by Drury D. Stevenson & Nicholas J. Wagoner
The Foreign Corrupt Practices Act (FCPA) criminalizes bribery
of foreign government officials. The frequency of enforcement actions and severity of fines levied
against corporations under the FCPA have significantly increased in the last
few years. There is an ongoing
problem, however, with the sanctions for FCPA violations: enforcement authorities (the Department
of Justice and the Securities and Exchange Commission) and contracting
officials have limited themselves to fines, civil penalties, and occasional
imprisonment of individual violators. Debarment from future federal government contracts, even temporarily, is
an unused sanction for FCPA violations, even though Congress provided for this
punishment by statute. Debarment
offers a far more potent deterrent than fines and penalties, as multinational
contractors that conduct business with the United States are much less likely
to view the sanction as merely a cost of doing business. If ridding foreign markets of
corruption truly is a top priority of the United States, it seems both unfair
and imprudent for federal agencies to continue awarding lucrative, multi-billion
dollar contracts to firms recently prosecuted for fraudulently obtaining them
overseas.
Enforcement officials shy away from debarring entities that
violate the FCPA due to the short-term inconvenience of an agency’s inability
to transact business with its favorite contractor, its inability to demand
favorable bids from contractors when the field of potential bidders has
thinned, the resulting job loss, and the risk of overdeterring companies that
might otherwise pursue lucrative opportunities in emerging markets. This is the “too big to debar”
problem—the federal government is too dependent on a particular set of large,
private sector corporations for equipment and services. In addition to the virtual immunity
from debarment enjoyed by these firms when they violate the FCPA, the fines
imposed for engaging in foreign corrupt practices comprise a tiny fraction of
the potential revenue generated by lucrative contracts with the United States
and foreign states. When
discounted by the low probability of detection, these sanctions are far too low
to deter unlawful activity.
Debarment would deter potential wrongdoers and incapacitate
actual offenders. The deterrent
would induce more firms to comply with the law, which would allow the “too big
to debar” problem to diminish over time. To help illuminate these concerns and lend support to the thesis, this
Article will examine the third largest FCPA-related enforcement action to
date: the BAE Systems case. On March 1, 2010, BAE Systems paid
approximately $400 million in fines for its corrupt practices abroad. In the year that followed, however, the
federal government awarded BAE contracts in excess of $6 billion. The United States’ refusal to debar BAE
because of the potential “collateral consequences” provides a case study on the
benefits and drawbacks of deterring foreign corruption through suspension and
debarment. This Article concludes
that the United States must begin to diversify its portfolio of federal
contractors so that prosecutors may leverage the legitimate threat of
suspension and debarment to more effectively deter foreign corruption.