The Health Care Hospital for Women and Children of Yichang City v. The Administrative bureau for industry and commerce of Yichang City
(Case on Refusal to Accept the Decision on Administrative Penalty)@#
BASIC FACTS@#
Plaintiff: the Health Care Hospital for Women and Children of Yichang City, Hubei Province, domiciled at No. 118, Yiling Road, Yichang City, Hubei Province.@#
Legal representative: Yao Changben, president of the Hospital.@#
Authorized agent: Zhang Pei, vice-president of the Hospital.@#
Authorized agent: Yao Zhicheng, lawyer from Hubei Xiling Law Firm.@#
Defendant: the Administrative Industry for Industry and Commerce of Yichang City, Hubei Province, domiciled at Guoyuan'er Road, Yichang City, Hubei Province.@#
Legal representative: Wang Yong, director general of the Bureau.@#
Authorized agents: Sun Changwei and Cai Yixin, cadres from the Bureau.@#
The Administrative Administration for Industry and Commerce of Yichang City, Hubei Province (hereinafter referred to as the AIC), the defendant, made a written decision on administrative penalty (Penalty No. 027 [2000] by Yichang AIC) on February 11, 2000, in which it was ascertained that: the Health Care Hospital for Women and Children of Yichang City, Hubei Province (hereinafter referred to as the Health Care Hospital), the plaintiff, accepted money and properties offered by 10 medicine distribution enterprises including Yichang City Pharmaceutical Company for 26 times in succession during its purchasing of medicine, with the amount totaled 58,721.58 Yuan, and its behavior violated Paragraph 1 of Article 8 of the “Law of the People's Republic of China Against Unfair Competition” (hereinafter referred to as the Law Against Unfair Competition) and Paragraph 1 of Article 2 and also Article 4 of the “Interim Provisions on Prohibiting Commercial Bribery Behaviors” by the State Administration for Industry and Commerce, which was an unfair competition act. In accordance with Article 22 of the Law Against Unfair Competition, the AIC decided to impose a fine of 10,000 Yuan upon the Health Care Hospital.@#
The Health Care Hospital refused to accept the decision on administrative penalty made by the AIC, and brought an administrative lawsuit with the People's Court of Xiling District, Yichang City, Hubei Province (hereinafter referred to as Xiling Court).@#
The Health Care Hospital alleged that:
I. There existed errors in the decision on administrative penalty made by the AIC in respect of the ascertainment of facts and application of law: (1) among the 58,721.58 Yuan of money and properties ascertained by the AIC to be accepted by this Hospital, the amount offered by the Operational Department of Angel Yeast Bio-Pharmaceutical Co., Ltd. was not true. This Hospital accepted, on July 9, 1999, 15,900 Yuan donated by the Operational Department of Angel Yeast Bio-Pharmaceutical Co., Ltd., and then on December17 of the same year, refunded 7,846.39 Yuan to the Operational Department. This refunded amount should be deducted from the total accepted amount. Therefore, the actual amount donated to this Hospital should be 50,875.19 Yuan instead of 58,721.58 Yuan. (2) All the donated money and properties were recorded in the accounts of this Hospital in accordance with the law, which was a behavior of explicit discount, instead of commercial bribery. Even if there really existed the problems of improper discount proportion or incorrect items of income, they should still not be investigated by the administrative organ of industry and commerce. (3) This Hospital was a public welfare institution of ownership by the whole people, which was fully dependent on financial allocation, not a business operator as a market subject, and should not fall in the regulatory scope of the Law Against Unfair Competition.
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宜昌市妇幼保健院不服宜昌市工商行政管理局行政处罚决定案@#
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原告：湖北省宜昌市妇幼保健院。住所地：湖北省宜昌市夷陵路１１８号。@#
法定代表人：姚昌本，该院院长。@#
委托代理人：张培，该院副院长。@#
委托代理人：姚志成，湖北西陵律师事务所律师。@#
被告：湖北省宜昌市工商行政管理局。住所地：湖北省宜昌市果园二路。@#
法定代表人：王勇，该局局长。@#
委托代理人：孙昌伟、蔡异新，该局干部。@#
被告湖北省宜昌市工商行政管理局（以下简称工商局）于２０００年２月１１日作出的宜市工商处字（２０００）０２７号行政处罚决定书认定：原告湖北省宜昌市妇幼保健院（以下简称保健院）在药品采购活动中，先后收受宜昌市医药公司等１０家药品经销企业给付的款、物共２６笔，计５８７２１．５８元，其行为违反了《中华人民共和国反不正当竞争法》（以下简称反不正当竞争法）第八条第一款和国家工商局《关于禁止商业贿赂行为的暂行规定》第二条第一款、第四条的规定，是不正当竞争行为。根据反不正当竞争法第二十二条的规定，决定对该院处罚款１万元。@#
原告保健院不服被告工商局的这一行政处罚决定，向湖北省宜昌市西陵区人民法院提起行政诉讼。@#
原告诉称：一、被告的行政处罚决定存在着认定事实和适用法律的错误。（１）被告认定我院收受２６笔款、物计５８７２１．５８元中，认定我院收受安琪生物制药公司经营部的那一笔有误。我院于１９９９年７月９日接受安琪生物制药公司经营部捐赠的１５９００元后，已于同年１２月１７日退给该经营部７８４６．３９元，这笔退款应当从总收受款数中扣除。因此我院实际受赠数额应为５０８７５．１９元，不是５８７２１．５８元。（２）受赠全部款、物已经依法列入我院财务账，这是一种明示的折扣行为，不属于商业贿赂。即使折扣比例不当或者入账科目不对的问题确实存在，也不应由工商行政管理机关查处。（３）我院是全民所有制财政全额拨款的公益事业单位，不是能够作为市场主体的经营者，不属于反不正当竞争法调整的范围。二、被告的行政处罚决定存在着程序违法的问题。（１）被告在《检查通知书》中通知的被检单位是“宜昌市妇幼保健医院”，不是我们“宜昌市妇幼保健院”。被告持这样的《检查通知书》对我院进行调查，是调查的对象错误。（２）被告的行政处罚决定书只记载了我院接受捐赠的总数额，未载明据以认定该数额的证据。请求依法撤销被告作出的这一行政处罚决定，并判令被告承担本案全部诉讼费用。@#
原告保健院提交了如下证明材料：@#
１．保健院办理的事业单位法人登记证；@#
２．中共中央、国务院１９９７年１月１５日发布的《关于卫生改革与发展的决定》；@#
３．保健院收受涉案款的收款收据、银行现金送存单票样一组；@#
４．保健院收受涉案款、物明细表；@#
５．宜昌市红十字会关于给保健院捐赠药品的证明；@#
６．宜昌市红十字会办理的社团法人登记证；@#
７．《湖北省实施〈中华人民共和国红十字会法〉办法》。@#
被告辩称：一、原告在１９９８年１１月至１９９９年８月间的药品购销活动中收受的５８７２１．５８元款、物，虽然入了本单位财务账，但所入科目不能如实准确地反映购药成本，其行为实质上是账外暗中收受回扣。二、原告作为药品购销活动中的购方单位，本身不是消费者，所购药物转手卖给了患者。原告虽然是全额拨款的医疗卫生事业单位，但是其日常业务活动都是有偿的，其采购药品的行为是一种商品经营行为，属于反不正当竞争法调整的对象。根据国家工商局《关于禁止商业贿赂行为的暂行规定》的第四条和国家工商局、卫生部、国家医药管理局、国家中医药管理局、国务院纠风办工商公字（１９９６）第１２７号文件规定的精神，对于医疗卫生机构在药品购销活动中收受回扣及其他商业贿赂行为，工商行政管理机关有权依照反不正当竞争法的规定进行查处。因此，我局对原告作出的行政处罚决定，认定事实清楚，适用法律正确，人民法院应当维持。@#
被告工商局提交了如下证明材料：@#
１．宜市工商处字（２０００）０２７号行政处罚决定书及送达回证；@#
２．２０００年２月１日作出的工商述字（２０００）第２７号《行政处罚决定告知书》及其送达回证；@#
３．１９９９年１１月３日填报的立案审批表；@#
４．１９９９年１１月１６日作出的《关于宜昌市妇幼保健院商业贿赂行为一案的调查终结报告》（附保健院收受款、物明细表）；@#
５．１９９９年１１月２日、１１月８日、１１月９日分别对保健院吴庆鄂、张培、曹敏、王永青的询问笔录各一份；@#
６．保健院１９９８年、１９９９年其他收入账；@#
７．保健院收受款、物记账凭证和收款收据票样；@#
８．宜昌市三峡制药厂经营部药品销售发票票样；@#
９．《中华人民共和国反不正当竞争法》；@#
１０．《湖北省反不正当竞争条例》；@#
１１．国家工商局《关于禁止商业贿赂行为的暂行规定》；@#
１２．湖北省工商局１９９８年１０月１９日对《关于医院是否属〈反不正当竞争法〉调整主体等问题的请示》的批复；@#
１３．国家工商行政管理局、卫生部、国家医药管理局、国家中医药管理局、国务院纠正行业不正之风办公室联合颁发的工商公字（１９９６）第１２７号文、工商公字（１９９７）第９１号文、工商公字（１９９８）第６６号文；@#
１４．国务院办公厅国办法（１９９９）７５号文。@#
湖北省宜昌市西陵区人民法院经审理查明：@#
原告保健院为全额拨款的全民所有制卫生事业单位，服务对象面向社会，开设内、外、妇、儿、皮肤、医疗美容、口腔等诊疗科目。自１９９８年１１月至１９９９年８月期间，保健院在药品采购活动中，先后收受宜昌市医药公司等１０家药品经销企业给付的２５笔款计５４９２１．５８元，收受价值３８００元的空调一台，两项合计５８７２１．５８元。以上收受的款、物，分别计入了该院财务账的其他收入科目和固定资产科目中。１９９９年１１月，被告工商局在对保健院的药品购销活动进行检查时发现这一问题，通过立案、调查后于２０００年２月１日，向保健院送达了工商述字（２０００）第２７号《行政处罚决定告知书》。保健院在法定期间内未行使陈述、申辩权。２月１１日，工商局作出宜市工商处字（２０００）０２７号行政处罚决定，以保健院收受款、物的行为违反了反不正当竞争法第八条第一款、国家工商行政管理局（１９９６）第６０号令《关于禁止商业贿赂行为的暂行规定》第二条第一款、第四条的规定为由，根据反不正当竞争法第二十二条的规定，决定对保健院处罚款１万元。２月１３日，行政处罚决定书送达保健院。保健院不服，提起诉讼。@#
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