
Ois
sile
nt
ab
ou
tid
en
tify
ing
,tr
acin
g,
fre
ezin
go
rse
izin
gp
roce
ed
so
fcri
me
inre
sp
on
se
toa
req
ue
st
fro
ma
Sta
teP
art
y;
Ba
ng
lad
esh
ha
sye
tto
furn
ish
co
pie
so
fth
eir
law
sa
nd
reg
ula
tio
ns
tha
ta
llow
inte
rna
tion
alco
op
era
tion
for
co
nfis
ca
tion
toth
eS
ecre
tary
-Ge
ne
ralo
fth
eU
nite
dN
atio
ns;
Th
eG
ove
rnm
en
tsh
ou
ldb
eg
inth
ep
roce
ss
of
ma
kin
gsu
ch
no
tific
atio
ns
toth
eU
NS
ecre
tary
-G
en
era
la
lon
gw
itho
the
rn
otific
atio
no
blig
atio
ns;
Ba
ng
lad
esh
sh
ou
lde
na
ct
leg
isla
tion
rela
ting
toid
en
tify
ing
,tr
acin
g,
fre
ezin
go
rse
izin
gp
roce
ed
so
fcri
me
inre
sp
on
se
toa
req
ue
st
fro
ma
Sta
teP
art
y.
160
UN
CA
CP
rov
isio
ns
Do
me
sti
cL
eg
al
/R
eg
ula
tory
Re
gim
eC
om
pa
tib
ilit
yb
etw
ee
nU
NC
AC
an
dD
om
es
tic
Re
gim
e
Co
mp
lia
nc
ea
nd
Ga
ps
be
twe
en
La
wa
nd
Pra
cti
ce
Re
ma
rks
an
ord
er
of
con
fisca
tion
an
dg
ive
effe
ct
toit
or
an
ord
er
ofco
nfis
catio
nis
sue
db
ya
cou
rt;
•ta
kem
ea
sure
sto
ide
ntif
y,
tra
ce,
fre
eze
or
seiz
ep
roce
ed
so
fcr
ime
;
•ta
keth
eri
gh
to
fa
bo
na
fide
thir
dp
art
yin
toa
cco
un
t;a
nd
•fu
rnis
hco
pie
so
fth
eir
law
sa
nd
reg
ula
tion
sth
at
giv
ee
ffe
ctto
the
art
icle
an
do
fa
ny
sub
seq
ue
nt
cha
ng
es
ofsu
chla
ws
toth
eS
ecr
eta
ry-G
en
era
lof
the
Un
ited
Na
tion
s;
AS
tate
Pa
rty
ma
yre
fuse
such
req
ue
sts
or
lift
pro
visi
on
alm
ea
sure
so
nth
eb
asi
sth
at
itd
idn
ot
rece
ive
suff
icie
nt
an
dtim
ely
evi
de
nce
or
tha
tth
ep
rop
ert
yis
of
ad
em
inim
isva
lue
.
Ba
ng
lad
esh
ha
sin
itia
ted
pra
ctic
als
tep
sin
ord
er
toe
nh
an
cein
tern
atio
na
lco
op
era
tion
.A
hig
hp
ow
ere
dT
ask
Fo
rce
on
rep
atr
iatio
no
fsi
ph
on
ed
mo
ne
yw
as
set
up
inO
cto
be
r,2
00
7to
wo
rko
nre
cove
rin
gla
un
de
red
ass
ets
thro
ug
hin
tern
atio
na
lco
op
era
tion
;
Ba
ng
lad
esh
ha
sn
ot
ma
de
or
rece
ive
da
ny
req
ue
sts
for
con
fisca
tion
of
pro
cee
ds
fro
mo
ffe
nce
sto
or
fro
ma
ny
Sta
teP
art
y.
161
UN
CA
CP
rov
isio
ns
Do
me
sti
cL
eg
al
/R
eg
ula
tory
Re
gim
eC
om
pa
tib
ilit
yb
etw
ee
nU
NC
AC
an
dD
om
es
tic
Re
gim
e
Co
mp
lia
nc
ea
nd
Ga
ps
be
twe
en
La
wa
nd
Pra
cti
ce
Re
ma
rks
Art
icle
56
:S
tate
sP
art
ies
are
req
uir
ed
tod
isclo
se
info
rma
tion
on
the
pro
ce
ed
so
fo
ffe
nce
sto
an
oth
er
Sta
teP
art
yth
at
ma
ya
ssis
tit
inca
rryin
go
ut
inve
stig
atio
ns,
pro
se
cu
tion
so
rju
dic
ial
pro
ce
ed
ing
s.
Mo
ne
yL
au
nd
eri
ng
Pre
ve
ntio
nO
rdin
an
ce
(ML
PO
),2
00
8
Se
ctio
n2
6o
fth
eM
LP
O,
pro
vid
es
tha
tth
eG
ove
rnm
en
t,o
rin
ap
pro
pri
ate
ca
se
sth
eB
B,
ma
yd
isclo
se
info
rma
tion
rela
ted
tom
on
ey
lau
nd
eri
ng
toa
fore
ign
co
un
try
or
org
an
iza
tio
nw
ithw
hic
hB
an
gla
de
sh
ha
sa
na
gre
em
en
t;F
urt
he
r,u
nd
er
se
ctio
n2
4th
eF
IUw
illa
lso
ab
leto
pro
vid
eo
rre
qu
est
info
rma
tion
fro
mF
IUs
of
oth
er
Sta
tes
Pa
rtie
sre
ga
rdin
ga
su
sp
icio
us
tra
nsa
ctio
n.
At
pre
se
nt
the
reis
no
ob
liga
tion
for
dis
clo
su
reo
fin
form
atio
nre
late
dto
the
pro
ce
ed
so
fo
ffe
nce
sw
itho
ut
pri
or
req
ue
st
fro
ma
Sta
teP
art
y.
Th
eF
IUsh
ou
ldco
nsid
er
ap
olic
yfo
rd
isclo
su
reo
fin
form
atio
nto
oth
er
FIU
so
nits
ow
na
cco
rd.
Art
icle
57
:S
tate
sP
art
ies
are
ob
liga
ted
toco
op
era
tew
ithre
sp
ect
tore
turn
ing
co
nfis
ca
ted
pro
pe
rty
toits
pri
or
leg
itim
ate
ow
ne
rsb
yta
kin
gin
toa
cco
un
tth
eri
gh
tso
fb
on
afid
eth
ird
pa
rtie
s;
Sta
tes
Pa
rtie
sm
ay
de
du
ct
rea
so
na
ble
exp
en
se
sin
cu
rre
dfo
rth
eco
nfis
ca
tio
np
roce
ss
an
dm
ay
als
oco
nsid
er
the
co
nclu
sio
no
fa
gre
em
en
tso
ra
rra
ng
em
en
tsfo
rth
efin
ald
isp
ositio
no
fa
sse
ts
Mo
ne
yL
au
nd
eri
ng
Pre
ve
ntio
nO
rdin
an
ce
(ML
PO
),2
00
8
Se
ctio
n2
6o
fth
eM
LP
Oa
llow
sd
om
estic
co
urt
s,
up
on
req
ue
st
fro
mth
eB
B,
tore
turn
co
nfisca
ted
pro
pe
rty
toa
fore
ign
sta
tew
ithw
hic
hB
an
gla
de
sh
ha
sa
ML
Aa
gre
em
en
ta
nd
the
co
urt
ma
yta
ke
into
acco
un
tth
eri
gh
tso
fb
on
afid
eth
ird
pa
rtie
sw
hile
co
nfis
ca
tin
gp
rop
ert
y(s
ectio
n1
7)
Ho
we
ve
r,th
ese
pro
vis
ion
sa
pp
lyto
pro
pe
rty
wh
ich
are
the
pro
ce
ed
so
fa
sp
ecific
cri
me
,n
am
ely
,m
on
ey
lau
nd
eri
ng
.
Ba
ng
lad
esh
do
es
no
th
ave
an
yp
rovis
ion
sfo
rth
ed
isp
osa
lo
fp
roce
ed
sfo
re
ve
ryo
ffe
nce
un
de
rth
eU
NC
AC
.It
isu
ncle
ar
wh
eth
er
the
pro
vis
ion
of
the
ML
PO
will
be
eq
ua
llya
pp
lica
ble
toth
ep
roce
ed
so
fo
the
ro
ffe
nce
su
nd
er
the
UN
CA
C.
Ba
ng
lad
esh
sh
ou
ldco
nsid
er
cla
rify
ing
the
po
siti
on
of
the
pre
se
nt
law
sa
nd
fillg
ap
sb
ye
na
ctin
gn
ew
pro
vis
ion
so
rru
les
rela
ted
toth
ed
isp
osa
lo
fco
nfisca
ted
pro
pe
rty.
162
UN
CA
CP
rov
isio
ns
Do
me
sti
cL
eg
al
/R
eg
ula
tory
Re
gim
eC
om
pa
tib
ilit
yb
etw
ee
nU
NC
AC
an
dD
om
es
tic
Re
gim
e
Co
mp
lia
nc
ea
nd
Ga
ps
be
twe
en
La
wa
nd
Pra
cti
ce
Re
ma
rks
on
aca
seb
yca
seb
asi
s;F
urt
he
rmo
re,
the
req
ue
ste
dS
tate
Pa
rty
sho
uld
retu
rnth
eco
nfis
cate
dp
rop
ert
yto
are
qu
est
ing
Sta
teP
art
y,
pri
or
leg
itim
ate
ow
ne
rs,o
rvi
ctim
so
fth
ecr
ime
as
com
pe
nsa
tion
,d
ep
en
din
go
nth
eci
rcu
mst
an
ces.
Art
icle
58
:T
he
UN
CA
Cre
qu
ire
sth
ee
sta
blis
hm
en
to
fa
Fin
an
cia
lIn
telli
ge
nt
Un
it(F
IU)
for:
•re
ceiv
ing
,a
na
lyzi
ng
an
dd
isse
min
atin
gre
po
rts
of
susp
icio
us
tra
nsa
ctio
ns
toco
mp
ete
nta
uth
ori
ties;
an
d
•p
reve
ntin
ga
nd
com
ba
ting
the
tra
nsf
er
an
da
idin
gin
the
reco
very
of
pro
cee
ds
ofo
ffe
nce
se
sta
blis
he
du
nd
er
the
Co
nve
ntio
n.
Mo
ne
yL
au
nd
eri
ng
Pre
ven
tion
Ord
ina
nce
(ML
PO
),2
00
8
An
ti-T
err
ori
sm
Ord
ina
nce
,2
00
8
Se
ctio
n2
4o
fth
eM
LP
Op
rovi
de
sth
ele
ga
lba
sis
for
est
ab
lish
ing
aF
ina
nci
al
Inte
llig
en
ceU
nit
(FIU
).A
FIU
wa
se
sta
blis
he
dw
ithin
the
An
ti-M
on
ey
La
un
de
rin
gD
ep
art
me
nto
fth
eB
Bin
Ma
rch
20
07
;T
he
FIU
isto
rece
ive
,a
na
lyze
an
dd
isse
min
ate
info
rma
tion
tod
ete
ctsu
spic
iou
str
an
sact
ion
sa
sw
ell
as
totr
ace
,se
ize
an
dco
nfis
cate
the
resp
ect
ive
ass
ets
;B
an
gla
de
shh
as
fully
com
plie
dw
ithth
ere
qu
ire
me
nts
of
art
icle
58
an
dh
as
take
na
vari
ety
of
ste
ps
tow
ard
bo
thp
reve
ntin
gth
ela
un
de
rin
go
fp
rop
ert
ya
nd
aid
ing
the
reco
very
of
such
pro
pe
rty.
Th
eF
IUd
oe
sn
ot
ha
vea
cce
ssto
the
da
tab
ase
so
fo
the
rg
ove
rnm
en
ta
ge
nci
es
such
as
tho
seo
fth
eR
oa
dT
raff
icA
ge
ncy
or
Imm
igra
tion
an
dC
ust
om
sw
hic
hw
ou
lda
llow
con
du
ctin
gm
ore
eff
ect
ive
an
aly
sis
ofsu
spic
iou
str
an
sact
ion
s;B
an
gla
de
shis
yet
tob
ea
me
mb
er
of
the
Eg
mo
nt
Gro
up
,a
coo
rdin
atin
gb
od
yfo
rth
ein
tern
atio
na
lco
nso
rtiu
mo
fF
IUs;
Ba
ng
lad
esh
ha
sfu
lfille
dce
rta
inco
nd
itio
ns
tog
et
me
mb
ers
hip
into
Eg
mo
nt,
such
as
am
en
dm
en
to
fla
ws
rela
ting
tom
on
ey
lau
nd
eri
ng
an
de
na
ctm
en
to
f th
e A
nit-
Te
rro
rism
Ord
ina
nce
, 2
00
8.
De
spite
the
com
pre
he
nsiv
en
ess
of
the
law
,to
be
fully
eff
ect
ive
,th
ea
na
lytic
alc
ap
aci
ties
of
the
FIU
wo
uld
be
ne
fitfr
om
furt
he
ru
pg
rad
ing
;
Ba
ng
lad
esh
sho
uld
join
the
Eg
mo
nt
Gro
up
as
soo
na
sp
oss
ible
.
163
UN
CA
CP
rov
isio
ns
Do
me
sti
cL
eg
al
/R
eg
ula
tory
Re
gim
eC
om
pa
tib
ilit
yb
etw
ee
nU
NC
AC
an
dD
om
es
tic
Re
gim
e
Co
mp
lia
nc
ea
nd
Ga
ps
be
twe
en
La
wa
nd
Pra
cti
ce
Re
ma
rks
Art
icle
59
:T
he
UN
CA
Ca
dvo
cate
sth
efo
rmu
latio
no
fb
ilate
ralo
rm
ulti
late
ral
ag
ree
me
nts
be
twe
en
Sta
tes
Pa
rtie
sto
en
ha
nce
effe
ctiv
en
ess
of
inte
rna
tion
alc
oo
pe
ratio
n.
Mo
ne
yL
au
nd
eri
ng
Pre
ven
tion
Ord
ina
nce
(ML
PO
),2
00
8
Un
de
rse
ctio
n2
6o
fth
eM
LP
O,
the
Go
vern
me
nt,
or
inso
me
case
sth
eB
B,ca
nsi
gn
me
mo
ran
du
ms
of
un
de
rsta
nd
ing
,m
ulti
late
ral
an
db
ilate
rala
gre
em
en
ts,
an
da
ny
oth
er
ag
ree
me
nts
wh
ich
are
reco
gn
ize
db
yco
nve
ntio
ns
or
inte
rna
tion
all
aw
s,w
itho
the
rg
ove
rnm
en
tsa
nd
org
an
iza
tion
s.
On
cesu
cha
gre
em
en
tsa
rem
ad
e,
the
Go
vern
me
nt
or
the
BB
will
be
ab
leto
sha
rein
form
atio
nre
latin
gto
mo
ne
yla
un
de
rin
g,
pro
vid
eco
op
era
tion
for
con
fisca
tion
an
dd
isp
osa
lo
fco
nfis
cate
dp
rop
ert
y,a
nd
req
ue
stfo
rth
ere
turn
ofp
rop
ert
yfr
om
an
oth
er
Sta
teP
art
y.
Ba
ng
lad
esh
sho
uld
focu
so
nco
mp
letin
gM
LA
ag
ree
me
nts
or
arr
an
ge
me
nts
with
oth
er
Sta
tes
Pa
rtie
s.
164
Chapter 6
Technical Assistance and Information Exchange 6.1 Training and Technical Assistance6.2 Collection, Exchange and Analysis of Information on Corruption6.3 Other MeasuresMatrix on compliance with articles 60-62
Technical Assistance and Information Exchange
In order to effectively fight corruption, States Parties must take amultifaceted approach that not only includes reforms of law, but alsoinvolves enhancing practical capabilities related to the prevention anddetection of, and recovery from, acts of corruption. Technical assistancemust be available to the relevant public and private bodies in order toincrease their capacity to take efficient measures. Training is necessary toequip government actors with the skills and knowledge to successfullyimplement corruption targeting laws and regulations. Furthermore, StatesParties must actively engage in the research and monitoring of corruption,and share that information, to facilitate educated decision making andenable competent assistance to other nations. The aforementioned effortsnot only provide support for practical compliance to the provisions of theUNCAC, but guarantee an environment hostile to acts of corruption.
6.1 Training and Technical Assistance
Article 60: Training and technical assistance
Under article 60, States Parties, to the extent of their need and capacity,are obligated to provide training and technical assistance to prevent andcombat corruption. Suggested areas for training programs includeeffective measures to prevent, detect, investigate, punish, and controlcorruption (article 60.1(a)), capacity building for the development ofstrategic anti-corruption policies (article 60.1(b)), preparation of competentauthorities for requests of mutual legal assistance (article 60.1(c)),evaluation and strengthening of institutions, public service management,and the management of public finances (article 60.1(d)), prevention andrecovery of proceeds from offences established under the provisions of theConvention (article 60.1(e)), detection and restriction of the transfer ofproceeds from corruption offences (article 60.1(f)), surveillance of themovement, transfer, concealment, and disguise of corruption relatedproceeds (article 60.1(g)), appropriate legal and administrativemechanisms designed to aid in returning proceeds of corruption (article60.1(i)), and national and international regulations and languages (article60.1(j)). Although there is a general mandate for States Parties to help oneanother with regard to technical assistance, specific encouragement isgiven to providing such assistance to developing countries’ efforts to fightcorruption (article 60.2). This technical assistance includes materialsupport, training as prescribed in paragraph 1 of article 60, and exchangeof relevant experience and specialized knowledge, which is intended topromote international cooperation in the areas of extradition and mutuallegal assistance. Furthermore, States Parties are required to strengthen, as
167
needed, efforts to boost operational and training activities in bothinternational and regional organizations and in the framework of bilateraland multilateral agreements (article 60.3). Additionally, article 60 containsa number of non-mandatory provisions encouraging internationalcooperation efforts related to research and evaluation, expertrecommendations, regional and international conferences, anddevelopment funds.
The provision of training for anti-corruption purposes is expressly providedfor by law. Section 17 of the Anti-Corruption Commission (ACC) Act, 2004empowers the ACC to organize seminars, symposiums, workshops andsimilar measures on subjects within the ACC’s jurisdiction. Furthermore,section 11 gives the ACC the ability to “perform any other work considerednecessary for the prevention of corruption.” To that end, last year the ACCconducted a two week training program for officers on corruptioninvestigation that addressed practical issues such as how to draw up anenquiry report, how to conduct enquiry, and how to interrogate. Thistraining was funded by Transparency International Bangladesh andinvolved outside experts. After the training there was noticeableimprovement in the officers’ performance, particularly with regard to reportwriting. Currently, plans are underway for a year long training program thatwould cover information technology, enquiry and investigation, white collarcrime, and rights of the accused. This training, through funding from theAsian Development Bank, would be for all levels of staff and officials at theACC. The ACC recognizes the importance of training, particularly the needfor officers to be trained in investigation and enquiry as such abilities arevital for successful prosecution of offenders. In fact the main reason for thetime lag between these two training programs appears to be a lack ofresources, namely funding.
Another statutory provision on training to combat corruption exists in theMoney Laundering Prevention Ordinance (MLPO), 2008. Section 23 vestsresponsibility in the Bangladesh Bank (BB) to give training to the staff andofficers of the reporting organization and any other organization orinstitution that the BB considers necessary for the purposes of preventingand resisting crimes related to money laundering. The Bangladesh BankTraining Academy (BBTA) is an institution responsible for training at the BB.One of the prescribed objectives of the BBTA is to give training to BBofficers and employees, as well as financial institutions and NGOs, to helpthem manage the BB’s policies, rules, and regulations. Anti-Moneylaundering (AML) training is provided for by the BB’s Anti-MoneyLaundering Department (AMLD). The AMLD Citizen Charter states that thedepartment is the designated body for training BB officers and employees,financial institutions, and other organizations involved in financial activitiesfor the prevention of money laundering. In furtherance of training, the BB’sAnti-Money Laundering Circular No. 2 obliges banks and financial
168
institutions to conduct proper training of officers to ensure adherence tothe MLPO. One important effort undertaken by the BB has been trainingon its “Know Your Customer” (KYC) policy. The BB has gone throughoutthe country to each bank’s headquarters providing KYC training for thepurpose of preventing money laundering through information gathering,identification of clients, and monitoring of their activities. Aside from KYCtraining, the BB is conducting anti-corruption training at all levels of banksand has been busy with training ventures involving other governmentministries and bodies. The BB is also working on disseminating trainingabroad and has developed a program for preparing trainers. In addition,the BB and other government officials recently attended a training programin Switzerland sponsored by the World Bank on asset recovery which wasfound to be very useful. Relevant training has also been organized by theBangladesh Public Administration Training Centre, which has organizedworkshops and seminars on corruption and its risks.
Despite laws in place, the presence of training bodies in variousgovernment institutions, and constructive efforts by some key governmentactors, compliance with article 60 has yet to be reached. Most trainingbodies do not provide programs on corruption related issues. Indeed,there are only a small number of specific training modules pertaining tocorruption. Not only is Bangladesh not fulfilling its international obligations,but this dearth of training and technical assistance severely limits itsprospects for a successful and sustainable campaign against corruption.Importantly, it is not a lack of will or motivation but a lack of resources thatacts as an obstacle to implementing training programs. Undoubtedly, toovercome this, the GoB must prioritize providing or securing adequatefunding for training programs, whether through the national budget orpartnerships with donor agencies. Once funding is secured, problems inimplementation will be easier to address.
With regard to anti-corruption training currently in place, there are someissues that should be addressed. Training tools and methodologies shouldbe modernized and pro-active, imparting problem solving skills that willenable officials to curb corruption while still meeting the daily requirementsof their post. Furthermore, targeted issue training would be useful, withpractical guidance on how to fight corruption and implement legalprovisions already in place. Relevant government actors must know theapplicable policies and procedures as such knowledge helps preventcorruption and ensures effective practices in identifying, recording, andreporting offences. With regard to KYC training, it should be ensured thatall relevant staff are trained as their position allows them to noticesuspicious activity on a daily basis. Further, despite their removal fromeveryday transactions, supervisors and managers would benefit fromtraining as it is essential that they understand their obligations, along withthe duties of their staff and institution, under the law. If possible, experts,
169
national or international, should be involved in the development of trainingmodules and their implementation. Moreover, monitoring of the efficiencyand effectiveness of training programs would ensure that their audiencesare receiving the appropriate education and skills. While developing itsown government training program, the GoB should encourage trainingprograms of domestic, regional, and international organizations, throughmonetary support and active participation.
In relation to legal structure, laws or regulations could also be amended orclarified to specify what kind of training should take place and to whom itshould be directed to, along with other important details, to ensure that allrelevant persons know what acts qualify as corruption offences, thepenalties for these offences, and the proper procedures for investigation,reporting, and documentation. Additionally, entering into bilateral andmultilateral agreements with regard to technical assistance isrecommended as Bangladesh could benefit from the experience andknowledge of other nations. In particular, agreements for MLA andextradition should include provisions for technical assistance.Undoubtedly, until the domestic training situation is improved, it will bedifficult for Bangladesh to offer the full range of technical assistance toother nations. Nevertheless, Bangladesh can still actively participate insuch ventures through the offer of material support and in sharing itsexperience.
6.2 Collection, Exchange and Analysis of Information on Corruption
Article 61: Collection, exchange and analysis of information on corruption
Article 61 underscores the importance of both gathering and sharinginformation to combat corruption. The UNCAC requires that States Partiesconsider analyzing trends in corruption, along with the circumstancesrelating to corruption offences (article 61.1). States Parties are alsoobligated to contemplate sharing statistics, analytical expertise, andinformation, for the purposes of building common definitions, standards,methodologies, and an understanding of best practices (article 61.2).Additionally, States Parties are required to consider monitoring theirpolicies and practices, along with evaluating their effectiveness andefficiency (article 61.3).
In preparation for the second Conference of States Parties (COSP) in Bali,Indonesia in January 2008, the GoB prepared the initial version of thisreport, both to share its progress with other States Parties and to show itscommitment to fighting corruption. The report was widely distributed at thesecond CoSP and generated great interest by those in attendance.Furthermore, the Bangladesh delegation which attended the Conference
170
was eager to exchange information with other nations and held bilateralmeetings with Indonesia, Pakistan, and Malaysia to confirm its cooperationand share experiences. In addition, a trilateral meeting took place betweenrepresentatives of Bangladesh, Indonesia, and Kenya whereby the formertwo countries discussed with the latter their experiences in performing alegal analysis on compliance with the UNCAC. Both the actions of thedelegation and the report itself suggest some satisfaction of the provisionsof article 61.
Domestically, there are other mechanisms in place that should facilitatecompliance with article 61. Section 17(f) of the ACC Act states that theACC may perform research on corruption prevention and submitrecommendations to the President based on its analysis of said research.Within the ACC there is a department devoted to research, analysis,prevention, and mass awareness. Unfortunately, the department has beenunable to begin research and analysis as it does not have sufficientresources; particularly problematic is a lack of staff. However, plans are inplace to get this wing of the department operational and once so, it willfocus on the nature and incidents of corruption in Bangladesh to developcomprehensive understanding of corruption in the country. Monitoring ofpractices through a reviewing commission is expressly provided for in theACC Act. Section 15 states that the commission, headed by the Chairmanand with participation by the commissioners, will meet to determinewhether the ACC is properly carrying out its duties. Furthermore, section17(e) states that the commission is empowered to review the legalmeasures in place for preventing corruption and give its recommendationsfor implementation to the President.
The MLPO also brings Bangladesh closer to conformity with article 61.Section 23 of the MLPO designates the BB as the responsible body forsupervising the activities of banks and financial institutions engaged infinancial activities for the purposes of preventing money laundering.Furthermore, section 23 of the MLPO and the BB’s Anti-Money LaunderingCircular No. 2 provide for the analysis of suspicious transactions that mayhave a connection to money laundering for the purposes of prevention.Indeed, the BB received training and software from the United States forthe purposes of analyzing suspicious transactions; however, it has facedsome obstacles in utilizing the software due to implementation difficulties.Once fully operational, this software will allow for information sharing andwill present and link pertinent information in a useful manner, which willhelp in the detection and prosecution of corruption related offences.
Monitoring is also provided for by section 23 of the MLPO, whichempowers the BB to monitor and analyze occurrences of moneylaundering for the purposes of prevention. The BB has two methods forverifying practical compliance with its policies; the BB itself performs an
171
assessment with regard to compliance and it also requires banks, via theircompliance officer, to fill out a self-assessment questionnaire. The bank'scompliance officer sends the self assessment to their Internal ControlDepartment and Central Compliance Unit for review. After review of thehalf yearly statement, it is sent to the AMLD of the BB (Anti-MoneyLaundering Circular No. 15). The MLPO contains provisions for sanctionsif a bank is found to be non-compliant. Section 25 states thatnoncompliant banks will face fines and may have their registration orlicense cancelled; in addition, such behavior may affect their ratings.Consequently, with regard to practical review, the BB is actively monitoringsatisfaction of its AML requirements. However, despite this well developedsystem of reviewing practical compliance with laws and regulations, thereis yet to be a system for evaluating the policies themselves.
Undoubtedly, more government effort and resources must be devoted tothe activities prescribed in article 61. No campaign can be successfulwithout understanding exactly what one is combating. Analysis andinformation relating to trends and circumstances in corruption providesknowledge, which in turn generates tools to address the sources anddynamics of corruption. Information is essential to ensure that a sensible,realistic, and effective approach is in place; this information not onlyincludes details of corruption incidents, but also a review of the legalmechanisms in place. Monitoring and evaluation of practices and policiesare of significant importance as their results indicate whether the design ofthe anti-corruption system is functioning appropriately. Furthermore, theacuteness of these monitoring and evaluating activities correlate to theprecision of the conclusions reached. If there are difficulties with thesystem, such precision will reveal whether it is the policies and laws or theirimplementation and practices that are at fault. Arguably, it is virtuallyimpossible to have a focused successful plan of action against corruptionif there is limited knowledge on the nature of corruption activities in thecountry and no mechanism for measuring whether government initiativesare performing satisfactorily.
6.3 Other Measures
Article 62: Other measures: implementation of the convention througheconomic development and technical assistance
Article 62 is devoted to other practical efforts States Parties must take tocomply with the UNCAC. States Parties are required to take measuresconducive to implementing the Convention through internationalcooperation (article 62.1). Furthermore, in coordination with other StatesParties and international and regional organizations, States Parties areobligated to increase their cooperation with developing states to improvetheir capacity to fight corruption (article 62.2(a)), to enhance material and
172
financial assistance to developing countries to bolster their anti-corruptionefforts (article 62.2(b)), to provide technical assistance to developingcountries to aid them in implementing the Convention (article 62.2(c)), andto encourage and persuade other States Parties and financial institutionsto assist in the aforementioned efforts (article 62.2(d)). If possible, theseefforts should be without prejudice to existing foreign assistancecommitments or financial arrangements at the bilateral, regional orinternational level (article 62.3).
The GoB has recently taken steps related to international cooperation topromote compliance to the Convention. In satisfaction of its obligation underarticle 6.3, a gazette notification (UN-SOC-6027/07, dated 27 April, 2008)has now established an authority to assist other States Parties inimplementing and developing measures to prevent corruption. This authorityconsists of five government institutions, specifically the Ministry of Law andJustice, the ACC, the Ministry of Foreign Affairs, the Ministry of Home Affairs,and the Office of the Attorney General. These five bodies constitute oneauthority that is responsible for assisting other States Parties inimplementing the UNCAC. These bodies may act in unison or may designateparticular institutions to act depending on their collective decision on aproposal to work with another State Party. Furthermore, Bangladesh hasnow fulfilled its obligations under article 46.13 through the abovementionedgazette notification which designates a central authority responsible forrequests of mutual legal assistance, namely the Ministry of Home Affairs andthe Office of the Attorney General. These two developments are significantas previously, the main obstruction to international cooperation was thatthere was no authority to conduct such efforts.
Another important development with regard to Convention implementationthrough international cooperation is the MLPO 2008, which gives theGovernment and the BB power to make agreements with other countriesor authorities to recover stolen assets (section 26). In support of this end,efforts are underway to detect assets and culprits abroad. Once offendersor assets have been detected and confirmed outside of the country, theGoB has a mechanism in place to ask for assistance from the relevantcountry. Moreover, the BB is working to sign agreements with the FinancialIntelligence Units of other countries to facilitate information sharing. Suchagreements have been drafted and are currently under review to ensurecompliance with domestic law. In addition, the Ministry of Foreign Affairshas the authority to enter into mutual agreements with friendly countries.Such mutual agreements for international cooperation can be conductedonly through diplomatic channels. Given how recently the GoB has beenequipped to exercise efforts involving international cooperation, it isdifficult to measure practical compliance; nevertheless, it is clear thatBangladesh is now furnished with the necessary legislation and isempowered to act.
173
Bangladesh has yet to give any help to other countries for corruptionrelated offences, though it has extradited offenders for other crimes. It isunlikely that developed countries will have much interest in recoveringstolen assets in the country as there is slim probability of such assetsmoving to a developing country like Bangladesh. Furthermore, as adeveloping country, it is understandable that Bangladesh has not takensignificant steps toward compliance with that the latter paragraphs of thearticle. However, as Bangladesh gains expertise, experience, technicalmeans, and other resources related to anti-corruption capabilities, itshould actively take steps to help other developing countries in their fightagainst corruption. In the meantime, attendance at the Vienna WorkingGroup meetings on the UNCAC would promote the aims of article 62;participation at said meetings would keep the Government up-to-date withregard to international developments and would strengthen domestic anti-corruption reform measures.
174
Ch
ap
ter
6T
ech
nic
al A
ssis
tan
ce a
nd
In
form
ati
on
Exch
an
ge (
Art
icle
s 6
0—
62)
UN
CA
CP
rov
isio
ns
Do
me
sti
cL
eg
al
/R
eg
ula
tory
Re
gim
eC
om
pa
tib
ilit
yb
etw
ee
nU
NC
AC
an
dD
om
es
tic
Re
gim
e
Co
mp
lian
ce
an
dG
ap
be
twe
en
La
wa
nd
Pra
cti
ce
Re
ma
rks
Art
icle
60
:S
tate
sP
art
ies
are
req
uir
ed
,to
the
ext
en
to
fth
eir
ne
ed
an
dca
pa
city
,to
pro
vid
etr
ain
ing
an
dte
chn
ica
lass
ista
nce
top
reve
nt
an
dco
mb
at
corr
up
tion
;
Sta
tes
Pa
rtie
sm
ust
he
lpo
ne
an
oth
er
with
reg
ard
tote
chn
ica
lass
ista
nce
,w
ithp
art
icu
lar
em
ph
asi
so
np
rovi
din
gsu
cha
ssis
tan
ceto
de
velo
pin
gco
un
trie
s’e
ffo
rts
tofig
ht
corr
up
tion
;
Sta
tes
Pa
rtie
sa
reo
blig
ate
dto
str
en
gth
en
,a
sn
ee
de
d,
effo
rts
tob
oo
sto
pe
ratio
na
la
nd
tra
inin
ga
ctiv
itie
sin
bo
thin
tern
atio
na
lan
dre
gio
na
lo
rga
niz
atio
ns
an
din
the
fra
me
wo
rko
fb
ilate
rala
nd
mu
ltila
tera
lag
ree
me
nts
.
An
ti-C
orr
up
tion
Co
mm
issi
on
(AC
C)
Act
,2
00
4
Mo
ne
yL
au
nd
eri
ng
Pre
ven
tion
Ord
ina
nce
(ML
PO
),2
00
8
An
ti-M
on
ey
La
un
de
rin
g(A
ML
)C
ircu
lar
No
.2
(Ju
ly2
00
2),
Ba
ng
lad
esh
Ba
nk
Th
eG
ove
rnm
en
tm
inis
trie
s,
de
pa
rtm
en
ts,
an
dd
ivis
ion
sh
ave
tra
inin
gin
stitu
tes
or
cen
ters
;
Se
ctio
n4
of
the
ML
PO
vest
sre
spo
nsi
bili
tyin
the
Ba
ng
lad
esh
Ba
nk
(BB
)to
giv
etr
ain
ing
toth
est
aff
an
do
ffic
ers
of
the
BB
an
do
the
rfin
an
cia
lin
stitu
tion
sfo
rth
ep
urp
ose
so
fp
reve
ntin
ga
nd
resi
stin
gcr
ime
sre
late
dto
mo
ne
yla
un
de
rin
g;
Th
eA
ML
circ
ula
ro
blig
es
ba
nks
an
dfin
an
cia
lin
stitu
tion
sto
pro
vid
ep
rop
er
tra
inin
gto
off
ice
rsto
en
sure
ad
he
ren
ceto
the
ML
PO
;
An
ti-m
on
ey
lau
nd
eri
ng
(AM
L)
tra
inin
gis
pro
vid
ed
for
by
the
BB
’sA
nti-
Mo
ne
yL
au
nd
eri
ng
De
pa
rtm
en
t(A
ML
D).
Th
eA
MD
LC
itize
nC
ha
rte
rsta
tes
tha
tth
ed
ep
art
me
nt
isth
ed
esi
gn
ate
db
od
yfo
rtr
ain
ing
BB
off
ice
rsa
nd
em
plo
yee
s,fin
an
cia
lin
stitu
tion
s,
an
do
the
ro
rga
niz
atio
ns
invo
lve
d
Th
eA
CC
con
du
cte
da
two
we
ek
tra
inin
gp
rog
ram
on
inve
stig
atio
nla
stye
ar
for
off
ice
rsa
nd
isp
lan
nin
ga
yea
rlo
ng
tra
inin
gp
rog
ram
tha
tw
ou
ldco
ve
rin
form
atio
nte
chn
olo
gy,
en
qu
iry
an
din
vest
iga
tion
,w
hite
colla
rcr
ime
,a
nd
the
rig
hts
of
the
acc
use
d;
Th
eB
Bh
as
go
ne
thro
ug
ho
ut
the
cou
ntr
yto
ea
chb
an
k’s
he
ad
qu
art
ers
pro
vid
ing
KY
Ctr
ain
ing
;
Th
eB
Bis
con
du
ctin
ga
nti-
corr
up
tion
tra
inin
ga
ta
llle
vels
of
ba
nks
an
dh
as
en
ga
ge
din
tra
inin
gve
ntu
res
invo
lvin
go
the
rg
ove
rnm
en
tm
inis
trie
sa
nd
bo
die
s;
Th
eB
Bis
wo
rkin
go
nd
isse
min
atin
gtr
ain
ing
ab
roa
da
nd
ha
sd
eve
lop
ed
ap
rog
ram
for
pre
pa
rin
gtr
ain
ers
;
Go
vern
me
nt
offic
ials
rece
ntly
att
en
de
da
tra
inin
gp
rog
ram
inS
witz
erl
an
d
On
eo
fth
eo
bsta
cle
sto
imp
lem
en
ting
tra
inin
gis
ala
cko
fre
sou
rce
s;to
ove
rco
me
this
,th
eG
oB
sho
uld
pri
ori
tize
pro
vid
ing
or
secu
rin
ga
de
qu
ate
fun
din
gfo
rtr
ain
ing
pro
gra
ms;
Tra
inin
gto
ols
an
dm
eth
od
olo
gie
ssh
ou
ldb
em
od
ern
ize
da
nd
pro
-act
ive
,im
pa
rtin
gp
rob
lem
solv
ing
skill
sto
eq
uip
off
icia
lsto
curb
corr
up
tion
wh
ilest
illm
ee
ting
the
da
ilyre
qu
ire
me
nts
of
the
irp
ost
;
Ta
rge
ted
issu
etr
ain
ing
wo
uld
be
use
ful,
with
pra
ctic
alg
uid
an
ceo
nh
ow
tofig
htco
rru
ptio
na
nd
imp
lem
en
tle
ga
lpro
visi
on
sa
lre
ad
yin
pla
ce;
Mo
nito
rin
gth
ee
ffic
ien
cya
nd
effe
ctiv
en
ess
of
tra
inin
gp
rog
ram
sw
ou
lde
nsu
reth
at
the
ira
ud
ien
ces
are
rece
ivin
gth
ea
pp
rop
ria
tee
du
catio
na
nd
skill
s;
En
teri
ng
into
bila
tera
lan
d
175
UN
CA
CP
rov
isio
ns
Do
me
sti
cL
eg
al
/R
eg
ula
tory
Re
gim
eC
om
pa
tib
ilit
yb
etw
ee
nU
NC
AC
an
dD
om
es
tic
Re
gim
e
Co
mp
lian
ce
an
dG
ap
be
twe
en
La
wa
nd
Pra
cti
ce
Re
ma
rks
infin
an
cia
lact
iviti
es.
spo
nso
red
by
the
Wo
rld
Ba
nk
on
ass
et
reco
very
;
Tra
inin
gh
as
be
en
org
an
ize
db
yth
eB
an
gla
de
shP
ub
licA
dm
inis
tra
tion
Tra
inin
gC
en
tre
(BP
AT
C),
wh
ich
ha
so
rga
niz
ed
wo
rksh
op
sa
nd
sem
ina
rso
nco
rru
ptio
na
nd
itsri
sks;
Th
ere
are
on
lya
sma
lln
um
be
ro
fsp
eci
fictr
ain
ing
mo
du
les
pe
rta
inin
gto
corr
up
tion
.
mu
ltila
tera
lag
ree
me
nts
for
tech
nic
ala
ssis
tan
ceis
reco
mm
en
de
d;
inp
art
icu
lar,
ag
ree
me
nts
for
ML
Aa
nd
ext
rad
itio
nsh
ou
ldin
clu
de
pro
visi
on
sfo
rte
chn
ica
la
ssis
tan
ce.
Art
icle
61
:S
tate
sP
art
ies
are
req
uir
ed
toco
nsi
de
ra
na
lyzi
ng
tre
nd
sin
corr
up
tion
,a
lon
gw
ithth
eci
rcu
mst
an
ces
rela
ting
toco
rru
ptio
no
ffen
ces;
Sta
tes
Pa
rtie
sa
reo
blig
ate
dto
con
tem
pla
tesh
ari
ng
sta
tistic
s,a
na
lytic
al
exp
ert
ise
,an
din
form
atio
nfo
rth
ep
urp
ose
so
fb
uild
ing
com
mo
nd
efin
itio
ns,
sta
nd
ard
s,m
eth
od
olo
gie
s,a
nd
an
un
de
rsta
nd
ing
of
be
stp
ract
ice
s;
Sta
tes
Pa
rtie
sa
rere
qu
ire
dco
nsi
de
rm
on
itori
ng
po
licie
s
An
ti-C
orr
up
tion
Co
mm
issi
on
(AC
C)
Act
,2
00
4
Mo
ne
yL
au
nd
eri
ng
Pre
ven
tion
Ord
ina
nce
(ML
PO
),2
00
8
An
ti-M
on
ey
La
un
de
rin
g(A
ML
)C
ircu
lar
No
.2
(Ju
ly2
00
2),
Ba
ng
lad
esh
Ba
nk
An
ti-M
on
ey
La
un
de
rin
gC
ircu
lar
No
.1
5(M
arc
h2
00
8),
Ba
ng
lad
esh
Ba
nk
Un
de
rS
ect
ion
15
of
the
AC
CA
ct,
are
vie
wco
mm
issi
on
,he
ad
ed
by
the
Ch
air
ma
n,
with
pa
rtic
ipa
tion
by
com
mis
sio
ne
rs,
will
me
et
tod
ete
rmin
ew
he
the
rth
eA
CC
isp
rop
erl
yca
rryi
ng
ou
tits
du
ties;
Se
ctio
n1
7(e
)o
fth
eA
CC
Act
sta
tes
tha
tA
CC
ma
yp
erf
orm
rese
arc
ho
nco
rru
ptio
np
reve
ntio
na
nd
sub
mit
reco
mm
en
da
tion
sto
the
Pre
sid
en
tb
ase
do
na
na
lysi
so
fsa
idre
sea
rch
;
Se
ctio
n1
7(f
)st
ate
sth
at
the
com
mis
sio
nis
em
po
we
red
With
inth
eA
CC
the
reis
ad
ep
art
me
nt
de
vote
dto
rese
arc
h,a
na
lysi
s,p
reve
ntio
n,
an
dm
ass
aw
are
ne
ss;
ho
we
ver,
the
de
pa
rtm
en
th
as
be
en
un
ab
leto
be
gin
rese
arc
ha
nd
an
aly
sis
du
eto
ala
cko
fre
sou
rce
s,n
am
ely
sta
ff;
Th
eB
Bre
ceiv
ed
tra
inin
ga
nd
softw
are
fro
mth
eU
nite
dS
tate
sfo
rth
ep
urp
ose
so
fan
aly
zin
gsu
spic
iou
str
an
sact
ion
s;h
ow
eve
r,it
ha
sfa
ced
som
eo
bst
acl
es
du
eto
diff
icu
ltie
sim
ple
me
ntin
gth
eso
ftw
are
;
Mo
reg
ove
rnm
en
teff
ort
an
dre
sou
rce
sm
ust
be
de
vote
dto
rese
arc
ha
nd
an
aly
sis
of
corr
up
tion
;
On
top
of
stre
ng
the
nin
gm
on
itori
ng
of
pra
ctic
es,
itw
ou
ldb
eb
en
efic
ialt
oh
ave
asy
ste
min
pla
cefo
rre
vie
win
gth
ee
ffe
ctiv
en
ess
an
de
ffic
ien
cyo
fth
ela
ws
an
dp
olic
ies.
176
UN
CA
CP
rov
isio
ns
Do
me
sti
cL
eg
al
/R
eg
ula
tory
Re
gim
eC
om
pa
tib
ilit
yb
etw
ee
nU
NC
AC
an
dD
om
es
tic
Re
gim
e
Co
mp
lian
ce
an
dG
ap
be
twe
en
La
wa
nd
Pra
cti
ce
Re
ma
rks
an
dp
ract
ice
s,a
lon
gw
ithe
valu
atin
gth
eir
effe
ctiv
en
ess
an
de
ffici
en
cy.
tore
vie
wth
ele
ga
lme
asu
res
inp
lace
for
pre
ven
ting
corr
up
tion
an
dg
ive
itsre
com
me
nd
atio
ns
for
imp
lem
en
tatio
nto
the
Pre
sid
en
t;
Se
ctio
n4
of
the
ML
PO
de
sig
na
tes
the
BB
as
the
resp
on
sib
leb
od
yfo
rsu
pe
rvis
ing
the
act
iviti
es
of
ba
nks
an
dfin
an
cia
lin
stitu
tion
se
ng
ag
ed
infin
an
cia
lact
iviti
es
an
de
mp
ow
ers
the
BB
tom
on
itor
an
da
na
lyze
occ
urr
en
ces
of
mo
ne
yla
un
de
rin
g;
Th
eA
ML
Cir
cula
rN
o.2
pro
vid
es
for
the
an
aly
sis
of
susp
icio
us
tra
nsa
ctio
ns
tha
tm
ay
be
con
ne
cte
dto
mo
ne
yla
un
de
rin
g.
Th
eB
Bh
as
two
me
tho
ds
for
veri
fyin
gp
ract
ica
lco
mp
lian
cew
ithits
po
licie
s;it
revi
ew
sth
eb
an
k’s
pra
ctic
es
itse
lfa
nd
req
uir
es
ba
nks
tofil
lou
ta
self-
ass
ess
me
nt
qu
est
ion
na
ire
.
Art
icle
62
:S
tate
sP
art
ies
are
req
uir
ed
tota
kem
ea
sure
sco
nd
uci
veto
imp
lem
en
ting
the
Co
nve
ntio
n,
thro
ug
hin
tern
atio
na
lco
op
era
tion
;
Sta
tes
Pa
rtie
sa
reo
blig
ate
dto
incr
ea
seth
eir
coo
pe
ratio
nw
ithd
eve
lop
ing
sta
tes
toim
pro
veth
eir
cap
aci
tyto
Mo
ne
y L
au
nd
erin
gP
reve
ntio
n O
rdin
an
ce(M
LP
O),
2008
Ga
zett
eN
otif
ica
tion
(UN
-S
OC
-60
27
/07
,d
ate
d2
7A
pri
l,2
00
8)
Th
rou
gh
the
ga
zett
en
otif
ica
tion
,th
eG
oB
ha
se
sta
blis
he
da
na
uth
ori
tyto
ass
isto
the
rS
tate
sP
art
ies
inim
ple
me
ntin
ga
nd
de
velo
pin
gm
ea
sure
sto
pre
ven
tco
rru
ptio
na
nd
de
sig
na
ted
ace
ntr
al
au
tho
rity
resp
on
sib
lefo
rre
qu
est
so
fm
utu
all
eg
al
Eff
ort
sa
reu
nd
erw
ay
tod
ete
cta
sse
tsa
nd
culp
rits
ab
roa
d;
Th
eB
Bis
wo
rkin
gto
sig
na
gre
em
en
tsw
ithth
eF
ina
nci
alI
nte
llig
en
ceU
nits
ofo
the
rco
un
trie
sto
faci
lita
tein
form
atio
nsh
ari
ng
;
Th
eG
oB
ha
sye
tto
giv
ea
ny
Giv
en
ho
wre
cen
tlyth
eG
oB
ha
sb
ee
ne
qu
ipp
ed
toe
xerc
ise
eff
ort
sin
volv
ing
inte
rna
tion
alc
oo
pe
ratio
n,
itis
diff
icu
ltto
me
asu
rep
ract
ica
lco
mp
lian
ce;
Th
eG
oB
sho
uld
con
sid
er
sen
din
ga
rep
rese
nta
tive
toth
eV
ien
na
Wo
rkin
gG
rou
pm
ee
ting
so
nth
eU
NC
AC
;
177
UN
CA
CP
rov
isio
ns
Do
me
sti
cL
eg
al
/R
eg
ula
tory
Re
gim
eC
om
pa
tib
ilit
yb
etw
ee
nU
NC
AC
an
dD
om
es
tic
Re
gim
e
Co
mp
lian
ce
an
dG
ap
be
twe
en
La
wa
nd
Pra
cti
ce
Re
ma
rks
figh
tco
rru
ptio
n,
toe
nh
an
cem
ate
ria
lan
dfin
an
cia
la
ssis
tan
ceto
said
cou
ntr
ies
tob
ols
ter
the
ira
nti-
corr
up
tion
effo
rts,
top
rovi
de
tech
nic
ala
ssis
tan
ceto
de
velo
pin
gco
un
trie
sto
aid
the
min
imp
lem
en
ting
the
Co
nve
ntio
n,
an
dto
en
cou
rag
eo
the
rS
tate
sP
art
ies
an
dfin
an
cia
lin
stitu
tion
sto
ass
ist
inth
ea
fore
me
ntio
ne
de
ffo
rts.
ass
ista
nce
;
Un
de
rse
ctio
n2
6o
fth
eM
LP
O,
the
Go
vern
me
nt
an
dth
eB
Bh
ave
the
po
we
rto
ma
kea
gre
em
en
tsw
itho
the
rco
un
trie
so
ra
uth
ori
ties
tore
cove
rst
ole
na
sse
ts;
On
be
ha
lfo
fth
eG
ove
rnm
en
t,th
eM
inis
try
of
Fo
reig
nA
ffa
irs
ma
yto
en
ter
into
mu
tua
lag
ree
me
nts
with
frie
nd
lyco
un
trie
s.
he
lpto
oth
er
cou
ntr
ies
for
corr
up
tion
rela
ted
offe
nce
s.A
sa
de
velo
pin
gco
un
try,
itis
un
de
rsta
nd
ab
leth
at
Ba
ng
lad
esh
ha
sn
ot
take
nsi
gn
ifica
nt
ste
ps
tow
ard
com
plia
nce
with
tha
tth
ela
tte
rp
ara
gra
ph
so
fth
ea
rtic
le.
178
Chapter 7
Conclusions
Conclusions
The revised version of the report, “UNCAC: A Bangladesh Compliance &Gap Analysis,” is the result of an extraordinary effort of coordination andcooperation among all concerned government institutions of Bangladesh,the Institute of Governance Studies, BRAC University and the GermanTechnical Cooperation. The report provides an analysis of the entire set ofanti-corruption laws, institutions and processes of Bangladesh against theUNCAC standards. The report was presented by the Government of thePeople’s Republic of Bangladesh at the second Conference of StatesParties in Bali in January, 2008 to convey the nation’s progress inimplementing the UNCAC. Since that time, many developments in law andpractice have taken place. The revised report has been updated withregard to these changes and is more comprehensive in scope. As such, itwill boost the original objective of guiding and instructing anti-corruptionreform programs undertaken by the Government and other stakeholdersover the coming months and years.
Research and analysis indicate that the legal regime of Bangladesh islargely compatible with the standards and principles of the UNCAC.Recent legislation has increased this compatibility. However, a number ofgovernment initiatives in critical areas of governance are necessary toaddress weaknesses with regard to gaps in law and practice.Consequently, development of a time bound action plan to addresschallenges and improve practices is recommended. The following sectionshighlight essential areas of action which require attention to achievesuccessful compliance with the UNCAC.
Reforming Institutions
An anti-corruption framework exists in both the laws and institutions ofBangladesh. There are a number of anti-corruption laws and policies, withthe recent Money Laundering Prevention Ordinance, 2008 beingparticularly noteworthy. The Anti-Corruption Commission (ACC), anindependent anti-corruption body, is also a significant player. Furthermore,recent initiatives taken by the Government for the reconstitution of severalstate institutions, including the Public Service Commission, the ElectionCommission and the formation of the Regulatory Reform Commission,provide a sound basis for the nation’s anti-corruption efforts. However, tofully utilize the laws in place, other key institutions must be reformed. Acoherent approach to institutional reforms is necessary, particularly onethat would address the issue of resources and resolve matters relating tothe independence, accountability, effectiveness and efficiency of theseinstitutions.
181
Promoting Integrity
Since its reconstitution in 2007, the ACC has been working withtremendous enthusiasm and activism, leading to increased publicconfidence. However, ineffective formal controls and a lack of social andcitizen oriented anti-corruption accountability mechanisms have added towhat could be termed as a “crisis of integrity.” This problem necessitatesa long term process of change with the participation of a wide range ofstakeholders through measures involving public-private cooperation andpublic awareness campaigns. Such a process will induce a cultural shiftwith respect to corruption as it encourages the adoption of citizen ownedaccountability mechanisms in Bangladesh. Joint initiatives, such as thelaunch of a nationwide anti-corruption campaign by the ACC withorganizations like Transparency International Bangladesh, will set anexample.
Additionally, the development of a National Integrity Strategy (NIS) willgreatly aid efforts in promoting integrity. In 2007, the Government ofBangladesh agreed to design and implement a NIS through acomprehensive approach that aims to holistically improve integrity in boththe public and private sectors of the State. This policy document sets outbroad policy goals and areas for immediate action that the Governmentwill undertake to promote honesty and transparency in the country. BySeptember 2008, it is expected that the Government will prepare a moredetailed NIS document that will address efforts that are needed in thepublic and private sectors to improve integrity.
Reforming the Public Sector
The regulatory regime governing issues of public sector recruitment, hiring,retention, promotion, conduct and training is thorough and wide-ranging.However, there are areas where existing rules and regulations could bereviewed, updated and upgraded to ensure government efficiency andeffectiveness. The Rules of Business, 1996 and the Government Servants(Conduct) Rules, 1979 are two such regulations that have been cited asexamples, the latter with a view to enhancing public sector integrity. TheGovernment’s plan to formulate a National Integrity Strategy is expected toprovide a vision for the development and implementation of reforms topromote good governance and combat corruption in Bangladesh. Such astrategy would surely take into account the areas identified by the report.Reforms in the funding of political parties and election processes are alsokey areas for enhancing transparency and integrity in the public sector.Additionally, the proposed changes to the Representation of the People’sOrder, 1972 will be instrumental in democratizing political parties and themanner in which they participate in elections.
182
Enhancing Capacity
A wide range of training is offered by various government institutions andtraining centers, including the Bangladesh Public Administration TrainingCentre, the ACC, and the Bangladesh Bank, some of which are specificallydedicated to corruption and governance related issues. However, there area number of ways in which training and capacity building for public officialscan be improved. Particularly useful would be the development of specifictraining modules and courses on anti-corruption issues, strategies andmechanisms. In addition, training tools and methodologies need to bemodernized through a more problem solving approach, therebystrengthening technical proficiency and project management skillssufficient to meet the day to day demands of public officials. To makethese advancements and encourage training in general, the GoB shouldmake it a priority to grant or secure the requisite funds.
Furthermore, the Government’s efforts will be strengthened throughinformation gathering and sharing, thereby facilitating monitoring andanalysis, which are essential for a successful campaign against corruption.The Bangladesh Bank and the ACC already are performing these activities,particularly with regard to monitoring practical compliance with therelevant anti-corruption laws. However, more resources should be devotedto analysis of incidents of corruption, along with monitoring theeffectiveness of policies.
Implementing Reforms in Public Procurement
Public procurement and management of public finances are among themost vulnerable areas of public administration; as such, it has been apriority area for reform in Bangladesh. Procedures and regulations haveevolved over the years and have been consolidated in recent times into acomprehensive regime comprised of the Public ProcurementRegulations, 2003, the Public Procurement Act, 2006 and the PublicProcurement Rules, 2008. A key aspect of these reforms is a shift towardgreater autonomy for procuring entities from the Cabinet and concernedministries, as they have now been delegated the authority to award andapprove contracts, within defined ceilings. Moreover, an institutionalmechanism, the Central Procurement Technical Unit, has been created toensure greater transparency and accountability. However, the applicationof the procurement regime has proven to be relatively inconsistent acrossthe Government and within individual agencies. Moreover, implementationhas been severely hindered by the lack of adequate resources withinconcerned agencies. The Public Procurement Reform Project II isexpected to form a Management Information System that will serve thefour most crucial sectors of the Government of Bangladesh, introduce e-governance in procurement, and establish a public/private partnership
183
with the involvement of beneficiary groups, civil society and NGOs, all ofwhich will facilitate the proper implementation of the regulatory regime.Such measures will strengthen accountability, cut down associated costsand promote transparency.
Improving the Management of Public Finance
The Office of the Comptroller and Auditor General (CAG) is theconstitutionally sanctioned mechanism that has been entrusted with themanagement of public finances and related oversight of all publicinstitutions. Additionally, the Parliamentary Rules of Procedure providesa detailed framework for the presentation of the budget and discussionsregarding it. Existing auditing standards and financial management rulesare complimentary to the provisions of the UNCAC. However, separateinternal audit departments are needed to advance the function and role ofthe CAG, which would address delays in the finalization and submissionof annual reports to the President, thereby enabling timely correctiveaction.
Improving Criminalization and Law Enforcement
Bangladesh has yet to criminalize certain UNCAC offences; these includebribery of foreign public officials and officials of public internationalorganizations, and bribery in the private sector. This shortcoming isadversely affecting the fight against corruption. To overcome this situation,criminalization of these acts deserves consideration and attention bylawmakers. It is encouraging, however, that after acceding to the UNCAC,Bangladesh amended its anti-money laundering legal regime. The newlyenacted Money Laundering Prevention Ordinance, 2008 duly reflects thespirits of the UNCAC.
So far as law enforcement measures are concerned, more attention shouldbe paid to the practical application of legal standards in a more consistentmanner. However, it is encouraging that in some cases, domesticstandards are more prosecution friendly than the UNCAC; for example,there are no statutory limitations for criminal offences. With regard to theprosecution of public officials for corruption cases, jurisdictional privilegeshave been removed with the enactment of the Anti-CorruptionCommission Act, 2004. Though significant efforts have been made inprosecuting offenders of corruption in recent times, over the years, manyof the law enforcement measures remained underused. Another obstaclethat should be remedied lies in the lack of adequate provisions to protectwitnesses, experts, and victims.
184
Enhancing International Cooperation
Bangladesh has taken the option to cooperate with other States Parties onthe basis of bilateral treaties with regard to extradition of offenders. Thelegal regime regarding extradition is governed by the Extradition Act,1974. Its various provisions detail extraditable offences as well as otherconditions on extradition. Thailand is the only country with whichBangladesh has an extradition treaty, but additional agreements arecurrently being negotiated. It is recommended that the list of extraditableoffences mentioned in the Extradition Act, 1974 be reviewed to include theUNCAC offences.
With regard to mutual legal assistance, Bangladesh now has the legalbasis to ensure the widest mutual legal assistance to other UNCAC StatesParties as required by the Convention. Previously, there were provisions inplace for seeking assistance in gathering evidence through commissionsto examine witnesses abroad and for entering into agreements with foreigncountries to control money laundering; however, these measures providedlimited options for international cooperation. Recently, the nomination of acentral authority for seeking and responding to requests of mutual legalassistance has vastly increased opportunities for internationalcooperation, particularly, among the States Parties. Nevertheless,domestic legislation in these respects still requires some amendments andimprovements in order to clarify the procedural requirements and be fullycompatible with the UNCAC provisions.
Strengthening Prevention and Detection of Laundering and Proceeds of Crime
Money laundering was first criminalized in Bangladesh by the MoneyLaundering Prevention Act (MLPA), 2002 which applied to all forms ofmoney laundering. However, there were a number of difficulties with thelegal framework that it created; for example, the definition of moneylaundering was ambiguous. Additionally, other regulators, such as theSecurities and Exchange Commission, who are in possession of financialinformation through annual business reports, were excluded fromresponsibility under the Act. The MLPA focused on banks and financialinstitutions and as such it did not address other trade based moneylaundering, i.e., other business establishments like property developers,high value dealers of jewelry, and car dealers. In light of these problems,the Money Laundering Prevention Ordinance, 2008 was enacted,repealing the MLPA, to address the aforementioned issues.
With regard to prevention and detection of proceeds of crime, the reporthighlights the formation of the Financial Intelligence Unit (FIU) thatoperates as part of Anti-Money Laundering Department of the Bangladesh
185
Bank, the country’s central bank. The FIU is entrusted with receiving,analyzing and disseminating information to detect suspicious transactions,as well as tracing and referring cases for prosecution to the Anti-Corruption Commission. However, its effectiveness will be largelyenhanced once Bangladesh acquires membership into the Egmont Group.Bangladesh has already taken few steps to fulfill the requirements forbecoming a member, which include enactment of the Money LaunderingPrevention Ordinance, 2008 and the Anti-Terrorism Ordinance, 2008which contains provisions criminalizing terrorist financing. Bangladeshshould now take the last few steps to becoming a member of the EgmontGroup. In addition, the Bangladesh Bank has undertaken efforts to preventand detect the proceeds of crime, although for its actions to be moreeffective, capacity needs, such as upgrading its current database andintelligence analysis system, must be met.
Final Remarks
The aforementioned recommendations will undoubtedly place Bangladeshwell on the road to compliance with the UNCAC; however, legal action inand of itself is not sufficient for successfully combating corruption. Itcannot be over emphasized that any reform regime, including its auxiliaryimplementation framework, must be entrenched in the will of thestakeholders, both public and private, and above all, in the absolutewholehearted participation of the citizens of Bangladesh.
186
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The Anti-Terrorism Ordinance, 2008 (Ordinance No. XXVII of 2008)
The Bangladesh Bank (Anti-Money Laundering) Circular No. 14 (25 Sept. 2007)
The Bangladesh Bank (Anti-Money Laundering) Circular No. 2 (17 July 2002)
The Bangladesh Bank (Anti-Money Laundering) Circular No. 7 (14 August 2005)
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187
The Money Laundering Prevention Ordinance, 2008 (Ordinance No. XII of 2008)
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188
Index
Abetment 73, 75, 78
Abuse of functions 75
Adjudication 28, 81, 149
Administration of frozen or attached property 84
Administrative Appellate Tribunal 28
Anti-Corruption Commission (ACC) 19, 20, 25, 26, 27, 30, 36, 50, 51, 52, 76, 82, 83, 87, 89, 90, 91, 142, 143, 149, 151, 168, 171, 173, 181, 182, 183
Anti-Money Laundering Department (AMLD) 144, 168, 172
Asset 19, 20, 21, 33, 34, 36, 37, 76, 83, 122, 139, 144, 145, 151, 152, 153, 169, 173, 174
Attachment of properties 83,
Attempt 79, 80, 141, 142
Audit 20, 45, 46, 47, 184
Awareness Campaign 26, 50, 51, 182
Bangladesh Bank (BB) 19, 20, 87, 89, 90, 91, 123, 127, 139, 140, 141, 142, 143, 144, 145, 146, 147, 149, 150, 151,
152, 153,168, 169, 171, 172, 173, 183, 186
Bangladesh Bank Training Academy (BBTA) 168
Bangladesh Public Administration Training Centre (BPATC) 29, 30, 169, 183
Bank secrecy 91, 122, 123
Bona fide third party rights 150, 151, 152
Bribery 73, 74, 82, 89, 118, 142
Budget 31, 45, 46, 47, 169, 184
Caretaker Government 25
Central authority 122, 123, 124, 150, 151, 173, 185
City Corporation 32, 82
Code of Conduct 25, 35
Collection, Exchange and Analysis of Information 170
Compensation 86, 148, 152
Comptroller and Auditor General 45, 87, 184
Concealment 77, 78, 141, 167
Confiscation 83, 84, 122, 141, 148, 149, 150, 151, 152, 153
Confiscation order 149, 151
189
Consequences of acts of corruption 85
Cooperation between national authorities 89, 90, 91
Cooperation with law enforcement authorities 88
Criminal record 20, 91
Discipline 28, 34, 37, 38, 82
Disclosure of information 36, 49, 123, 152
Disposed property 152
Diversion of property 74, 75, 82
Dual criminality 122, 125, 141
Egmont group 144, 186
E-governance 41, 144, 186
Election Commission (EC) 26, 32, 33
Electronic fund transfer 139, 140
Embezzlement 74, 75, 82, 118
Exemptions 49
Extraditable offences 117, 118, 119, 120, 121, 123, 125, 167, 170, 185
Extradition 19, 21, 93, 117, 118, 119, 120, 121, 123, 125, 167, 170, 185
Extradition treaty 118, 119, 121, 185
Financial disclosure system 146, 148
Financial Intelligence Unit 20, 127, 139, 140, 144, 173, 185
Freezing 83, 84, 149, 150
Governance 17, 25, 26, 26, 29, 30, 33, 39, 41, 50, 88, 181, 182, 183
Guidance Note on Prevention of Money Laundering 143
Illicit enrichment 76
Immunity from prosecution 88
Independence of the judiciary 87
Joint investigative bodies 127, 128
Jurisdiction 20, 33, 49, 50, 76, 82, 92, 120, 124, 126, 141, 142, 149, 168, 184
Know Your Customer (KYC) 143, 146, 149
Knowledge 18, 40, 44, 80, 84, 85, 88, 89, 90, 169, 170, 172, 172
Liability of legal persons 79
Loan defaulters 32
Management Information System 41, 183
Mens rea 79
Misappropriation 74, 75, 78, 82
190
Mitigation of sentences 88
Money laundering 20, 77, 78, 83, 84, 87, 88, 89, 90, 92, 118, 123, 127, 139, 140, 141, 142, 143, 144, 145, 146, 147, 149,
152, 153, 168, 169, 171, 172, 184, 185, 186
Monitoring 20, 21, 39, 46, 49, 124, 140, 147, 167, 169, 170, 171, 172, 183
Multilateral and bilateral agreements 153
National Integrity Strategy (NIS) 26, 182
Obstruction of justice 78
Ombudsman 87
Participation 19, 20, 25, 26, 32, 38, 42, 43, 48, 50, 51, 52, 77,79, 80, 141, 170, 171, 174, 182, 186
Pay Commission 30, 31
Politically Exposed Persons (PEPs) 147
Predicate offence 77, 141, 142
Preparation 20, 43, 48, 79, 80, 144, 167, 170
Proceeds of corruption 83, 84, 92, 148, 152, 167
Proceeds of crime 19, 21, 77, 83, 89, 119, 121, 122, 124, 139,141, 145, 146, 148, 150, 151, 185, 186
Prosecution 20, 78, 79, 81, 82, 85, 87, 88, 91, 117, 118, 122, 124,126, 127, 141, 150, 152, 168, 171, 184, 186
Protection of experts 79, 84
Protection of victims 84
Protection of witnesses 79, 84
Public Accounts Committee (PAC) 45, 88
Public Sector Accounting 46
Public Service Commission (PSC) 26, 28, 29
Recruitment 25, 26, 27, 28, 29, 37, 182
Regulatory Reform Commission (RRC) 27
Reporting organization 84, 90, 91, 139, 143, 168
Review Panel 42, 44
Right to Information 48
Safe harbor provision 143
Seizure 83, 84, 149, 150
Shell bank 147
Specialized authorities 86
Statute of limitations 81
191
Suspicious transaction 89, 139, 141, 143, 144, 145, 152, 171, 186
Tax Ombudsman 87
Technical assistance 18, 20, 21, 167, 169, 170, 172, 173
Tender document 43
Tender Evaluation Committee 39
The Anti-Corruption Commission (ACC) Act, 2004 25, 26, 27, 36, 50, 51,52, 76, 82, 83, 87, 89, 90, 168, 184
The Anti-Terrorism Ordinance, 2008 144, 184
The Code of Civil Procedure 148
The Code of Criminal Procedure (CrPC), 1898 120, 123, 124
The Extradition Act (EA), 1974 118, 119, 120, 121, 122, 125, 185
The Money Laundering Prevention Ordinance (MLPO), 2008 77, 78, 80, 83, 84, 85, 87, 88, 89, 90, 91, 123, 139, 140, 141, 142, 143, 144, 145, 146,
147, 148, 149, 150, 151, 152, 153, 168, 169, 171, 172, 173, 185, 186
The Penal Code, 1860 25, 36, 37, 73, 74, 75, 77, 78, 79, 80, 92
The Public Procurement Act, 2006 39, 40, 42, 43, 44, 45, 183
The Public Procurement Rules, 2008 39, 40, 42, 43, 44, 45, 183
The Right to Information Ordinance, 2008 (proposed) 48
Trading in influence 75, 82
Training 26, 29, 30, 40, 41, 44, 45, 87, 127, 143, 145, 146, 167, 168, 169, 170, 171, 182,183
Transfer of legal proceeding 126
Transferring sentenced person 121
Transparency International Bangladesh (TIB) 27, 30, 51, 168, 182
Truth and Accountability Commission 89
Undercover investigation 128
Union parishad 82
Wealth statement 37, 76, 147
Whistleblower 36, 85
192
