Overview
Growing global trade in pirated and counterfeit goods threatens America's innovation economy, the competitiveness of our leading companies and small manufacturers, and the livelihoods of their workers. Bogus products - from CDs, DVDs, software and watches to electronic equipment, clothing, processed foods, consumer products, and auto parts - are estimated to account for up to seven percent of global trade and cost legitimate rights holders around the world billions of dollars annually.
Strategy Targeting Organized Piracy (STOP!)
Developed over the last year, the Strategy Targeting Organized Piracy (STOP!) is the most comprehensive initiative ever advanced to smash the criminal networks that traffic in fakes, stop trade in pirated and counterfeit goods at America's borders, block bogus goods around the world, and help small businesses secure and enforce their rights in overseas markets. STOP! underscores the Administration's continuing commitment to level the playing field for American businesses and workers. And it builds on the Administration's solid track record of real results in combating global piracy and counterfeiting.
China's Current IPR Environment
Auto parts, watches, sporting goods, shampoo, footwear, designer apparel, medicine and medical devices, leather goods, toys, batteries, and other non-consumer products - the seemingly endless array of counterfeit products that are manufactured and distributed within China, or exported to other countries, continues to grow. China was the number one source of counterfeit products that were seized at the United States border last year.
Since joining the World Trade Organization, China has strengthened its legal framework and amended its IPR laws and regulations to comply with the WTO Agreement on Trade-Related Aspects of Intellectual Property Rights (TRIPS). Despite stronger statutory protection, China continues to be a haven for counterfeiters and pirates. According to one copyright industry association, the piracy rate remains one of the highest in the world (over 90 percent) and U.S. companies lose over one billion dollars in legitimate business each year to piracy. On average, 20 percent of all consumer products in the Chinese market are counterfeit. If a product sells, it is likely to be illegally duplicated. U.S. companies are not alone, as pirates and counterfeiters target both foreign and domestic companies.
Though we have observed commitment on the part of many central government officials to tackle the problem, enforcement measures taken to date have not been sufficient to deter massive IPR infringements effectively. There are several factors that undermine enforcement measures, including China’s reliance on administrative instead of criminal measures to combat IPR infringements, corruption and local protectionism, limited resources and training available to enforcement officials, and lack of public education regarding the economic and social impact of counterfeiting and piracy.
The Best protection is prevention
Though China is a party to international agreements to protect intellectual property (including the WIPO, Berne and Paris Conventions, among others), a company must register its patents and trademarks with the appropriate Chinese agencies and authorities for those rights to be enforceable in China. Copyrights do not need to be registered but registration may be helpful in enforcement actions. A brief summary of China's patent, trademark, and copyright laws follows below. For more in depth coverage, please see the relevant section of this Toolkit.
Patent: China’s first Patent Law was enacted in 1984 and has been amended twice (1992 and 2000) to extend the scope of protection. To comply with TRIPS, the latest amendment extended the duration of patent protection to 20 years from the date of filing a patent application. Chemical and pharmaceutical products, as well as food, beverages, and flavorings, are all now patentable. China follows a first-to-file system for patents, which means patents are granted to those that file first even if the filers are not the original inventors. This system is unlike the United States, which recognizes the “first to invent” rule, but is consistent with the practice in other parts of the world, including the European Union. As a signatory to the Patent Cooperation Treaty in 1994, China will perform international patent searches and preliminary examinations of patent applications. Under China’s Patent Law, a foreign patent application filed by a person or firm without a business office in China must be made through an authorized patent agent, while initial preparation may be done by anyone. Patents are filed with China’s State Intellectual Property Office (SIPO) in Beijing, while SIPO offices at the provincial and municipal level are responsible for administrative enforcement.
Trademark: China’s Trademark Law was first adopted in 1982 and subsequently revised in 1993 and 2001. The current Trademark Law went into effect in October 2001, with implementing regulations taking effect on September 15, 2002. The new Trademark Law extended registration to collective marks, certification marks and three-dimensional symbols, as required by TRIPS. China joined the Madrid Protocol in 1989, which requires reciprocal trademark registration for member countries, which now include the United States. China has a ‘first-to-file’ system that requires no evidence of prior use or ownership, leaving registration of popular foreign marks open to third parties. However, the China Trademark Office has cancelled Chinese trademarks that were unfairly registered by local Chinese agents or customers of foreign companies. Foreign companies seeking to distribute their products in China are advised to register their marks and/or logos with the China Trademark Office. Further, foreign companies should register appropriate Internet domain names and Chinese language versions of their trademarks. As with patent registration, foreign parties must use the services of approved Chinese agents when submitting the trademark application. However, foreign attorneys or the Chinese agents may prepare the application. Recent amendments to the Implementing Regulations of the Trademark Law allow local branches or subsidiaries of foreign companies to register trademarks directly without use of a Chinese agent.
Copyright: China’s Copyright Law was established in 1990 and amended in October 2001. The new implementing rules came into force on September 15, 2002. Unlike patent and trademark protection, copyrighted works do not require registration for protection. China grants protection to persons from countries belonging to copyright international conventions or bilateral agreements of which China is a member. However, copyright owners may wish to register voluntarily with China’s National Copyright Administration (NCA) to establish evidence of ownership, should enforcement actions become necessary.
Unfair Competition: China’s Anti-unfair Competition Law provides some protection for unregistered trademarks, packaging, trade dress and trade secrets. The Fair Trade Bureau under the State Administration for Industry and Commerce (SAIC) is responsible for the interpretation and implementation of the Anti-unfair Competition Law. SAIC also provides protection of company names. According to the TRIPS Agreement, China is required to protect undisclosed information submitted to Chinese agencies in obtaining regulatory approval for pharmaceutical and chemical entities from disclosure or unfair commercial use. China’s State Drug Administration and Ministry of Agriculture oversee the marketing approval of pharmaceuticals and agricultural chemicals, respectively.
China's IPR enforcement System
In 1998, China established the State Intellectual Property Office (SIPO), with the vision that it would coordinate China’s IP enforcement efforts by merging the patent, trademark and copyright offices under one authority. However, this has yet to occur. Today, SIPO is responsible for granting patents (national office), registering semiconductor layout designs (national office), and enforcing patents (local SIPO offices), as well as coordinating domestic foreign-related IPR issues involving copyrights, trademarks and patents.
Addressing infringement of IP in China follows a two-track system. The first and most prevalent is the administrative track, whereby an IP rights holder files a compliant at the local administrative office. The second is the judicial track, whereby complaints are filed through the court system. (China has established specialized IP panels in its civil court system throughout the country.) Determining which IP agency has jurisdiction over an act of infringement can be confusing. Jurisdiction of IP protection is diffused throughout a number of government agencies and offices, with each typically responsible for the protection afforded by one statute or one specific area of IP-related law. There may be geographical limits or conflicts posed by one administrative agency taking a case involving piracy or counterfeiting that also occurs in another region. In recognition of these difficulties, some regional IP officials have discussed plans for creating cross-jurisdictional enforcement procedures. China’s courts also have rules regarding jurisdiction over infringing or counterfeit activities, and the scope of potential orders.
Administration Enforcement
A list of the major players in administration enforcement actions follows. Again, this list is not exhaustive, as other agencies, such as State Drug Administration (for fake pharmaceutical products) or the Ministry of Culture (for copyrighted materials and their markets) may also play a role in the enforcement process. Note that in most cases, administrative agencies cannot award compensation to a rights holder. They can, however, fine the infringer, seize goods or equipment used in manufacturing infringing products, and/or obtain information about the source of goods being distributed.
State Administration on Industry and Commerce (SAIC), Trademark Office. The Trademark Office, under the SAIC maintains authority over trademark registration, administrative recognition of well-known marks, and enforcement of trademark protection. The SAIC’s Fair Trade Bureau handles disputes arising under the Anti-Unfair Competition Law, including trade secret matters. In enforcement efforts, SAIC has the power to investigate the case. When an infringement is determined, SAIC has the power to order that the sale of infringing items cease and to stop further infringement, order the destruction of infringing marks or products, impose fines, and remove machines used to produce counterfeit goods.
State Administration for Industry and Commerce (SAIC)
Trademark Office
8 Sanlihe East Road, Xicheng District, Beijing 100820
Tel: 86-10-6803-2233
Fax: 86-10-6801-0463
Websites: http://www.saic.gov.cn (Chinese language only)
State Intellectual Property Office (SIPO) at the national level is responsible for the examination of foreign and domestic patents and supervision of local SIPO bureaus. Provincial offices generally handle the administrative enforcement of patent complaints.
State Intellectual Property Office (SIPO)
No. 6 Xitucheng Road, Haidian District
P.O. Box 8020, Beijing, China 1000088
Tel: 86-10-6209-3268
Fax: 86-10-6201-9615
Website: http://www.sipo.gov.cn (Chinese/English)
National Copyright Administration (NCA) is responsible for copyright administration and enforcement. NCA is also responsible for nationwide copyright issues, including investigating infringement cases, administering foreign-related copyright issues, developing foreign-related arbitration rules and supervising administrative authorities. Though administrative remedies are available, NCA generally encourages complainants to use the court system due to lack of personnel.
National Copyright Administration of China (NCA)
No. 85 Dongsi Nan Dajie, Beijing, China 100703
Tel: 86-10-6512-7869 or 6527-6930
Fax: 86-10-6512-7875
Website: http://www.ncac.gov.cn (Chinese)
Administration for Quality Supervision, Inspection and Quarantine (AQSIQ), China’s standard setting agency is primarily tasked with ensuring Chinese product quality and standards, but also handles infringements of registered trademarks when the infringing products are inferior or shoddy quality goods. AQSIQ also issued administrative regulations regarding protection of geographic indications separately recognized by China.
General Administration of Quality Supervision Inspection and Quarantine (AQSIQ)
9 East Ma Dian Road
Haidian District, Beijing, China 100088
Website: http://www.aqsiq.gov.cn (Chinese)
Customs
General Administration of Customs. Customs regulations ban the import/export of IPR infringing goods. In order for Customs to exercise this right, the IP holder must record its IP with Customs. The recordal certificate issued by Customs is valid for seven years and is renewable for additional seven-year periods. When a rights holder suspects infringing goods are about to enter or exit China, he/she may submit a written application to Customs at the suspected point of entry or exit where protection is sought. When Customs’ investigation reveals a case of infringement, it has the authority to confiscate the goods, and may destroy or remove the infringing goods, and impose a fine.
General Administration of Customs
6 Jianguomennei DaJie, Beijing, China 100730
Tel: 86-10-6519-5243 or 6519-5399
Fax: 86-10-6519-5394
Website: http://www.customs.gov.cn
Beijing Customs: http://www.bjcustoms.gov.cn/
Shanghai Customs: http://shanghai.customs.gov.cn/default.aspx
Nanjing Customs: http://www.nj-customs.gov.cn/
Shenzhen Customs: http://www.sz-customs.gov.cn/
Guangzhou Customs: http://haiguan.gzfeihua.com/customs.htm
Tianjin Customs: http://tianjin.customs.gov.cn/default.aspx
Ningbo Customs: http://ningbo.customs.gov.cn/default.aspx
Criminal Enforcement
Public Security Bureau (police)/ Procuratorate (prosecutors). Under enforcement provisions of TRIPs, China must provide IP remedies through criminal enforcement for commercial scale piracy and counterfeiting. China’s laws and regulations stipulate that IP administrative authorities and Customs may transfer egregious IP infringement cases to police and prosecutors (procuratorate) for initiating criminal investigation. Despite these criminal provisions, most IP cases continued to be handled through the administrative system. Under Chinese law, individuals also have the right to prosecute criminal cases (zisu), though this procedure has rarely been used.
Ministry of Public Security
14 DongchangAn Street, Beijing, China 100741
Tel: 86-10-6520-2114
Email: 110@mps.gov.cn
Website: http://www.mps.gov.cn (Chinese)
The Supreme People's Procuratorate (SPP). The SPP is the highest procuratorial organ in China and the legal supervisory organ of the State. It is mainly responsible for leading procuratorates at various levels to perform legal supervision according to law, and ensuring the enforcement of State laws in a unified and proper manner.
The Supreme People’s Procurate (SPP) Security
147 Bei He Yan Street, Beijing, China 100726
Website: http://www.spp.gov.cn (Chinese)
Regional IPR Bureaus. In an attempt to coordinate local IP enforcement efforts, some provinces and municipalities in China have established IPR bureaus or IPR committees to coordinate public awareness campaigns and, to a more limited extent, enforcement. A local IPR bureau is generally a good source for companies seeking information on local or regional enforcement mechanisms.
Civil Enforcement
Judicial System. Companies can pursue civil actions in the local People’s Court. Since 1993, China has maintained Intellectual Property Tribunals in the Intermediate People’s Courts and Higher People’s Courts throughout the country. The total volume of civil IP litigation in China is considerably less than administrative litigation. Though small companies may prefer to pursue the administrative route, it is expected that the number of IP litigation cases will significantly increase with recent changes in IP laws. Appeals of administrative IPR determinations, such as fines, are generally made to Administrative Tribunals of the Supreme People’s Court (SPC), while the Criminal Tribunals of the SPC are likely to hear criminal cases.
U.S. Government Assistance
Many companies, particularly SMEs, that discover their products are being infringed in China contact the U.S. Mission in China or the Department of Commerce in Washington for assistance. Because intellectual property rights are private rights, the U.S. government can provide only limited direct assistance. In many cases, the U.S. government can provide companies with information in navigating China’s legal system, including lists of local investigative firms and attorneys, and share our experience and expertise in China. However, we cannot provide American companies with legal advice or advocate on a company’s behalf where a matter is before a court or administrative agency.
When a company encounters blatant infringement of its IPR, the right holder should hire local counsel and pursue a preliminary investigation themselves or through a contracted professional firm, keeping in mind that U.S. companies should ensure compliance with Chinese law, which restricts the scope of private investigations. Once the initial investigation is complete, the company should determine whether it is worth pursuing further action, especially considering possible costs. Rights holders will have the option to initiate actions or seek redress through either the judicial or administrative systems. Foreign rights holders have had considerably less success in encouraging criminal prosecution of IPR violations, particularly when copyright infringements are involved.
Once a company decides to pursue a remedy, the U.S. government will monitor the case, if requested to do so by the company. The Commercial Service office in Beijing maintains a database of IPR disputes which U.S. companies bring to our attention. The U.S. Government cannot intervene in these cases. However, we can inquire about their status or contact government officials about concerns related to the effective administration of legal remedies available to IP holders as a general matter. As with other types of commercial disputes, the U.S. government’s efforts in assisting with IPR disputes are aimed at achieving a fair and timely resolution in accordance with international commitments and Chinese laws, and in advancing adequate legal and judicial protection for all parties.
We strongly emphasize that the information provided above by no means constitutes legal advice and should not be a substitute for advice of counsel. Its intended purpose is to provide an overview of China’s IPR environment, available enforcement mechanisms, and Chinese government offices sharing jurisdiction over IPR protection and enforcement. We recommend that U.S. companies seeking to do business in China or facing IPR infringement issues retain qualified U.S. and/or Chinese legal counsel and pursue their rights through China’s IPR enforcement regime.
The Commercial Service recently named four IPR Specialists to develop additional focus and resources for SME counseling. These Specialists,Scott Goddin based in Portland, Ken Mouradian, Orlando, Julie Carducci in Chicago and Kam Shah in Washington DC, offer years of experience supporting SME and large enterprises in efforts to protect and enforce rights worldwide. The four IP Specialists have outreached to DOC colleagues in Beijing and Washington DC and will work to supplement USG efforts and develop practical information for today's small exporter. For example, one project underway to help SMEs understand practical options is a step by step schematic and cost analysis on filing a Section 337 investigation - a tool to limit infringing imports.
IPR Toolkit
U.S. Embassy Beijing IPR Toolkit
ADDITIONAL RESOURCES
For a list of consulting firms and law firms, the U.S. Commercial Service in Beijing publishes Contact China, A Resource for Doing Business in People’s Republic of China, available online at here.
For a list of law offices in the Beijing consular district, please see the relevant section of the U.S. embassy website: http://www.usembassy-china.org.cn/us-citizen/lwyrlist.html, in the Shanghai Consulate district please see http://shanghai.usembassy-china.org.cn/law_firms.html.
For a list of PRC- government authorized patent/trademark agents, please check SIPO’s website.
February 2004
U.S. Department of Commerce
International Trade Administration
