oecd -新冠疫情下的假冒偽劣商品非法貿(mào)易 Illicit Trade in Fakes under the COVID-19

IllicitTrade

IllicitTradeinFakesundertheCOVID-19

TradeinFakesundertheCOVID19

》OECD

IllicitTrade

IllicitTradeinFakesundertheCOVID-19

ThisdocumentreproducesareportjointlypreparedbytheOECDandtheEuropeanUnionIntellectualPropertyOfficeandpreparedforpublicationbytheOECDSecretariat.TheworkispublishedundertheresponsibilityoftheSecretary-GeneraloftheOECD.TheopinionsexpressedandargumentsemployedhereindonotnecessarilyreflecttheofficialviewsofallMemberStatesoftheEuropeanUnion.

ThenamesandrepresentationofcountriesandterritoriesusedinthisjointpublicationfollowthepracticeoftheOECD.Thisdocument,aswellasanydataandmapincludedherein,arewithoutprejudicetothestatusoforsovereigntyoveranyterritory,tothedelimitationofinternationalfrontiersandboundariesandtothenameofanyterritory,cityorarea.

NotebytheRepublicofTürkiye

Theinformationinthisdocumentwithreferenceto“Cyprus”relatestothesouthernpartoftheIsland.ThereisnosingleauthorityrepresentingbothTurkishandGreekCypriotpeopleontheIsland.TürkiyerecognisestheTurkishRepublicofNorthernCyprus(TRNC).UntilalastingandequitablesolutionisfoundwithinthecontextoftheUnitedNations,Türkiyeshallpreserveitspositionconcerningthe“Cyprusissue”.

NotebyalltheEuropeanUnionMemberStatesoftheOECDandtheEuropeanUnion

TheRepublicofCyprusisrecognisedbyallmembersoftheUnitedNationswiththeexceptionofTürkiye.TheinformationinthisdocumentrelatestotheareaundertheeffectivecontroloftheGovernmentoftheRepublicofCyprus.

Pleasecitethispublicationas:

OECD/EUIPO(2024),IllicitTradeinFakesundertheCOVID-19,IllicitTrade,OECDPublishing,Paris,

/10.1787/0c475a23-en

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ISBN978-92-64-37963-3(print)ISBN978-92-64-94009-3(PDF)ISBN978-92-64-99666-3(HTML)ISBN978-92-64-75763-9(epub)

IllicitTrade

ISSN2617-5827(print)ISSN2617-5835(online)

EuropeanUnionISBN:

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TB-09-24-112-EN-C(print)TB-09-24-112-EN-N(pdf)

Photocredits:CoverdesignbyPiotrDubiel.

CorrigendatoOECDpublicationsmaybefoundonlineat:

/about/publishing/corrigenda.htm

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ILLICITTRADEINFAKESUNDERTHECOVID-19?OECD/EUIPO2024

Preface

Illicittradeincounterfeitandpiratedgoodsposesamajorchallengetoaglobalinnovation-basedeconomy.Itdamageseconomicgrowthandfuelsorganisedcrime,whichcanunderminetrustinfunctioningmarketsandtherules-basedinternationaltradingsystem.TheCOVID-19pandemichasexacerbatedexistingproblemsbyre-shapingvaluechains,shiftingconsumerdemand,and,consequently,openingnewopportunitiesforillicittradenetworks.Policymakersneedsolidempiricalevidencetotakeactionagainstillicittrade.Tomeetthisneed,theOECDandtheEUIntellectualPropertyOffice(EUIPO)havejoinedforcestocarryoutaseriesofanalyticalstudies.Theresultshavebeenpublishedinaseriesofreportsthatgaugeillicittradeincounterfeitandpiratedgoods.

WearepleasedtoprovideauniqueinsighttotheobservedtrendsofillicittradeincounterfeitsduringtheCOVID-19pandemic.Weareconfidentthattheresultswillenhanceourunderstandingoftheriskthatcounterfeitingposestotheglobaleconomyandsociety,facilitatethedevelopmentofinnovativepolicyoptionstorespondtothesechallenges,andpromotecleantradeinthepost-COVID-19recovery.

Jo?oNegr?o,

ExecutiveDirector,

EuropeanUnionIntellectualPropertyOffice

MathiasCormann,Secretary-General,

OrganisationforEconomicCo-operationandDevelopment

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ILLICITTRADEINFAKESUNDERTHECOVID-19?OECD/EUIPO2024

Foreword

Illicittradeinfakegoodsisasignificantandgrowingthreatintoday’sglobalisedandinnovation-driveneconomy.Itsharmfulimpactoneconomicgrowth,innovation,theruleoflawand,ultimately,trustinwell-functioningglobalmarkets,shouldnotbeunderestimated.

Inrecentyears,theOECDandtheEUIntellectualPropertyOffice(EUIPO)havebeencollectingevidenceonvariousaspectsofthisrisk.Theresultshavebeenpublishedinaseriesofreports,startingwithTradeinCounterfeitandPiratedGoods:MappingtheEconomicImpact(2016).Theseresultshavebeenexpandedandupdatedinsubsequentreports,includingTrendsinTradeinCounterfeitandPiratedGoods(2019)andGlobalTradeinFakes:AWorryingThreat(2021).Thefindingsareofconcern,astradeincounterfeitandpiratedgoodswasfoundtoamounttoupto2.5%ofworldtradein2019;whenconsideringonlyimportsintotheEuropeanUnion,fakegoodsamountedtoupto5.8%ofimports.Theseshareshaveremainedstableovertheyears,andillicittradeinfakesremainsaseriousrisktomodern,openandglobalisedeconomies.

Thisreportbuildsonpreviousanalysis,presentingdetailedquantitativeinformationonthevalueofillicittradeinfakegoodsinthecontextoftheCOVID-19pandemic,consideringtheprofoundshiftsinconsumerdemand,changesinenforcementpriorities,andsuddenreshufflesinsupplychains.Theevidenceinthisreportcanservetoraiseawarenessoftherisksofthistradeanditsimplicationsforpost-COVID-19recoverypolicies.

ThisreportwaspreparedundertheauspicesoftheOECDWorkingPartyonCounteringIllicitTrade,whichfocusesonevidence-basedresearchandadvancedanalyticstoassistpolicymakersinmappingandunderstandingthevulnerabilitiesexploitedandcreatedbyillicittrade.

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Acknowledgements

ThisreportwaspreparedbytheOECDTradeandAgricultureDirectorate,undertheleadershipofMarionJansen,TradeandAgricultureDirector,andJohnDrummond,HeadoftheTradePolicydivision,togetherwiththeEuropeanObservatoryonInfringementsofIntellectualPropertyRights,ledbyitsDirectorPatriciaEscudero,attheEuropeanUnionIntellectualPropertyOffice(EUIPO).

AttheOECD,thisstudywasconductedundertheauspicesoftheWorkingPartyonCounteringIllicitTrade(WP-CIT).ThereportwaspreparedbyPiotrStryszowski,SeniorEconomist,andMorganeGaudiau,EconomistattheOECDDirectorateforPublicGovernance,jointlywithMicha?Kazimierczak,EconomistattheEuropeanObservatoryonInfringementsofIntellectualPropertyRightsoftheEUIPOandNathanWajsman,ChiefEconomist,EUIPO.

TheauthorswouldliketothankexpertsfromtheOECDcountriesandparticipantsatseveralseminarsandworkshopsfortheirvaluableassistance.SpecialexpressionsofappreciationareextendedtoGeorgeAgiusfromMaltaCustoms,ChrisMabelitinifromtheUSCustomsandBorderProtectionagency(CBP),RiikkaPakkanenfromFinnishCustoms,MartaCastillo-GonzalezandJannikGrootenfromtheEuropeanAnti-FraudOffice(OLAF),TravisD.JohnsonfromtheInternationalAntiCounterfeitingCoalition(IACC),PhilLewisthemtheUKAnti-CounterfeitingGroup,andJunaShehufromIndicam.

LivGudmundsonandMichèlePattersonprovidededitorialandproductionsupport.

ThedatabaseoncustomsseizureswasprovidedbytheWorldCustomsOrganization(WCO)andsupplementedwithregionaldatasubmittedbytheEuropeanCommission'sDirectorate-GeneralforTaxationandCustomsUnion,theUSCustomsandBorderProtectionAgencyandtheUSImmigrationandCustomsEnforcement.Theauthorsexpresstheirgratitudeforthedataandforthevaluablesupportoftheseinstitutions.

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ILLICITTRADEINFAKESUNDERTHECOVID-19?OECD/EUIPO2024

Tableofcontents

Preface3

Foreword4

Acknowledgements5

ExecutiveSummary8

1Introduction9

References11

Note11

2Internationaltradeduringthepandemic:Facts,trends,andchallenges12

2.1.Chronologyandscaleofthepandemic13

2.2.VolumeofinternationaltradeduringthepandemicintheEuropeanUnion14

2.3.Impactsonthesectoralcompositionoftrade17

References24

Notes24

Annex2.A.Additionalfigures25

3EffectsofCOVID-19onillicittradeinfakes:Whatdoweknowsofar?35

3.6.Enforcementchallengesandresponses43

3.7.Lessonslearned44

References46

Notes47

Annex3.A.ListofCOVID-19-relatedproducts48

Annex3.B.QuestionscoveredininterviewswithexpertsontheimpactofCOVID-19intheillicit

tradeofcounterfeitproducts56

4Concludingremarks58

4.1.Nextsteps59

Figures

Figure2.1.EvolutionofCOVID-relateddeathsandrestrictionsbyEUgovernments14

Figure2.2.ValueofoverallexternalimportsintotheEuropeanUnion15

Figure2.3.Evolutionoftheabsolutevalueofimportsfromthemaintradingpartners

oftheEuropeanUnion16

Figure2.4.EvolutionofexternalimportsofelectricalmachineryandelectronicsintotheEU2717

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Figure2.5.EvolutionofexternalimportsofclothingandaccessoriesintotheEU2718

Figure2.6.EvolutionofexternalimportsofleatherproductsintotheEU2718

Figure2.7.EvolutionofexternalimportsofperfumeryandcosmeticsintotheEU2719

Figure2.8.EvolutionofexternalimportsofpharmaceuticalsintotheEU2719

Figure2.9.EvolutionofsharesofCOVID-relatedproductsintheoverallvalue

ofEUexternalimports(excludingimportsinHS27comprisingcrudeoil)20

Figure2.10.EvolutionofsharesofCOVID-relatedproductsintheoverallvalueof

EUexternalimports(excludingimportsinHS27comprisingcrudeoil)21

Figure2.11.EvolutionofsharesofCovid-relatedproductsintheoverallvalue

ofEUexternalimports(excludingimportsinHS27comprisingcrudeoil),

categoriesEtoG22

Figure3.1.EvolutioninthenumberofseizuresmadebyEUcustomsfrom2018to202138

Figure3.2.EvolutioninthenumberofseizuresmadebyUScustomsauthorities

from2017to202138

Figure3.3.Changeintheshare(intermsofnumberofglobalseizures)ofthe

top25provenanceeconomiesforcounterfeitgoodsbetween2017-19and2020-2139

Figure3.4.ShareoffacemasksseizedbyEUcustomsamongtheseizuresofthe

correspondingHScodefromQ32019toQ3202141

Figure3.5.ShareoffacemasksseizedbyUScustomsamongtheseizuresofthe

correspondingHScodefromQ32019toQ3202141

Figure3.6.Changeintheshareofproductcategoryamongglobalcustomsseizures

between2017-19and2020-21(inpercentagepoints)42

AnnexFigure2.A.1.EvolutionofsharesofmaintradingpartnersoftheEuropeanUnion

intheoverallvalueofEUexternalimports25

AnnexFigure2.A.2.Evolutionofabsolutevalueoflicitimportsfromeconomiesfoundtobe

themainprovenanceofcounterfeitgoods26

AnnexFigure2.A.3.EvolutionofsharesoflicitimportsintheoverallvalueofEUexternalimports

fromeconomiesfoundtobethemainprovenanceofcounterfeitgoods27

AnnexFigure2.A.4.EvolutionofabsolutevalueofEU27importsofCOVID-19testkitsandinstruments

andapparatususedindiagnostictesting28

AnnexFigure2.A.5.EvolutionofabsolutevalueofEU27importofprotectivegarmentsandthelike,

byprovenanceeconomies29

AnnexFigure2.A.6.EvolutionofabsolutevalueofEU27importofdisinfectantsandsterilisationproducts,

byprovenanceeconomies30

AnnexFigure2.A.7.EvolutionofabsolutevalueofEU27importofoxygentherapyequipment,

byprovenanceeconomies31

AnnexFigure2.A.8.EvolutionofabsolutevalueofEU27importofmedicaldevicesandequipment,

byprovenanceeconomies32

AnnexFigure2.A.9.EvolutionofabsolutevalueofEU27importofmedicalconsumables,

byprovenanceeconomies33

AnnexFigure2.A.10.EvolutionofabsolutevalueofEU27importofmedicalvehiclesandfurniture,

byprovenanceeconomies34

Boxes

Box1.1.TheOECD-EUIPOdatabaseofseizuresofcounterfeitgoods10

Box3.1.Whataretheprovenanceeconomies?37

Box3.2.OLAFinvestigationintomedicalsuppliesusedtoprotectagainstCOVID-1940

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ExecutiveSummary

TheCOVID-19pandemic,anunprecedentedglobaleventthatbeganin2020,hasprofoundlyinfluencedalmosteveryaspectofhumanlife,includingthedynamicsofglobaltradeandtheproliferationofcounterfeitgoods.Therapidglobalspreadofthevirus,withitsvaryinghealthimpacts,promptedgovernmentstoswiftlyenactarangeofpreventativeandmitigativemeasures.Theseincludedwidespreadtravelrestrictions,lockdowns,andbusinessclosures,whichhadimmediateandfar-reachingeffectsonglobaltrade.

Intheshortterm,thesemeasuresledtosignificantdisruptionsinsupplychains,decreasedoveralldemand,ashifttowardslocalproduction,protectionistpoliciesbysomenations,andsubstantialshippingdisruptions.Thesechangesdirectlyimpactedseveralsectors,particularlytourismandaeronautics,leadingtoeconomicdownturnsintheseindustries.Indirecteffectsofthepandemicontradebecamemoreevidentduringtherecoveryphase,postthesecondwave.Theseincludedasubstantialincreaseine-commerce,atransitiontodigitalservices,andtheaccelerateddigitizationofcustomsprocesses,whichfacilitatedtradeduringthesechallengingtimes.

Thepandemicalsopresenteduniqueopportunitiesforcriminalnetworksinvolvedinillicittradeincounterfeits.Therewasanoticeableshiftinthenatureandvolumeofcounterfeitgoods,initiallymarkedbyadecreasebutfollowedbyanincreaseincounterfeitCOVID-relatedproductslikePPE,testkits,andmedicines.CounterfeitoperationsexpandedbeyondCOVID-relateditemstoawiderrangeofproducts,takingadvantageofthesurgeinonlineshopping.Thisshifttowardse-commerce,alastingimpactofthepandemic,creatednewchallengesincombatingcounterfeittrade.

Enforcementauthoritiesfacedtheirownsetofchallenges,includingoperationaladjustmentsandstaffingissues,whichaffectedtheirabilitytorespondtotheevolvingcounterfeittradelandscape.However,theobserveddeclineincounterfeitseizureswasattributablemoretochangesintradevolumethanareductioninenforcementefficiency.

Thepandemichighlightedthenecessityforacohesive,integratedresponsetocounterfeiting,encompassinginternationalandnationalco-operation.Effectivestrategiesinvolvedrapidresponseteams,partnershipsbetweenenforcementagenciesandbusinesses,remoteworkingpracticestoprotectfieldofficers,andvirtualtrainingsessions.ThefightagainstcounterfeitingintheCOVID-19eraunderscoredtheneedforcomprehensivestrategiesthatengagenotonlylawenforcementbutalsofinancial,e-commerce,andtelecommunicationsectors.Thisintegratedapproachiscrucialforunderstandingandcombatingthemultifacetedchallengesofcounterfeittradeinapost-pandemicworld.

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1Introduction

TheCOVID-19pandemic,anunparalleledglobalevent,hassignificantlyaffectednearlyeverysphereofhumanactivity.Amongthediversesectorsdisruptedwasthecomplexdomainofcounterfeitingandillicittrade,intertwinedwiththebroaderchallengesofintellectualpropertyrights(IPR)enforcement.Forcriminalsthatrunillicittradenetworks,theCOVID-19pandemicopenednewopportunitiesforprofits.Brokensupplychains,strongdemandformedicines,protectiveequipmentandtestsorlimitedcapacitiesoflawenforcementofficialsarefactorsthatshapedthelandscapeofillicittrade.

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TheCOVID-19pandemic,anunparalleledglobalevent,hassignificantlyaffectednearlyeverysphereofhumanactivity.Amongthediversesectorsdisruptedwasthecomplexdomainofcounterfeitingandillicittrade,intertwinedwiththebroaderchallengesofintellectualpropertyrights(IPR)enforcement.Forcriminalsthatrunillicittradenetworks,theCOVID-19pandemicopenednewopportunitiesforprofits.Brokensupplychains,strongdemandformedicines,protectiveequipmentandtestsorlimitedcapacitiesoflawenforcementofficialsarefactorsthatshapedthelandscapeofillicittrade.

ThisreportoffersaqualitativeattemptofunderstandingofhowtheCOVID-19pandemicreshapedtheworldofillicittradeincounterfeitgoods.ResultsdiscussedinthisreportprimarilyrelyonasetofstructuredinterviewscarriedoutinJuly-September2023withenforcementandindustrydelegatesfromOECDcountries,andonfindingsofasetofdeep-divewebinarsorganisedbytheOECDTaskForceonCounteringIllicitTrade1duringthepandemic,betweenMarch2020andJanuary2021;seeOECD(2020[1]),(2020[2]),(2021[3]),(2021[4]).Inaddition,thereportalsopresentsasetofquantitativeillustrationsdrawnfromtheOECD-EUIPOdatabaseofseizuresofcounterfeitgoods

(Box1.1)

.

Thereportisstructuredasfollows.Chapter2discussesthemaineconomicimpactsoftheCOVID-19pandemic,withaparticularfocusontheEuropeanUnion.Chapter3describesitseffectsontradeinfakesthroughthelensofvariousexperts,thechallengesencountered,theevolvingcriminaltacticsandpotentialsolutionstomitigateescalatingconcerns.Chapter4concludesandflagssomeareasforfutureresearch.

Box1.1.TheOECD-EUIPOdatabaseofseizuresofcounterfeitgoods

Dataoncustomsseizuresofcounterfeitgoodsareusedasarawinputforanalysis.Thesedataoriginatefromnationalcustomsadministrationsandareaggregatedandharmonisedatthenationalorregionallevelandthensubmittedtointernationalagenciesthatmaintaindatasetsonseizures.Thesedatasetswerereceivedfrom:(i)TheWorldCustomsOrganization(WCO),(ii)theECDirectorate-GeneralforTaxationandCustomsUnion(DGTAXUD),and(iii)theUnitedStates(US)DepartmentofHomelandSecurity(DHS)containingtheseizuredatafromUSCustomsandBorderProtection(CBP,theUScustomsagency),andfromUSImmigrationandCustomsEnforcement(ICE).Theglobalcustomsseizuresdataareavailablefrom2011to2021.

Anoverviewofcustomsseizuredatausedinthisreportcanbefoundindedicatedoverviewpublications,presentedbyEUIPOandDGTaxud(EUIPO,2022[5]),USCBPICE(CBP,2022[6]),andtheWorldCustomsOrganization(WCO,2022[7])(WCO,2023[8]).

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References

CBP(2022),FiscalYear2021IntellectualPropertyRightsSeizureStatistics,USCustomsandBorderProtection(CBP),

/document/annual-report/fy-2021-ipr-seizure

-statistics.

EUIPO,D.(2022),ReportontheEUenforcementofintellectualpropertyrightsin2021,

/10.2814/6921

.

OECD(2021),Chair’sSummaryofthewebinar“COVID-19vaccineandthethreatofillicittrade”organisedbytheOECDTF-CITon21December2020,

/official

-

document/GOV/PGC/HLRF/TFCIT(2021)2/en.

OECD(2021),Chair’sSummaryofthewebinar“Crisispolicy,illicitalcoholandlessonslearnedfromlockdown”organisedbytheOECDTF-CITon12January2021.,

/official-document/GOV/PGC/HLRF/TFCIT

(2021)4/en.

OECD(2020),Chair’sSummaryofthewebinar“HighRiskSectorsinCOVID-19recovery”organisedbytheOECDTF-CITon16June2020,

/official

-

document/GOV/PGC/HLRF/TFCIT(2020)6/en.

OECD(2020),Chair’sSummaryofthewebinar“Illicittradeinatimeofcrisis”organisedbythe

OECDTF-CITon23April2020.,

/official

-document/GOV/PGC/HLRF/TFCIT(2020)3/en.

WCO(2023),IllicitTradeReport2022,WorldCustomsOrganization,

/en/topics/enforcement-and-compliance/resources/publications.aspx

.

WCO(2022),IllicitTradeReport2021,WorldCustomsOrganization,

/en/topics/enforcement-and-compliance/resources/publications.aspx

.

[6]

[5]

[4]

[3]

[1]

[2]

[8]

[7]

Note

1AsofJuly2023,OECDWorkingPartyonCounteringIllicitTrade.

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2

Internationaltradeduringthepandemic:Facts,trends,andchallenges

ThischapterprovidesacomprehensiveoverviewoftheCOVID-19pandemic,settingthestageforadetailedunderstandingofitswidespreadimpact.Itbeginsbytracingthechronologicalprogressionofthepandemic,withafocusonidentifyingperiodsofheightenedintensity.ThisbackgroundservesasafoundationforadeeperanalysisofhowthepandemichasaffectedvariousaspectsoftradewithintheEuropeanUnion.Particularattentionisgiventothetradeinindustrialgoods,asectorthathasbeennotablyvulnerabletoissuesofcounterfeitingduringthisperiod.ThisexplorationaimstoshedlightonthemultifacetedeffectsoftheCOVID-19pandemicontheEuropeanUnion'stradedynamics,offeringinsightsintothechallengesandadaptationsthathaveariseninthisunprecedentedglobalhealthcrisis.

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2.1.Chronologyandscaleofthepandemic

TheCOVID-19pandemic,aglobalhealthcrisistriggeredbythenovelcoronavirusSARS-CoV-2,wasadefiningeventoftheearly21stcentury.FirstdetectedinWuhan,inThePeople’sRepublicofChina(hereafter“China”),inDecember2019,thevirusrapidlyspreadacrosstheglobedespiteconcertedeffortstocontainit.Characterisedbyarangeofsymptomsfrommildorasymptomatictosevereandfatal,COVID-19posedauniquechallengeduetoitsairbornetransmission.By10December2023,thepandemichadresultedinnearly7mi