港澳法视界｜香港法律制度介绍（三）——港片里的“ICAC”：揭秘香港廉政公署的“反贪神话”

要理解ICAC的诞生，必须回到20世纪60-70年代的香港 —— 彼时的香港，腐败渗透到社会每个角落：消防员“收开喉费”才肯救火，警察“收保护费”纵容黄赌毒，甚至公立医院护士“收茶水费”才给病人递开水。其中最轰动的，当属1973 年的“葛柏案”—— 香港总警司葛柏涉嫌贪污超过430万港元（相当于当时普通市民200年的收入），却利用职务之便潜逃英国，引发全港民众大规模抗议，“反贪” 成为当时最迫切的社会诉求。

To understand the birth of ICAC, we must go back to Hong Kong in the 1960s and 1970s - when corruption permeated every corner of society: firefighters were only willing to put out fires by charging throat fees, police were allowed to tolerate pornography, gambling, and drugs by charging protection fees, and even public hospital nurses were required to pay tea and water fees before handing over boiling water to patients. The most sensational case among them was undoubtedly the 1973 "Godber Case" - Hong Kong Chief Superintendent Godber was suspected of embezzling over HKD 4.3 million (equivalent to 200 years of income for ordinary citizens at that time), but he used his position to flee to the UK, causing large-scale protests among the people of Hong Kong. "Anti corruption" became the most urgent social demand at that time.

正是在这样的背景下，1974年2月15日，香港总督根据《廉政公署条例》（现为《香港特别行政区廉政公署条例》）正式成立廉政公署，赋予其“独立于政府架构之外、直接向总督（回归后向行政长官）负责”的特殊地位，彻底打破“自己人查自己人”的反腐困境。

Against this backdrop, on February 15, 1974, the Governor of Hong Kong officially established the ICAC under the ICAC Ordinance (now the ICAC Ordinance of the Hong Kong Special Administrative Region), granting it a special status of being "independent from the government structure and directly accountable to the Governor (or the Chief Executive after the handover)", completely breaking the anti-corruption dilemma of "investigating one's own people".

ICAC成立后的“第一战”就震动全港：通过与英国政府谈判，将葛柏从英国引渡回港受审，最终葛柏被判入狱4年，涉案赃款全部追回。随后，ICAC接连查办了“四大探长”（吕乐、颜雄等）、油麻地果栏贪腐集团等重大案件，仅1974-1977年就查处贪腐案件超过 2000起，多名警界、政界高官落马，迅速扭转了香港的腐败风气。

The "first battle" after the establishment of ICAC shook Hong Kong: through negotiations with the British government, Godber was extradited from the UK to Hong Kong for trial. In the end, Godber was sentenced to 4 years in prison and all the stolen money involved was recovered. Subsequently, ICAC successively investigated and dealt with major cases such as the "Four Great Detectives" (Leoi Lok, Ngaan Hung, etc.) and the corruption group in Yau Ma Tei Fruit Market. From 1974 to 1977 alone, more than 2000 corruption cases were investigated and dealt with, and many senior police and political officials were arrested, quickly reversing the corrupt atmosphere in Hong Kong.

回归后，ICAC在“一国两制”框架下继续发挥作用：2003年查处 “居屋短桩案”（建筑商偷工减料），2012年查办香港房屋委员会贪腐案，2021年侦破跨境洗钱及贪腐集团案…… 如今，“ICAC”不仅是一个机构名称，更成为香港“廉洁、法治”的象征 —— 据香港大学调查，超过90%的香港市民对ICAC的工作表示信任，这一信任度在全球反贪机构中名列前茅。

After the return, ICAC continued to play a role under the framework of "One Country, Two Systems": in 2003, it investigated the "short piling case of public housing" (construction companies cutting corners), in 2012, it investigated the corruption case of the Hong Kong Housing Authority, and in 2021, it cracked the cross-border money laundering and corruption group case... Nowadays, "ICAC" is not only a name for an organization, but also a symbol of Hong Kong's "integrity and rule of law" - according to a survey by the University of Hong Kong, more than 90% of Hong Kong citizens trust ICAC's work, which ranks among the top anti-corruption agencies in the world.

ICAC之所以能高效反贪，核心在于其“独立、专业、分工明确” 的组织架构。根据《廉政公署条例》，ICAC下设三个职能部门，外加一个行政总部，形成“调查、预防、教育”三位一体的反贪体系，被称为“三驾马车”：

The core of ICAC's efficient anti-corruption efforts lies in its independent, professional, and clearly defined organizational structure. According to the Independent Commission Against Corruption Ordinance, ICAC has three functional departments and an administrative headquarters, forming a three in one anti-corruption system of "investigation, prevention, and education", known as the "three carriages":

执行处是ICAC最受关注的部门，相当于“反贪侦查队”，约占ICAC 总人数的60%，下设调查科、情报科、跨境案件科等。其核心职能是 “受理贪腐举报、开展调查取证、提出检控建议”—— 无论是公务员受贿、企业商业贿赂，还是选举舞弊、跨境贪腐，只要涉及香港法律规定的“贪污”“贿赂”“滥用职权”等行为，执行处都有权调查。

The Execution Department is the most closely watched department of ICAC, equivalent to the "Anti Corruption Investigation Team", accounting for about 60% of the total number of ICAC personnel. It includes the Investigation Department, Intelligence Department, Cross border Case Department, etc. Its core function is to "receive reports of corruption, conduct investigations and evidence collection, and make prosecution recommendations" - whether it is bribery of civil servants, commercial bribery of enterprises, election fraud, cross-border corruption, as long as it involves "corruption", "bribery", "abuse of power" and other behaviors stipulated by Hong Kong law, the enforcement department has the right to investigate.

比如，市民发现某公职人员收受红包后违规办事，可通过ICAC的 24小时举报热线（2526 6366）、网上平台或亲临廉署总部举报，执行处会第一时间启动秘密调查：调取银行流水、监控录像，约谈证人，甚至在获得法庭授权后实施监听、搜查。值得注意的是，执行处调查人员均经过严格训练，不仅精通法律与侦查技巧，还需通过“诚信审查”（包括背景调查、财务审核），确保自身廉洁。

For example, if citizens discover that a public official has violated regulations by accepting red envelopes, they can report it through the ICAC's 24-hour reporting hotline (2526 6366), online platforms, or in person at the ICAC headquarters. The enforcement department will immediately initiate a secret investigation: retrieving bank statements, surveillance footage, interviewing witnesses, and even conducting surveillance and searches with court authorization. It is worth noting that the investigators in the execution department have undergone strict training, not only proficient in legal and investigative skills, but also required to pass "integrity checks" (including background checks and financial audits) to ensure their own integrity.

如果说执行处是“事后追责”，防止贪污处就是“事前预防”—— 它的核心任务是“找出容易滋生贪污的制度漏洞，推动政府和企业完善监管”。根据《廉政公署条例》，防止贪污处有权查阅政府部门、公共机构的规章制度，甚至可以要求私营企业（如银行、地产公司）提供内部管理文件，针对可能引发贪腐的环节（如招标流程、审批权限）提出修改建议。

If the execution department is responsible after the fact, the corruption prevention department is proactive - its core task is to identify institutional loopholes that are prone to corruption and promote the government and enterprises to improve supervision. According to the Regulations of the Independent Commission Against Corruption, corruption prevention department has the right to review the rules and regulations of government departments and public institutions, and may even require private enterprises (such as banks and real estate companies) to provide internal management documents, and propose modification suggestions for links that may trigger corruption (such as bidding processes and approval limits).

例如，香港某公立医院曾存在“医生推荐病人到指定药店买药并收受回扣”的情况，防止贪污处介入后，推动医院建立“药品采购公开招标制度”和“医生推荐药品备案系统”，从流程上杜绝了利益输送；对于私营企业，防止贪污处会发布《商业道德指引》，指导企业建立反贿赂合规体系（如供应商廉洁审查、员工行为准则），这也是许多赴港投资的内地企业需要重点参考的内容。

For example, a public hospital in Hong Kong once had the situation of "doctors recommending patients to designated pharmacies to buy drugs and accepting kickbacks". After the intervention of the corruption prevention department, the hospital was promoted to establish a "drug procurement open bidding system" and a "doctor recommended drug filing system", which eliminated the transfer of benefits in the process; For private enterprises, the corruption prevention department will issue the "Guidelines for Business Ethics" to guide them in establishing an anti bribery compliance system (such as supplier integrity review and employee code of conduct), which is also a key reference for many mainland enterprises investing in Hong Kong.

ICAC深知，反贪不能只靠“查案”，更要靠市民的支持与参与。社区关系处的职责就是“通过教育和宣传，培养市民的廉洁意识，鼓励公众举报贪腐”—— 小到走进中小学开设“廉洁课堂”，大到在地铁、电视投放反贪广告，甚至制作通俗易懂的反贪手册（如《商户防贪指南》《公务员廉洁手册》），都是社区关系处的日常工作。

ICAC is well aware that anti-corruption cannot rely solely on "investigating cases", but also on the support and participation of citizens. The responsibility of the Community Relations Department is to "cultivate citizens' awareness of integrity through education and publicity, and encourage the public to report corruption" - from setting up "integrity classrooms" in primary and secondary schools, to placing anti-corruption advertisements on subways and television, and even producing easy to understand anti-corruption manuals (such as the "Merchant Anti Corruption Guide" and the "Civil Servant Integrity Manual"), all of which are part of the daily work of the Community Relations Department.

最经典的案例是ICAC的“廉洁教育计划”：针对香港中小学，开发“廉洁大使”课程，通过情景剧、漫画等形式教学生分辨“贪腐行为”；针对公务员，每年开展“廉洁培训”，明确“接受宴请的金额上限”“礼品登记制度”等细节；针对企业，举办“商业廉洁论坛”，邀请法官、律师解读《防止贿赂条例》，帮助企业规避合规风险。这种 “全民参与”的反贪模式，让“廉洁”成为香港社会的共识。

The most classic case is ICAC's "Integrity Education Program": targeting primary and secondary schools in Hong Kong, the development of the "Integrity Ambassador" curriculum teaches students to distinguish "corrupt behavior" through situational dramas, comics, and other forms; For civil servants, conduct annual "integrity training" and clarify details such as the "upper limit of the amount of banquets accepted" and the "gift registration system"; For enterprises, hold a "Business Integrity Forum" and invite judges and lawyers to interpret the "Prevention of Bribery Regulations" to help enterprises avoid compliance risks. This anti-corruption model of "universal participation" has made "integrity" a consensus in Hong Kong society.

此外，ICAC还设有行政总部，负责人事、财务、后勤等保障工作 —— 值得一提的是，ICAC的财政预算独立于政府一般预算，由香港立法会直接审批，且所有开支需接受独立审计，确保“反贪经费不被滥用”。

In addition, ICAC also has an administrative headquarters responsible for personnel, finance, logistics and other support work. It is worth mentioning that ICAC's budget is independent of the government's general budget and is directly approved by the Hong Kong Legislative Council. All expenses must undergo independent auditing to ensure that "anti-corruption funds are not abused".

港片里的ICAC似乎“无所不能”，但实际上，它的权力并非“无限”—— 所有权力均来自《廉政公署条例》《防止贿赂条例》等法律的明确授权，且受到严格约束。具体来看，ICAC的核心法定权力可分为四类：

The ICAC in Hong Kong films seems to be "omnipotent", but in reality, its power is not "unlimited" - all power comes from explicit authorization by laws such as the Independent Commission Against Corruption Ordinance and the Prevention of Bribery Ordinance, and is strictly constrained. Specifically, the core statutory powers of ICAC can be divided into four categories:

根据《廉政公署条例》第17条，ICAC调查人员有权：要求任何人士（包括政府官员、企业高管、银行职员）提供与贪腐案件相关的文件（如合同、账本、银行流水），若拒绝提供，可处6个月监禁及5万港元罚款；传唤证人到廉署接受讯问，证人需如实作证，若作伪证，可处7年监禁及10万港元罚款；查阅公共机构的所有记录（如土地登记、公司注册信息），甚至可以要求跨境机构（如香港金融管理局、国际刑警组织）协助调取境外证据（如海外银行账户）。

According to Article 17 of the Independent Commission Against Corruption Ordinance, ICAC investigators have the right to request any person (including government officials, corporate executives, and bank employees) to provide documents related to corruption cases (such as contracts, account books, and bank statements). If they refuse to provide them, they may be sentenced to six months' imprisonment and a fine of HKD 50000; Summon witnesses to the ICAC for questioning, and witnesses must testify truthfully. If they give false testimony, they may be sentenced to 7 years in prison and a fine of HKD 100000; Access all records of public institutions (such as land registration, company registration information), and even request cross-border institutions (such as the Hong Kong Monetary Authority, Interpol) to assist in retrieving overseas evidence (such as overseas bank accounts).

例如，在调查某官员贪腐案时，ICAC可直接要求香港所有银行提供该官员及其家人的账户流水，若发现资金流向异常（如突然收到大额匿名转账），可进一步追查资金来源；对于跨境贪腐，ICAC可通过《多边反贪公约》请求内地、新加坡等司法管辖区协助冻结涉案资产。

For example, when investigating a corruption case involving an official, ICAC can directly request all banks in Hong Kong to provide the account statements of the official and their family members. If abnormal fund flows are found (such as sudden receipt of large anonymous transfers), the source of the funds can be further traced; For cross-border corruption, ICAC can request assistance from jurisdictions such as mainland China and Singapore to freeze assets involved through the Multilateral Convention against Corruption.

许多人误以为ICAC可以“随便抓人”，但实际上，其逮捕和搜查权受到严格限制：

Many people mistakenly believe that ICAC can "arrest people at will", but in reality, its arrest and search powers are strictly limited:

逮捕：必须有“合理怀疑”（如掌握初步贪腐证据），且需在逮捕后48小时内将嫌疑人移交裁判法院，由法官决定是否批准保释；

Arrest: There must be a "reasonable suspicion" (such as obtaining preliminary evidence of corruption), and the suspect must be transferred to a court within 48 hours of arrest for the judge to decide whether to approve bail;

搜查：必须向法庭申请“搜查令”，明确搜查的地点、范围（如“仅限嫌疑人的办公室和住宅”），且搜查时需有独立见证人（如社区代表）在场，防止滥用权力。

Search: A "search warrant" must be applied to the court, specifying the location and scope of the search (such as "limited to the suspect's office and residence"), and independent witnesses (such as community representatives) must be present during the search to prevent abuse of power.

2018年，ICAC在调查某地产公司贿赂案时，因“搜查令未明确标注需搜查的文件类型”，被高等法院裁定搜查程序违法，相关证据不得作为呈堂证供 —— 这一案例也体现了香港司法对ICAC权力的制衡。

In 2018, during an investigation into a bribery case involving a real estate company, ICAC was found by the High Court to have violated the search procedure due to "the search warrant not clearly indicating the type of documents to be searched", and the relevant evidence could not be presented as evidence in court - this case also reflects the checks and balances of ICAC's power by the Hong Kong judiciary.

为防止贪腐者转移赃款，《廉政公署条例》赋予ICAC“资产冻结权”：在调查期间，ICAC可向法庭申请冻结涉案人员的银行账户、房产、股票等资产，冻结期限最长可达2年；若案件最终定罪，法庭可下令将涉案资产充公（包括贪污所得及相关收益）。

To prevent corrupt individuals from transferring stolen funds, ICAC Ordinance grants ICAC the "asset freezing power": during the investigation period, ICAC may apply to the court to freeze the bank accounts, properties, stocks and other assets of the persons involved, with a maximum freezing period of 2 years; If the case is ultimately convicted, the court may order the confiscation of the assets involved (including the proceeds of corruption and related gains).

例如，2020年，某香港公职人员因收受开发商1000万港元贿赂，被ICAC冻结名下3套房产及2000万港元银行存款，最终法院不仅判处其入狱5年，还将全部涉案资产充公 —— 这一权力有效震慑了 “贪腐后转移资产”的行为。

For example, in 2020, a Hong Kong public official was frozen by ICAC for accepting HKD 10 million in bribes from a developer, resulting in the freezing of three properties and HKD 20 million in bank deposits. The court not only sentenced him to 5 years in prison, but also confiscated all assets involved - this power effectively deterred the act of "transferring assets after corruption".

ICAC负责“调查贪腐”，但无权直接提起公诉 —— 调查结束后，ICAC需将案件材料移交律政司，由律政司独立决定是否提起检控（即 “查诉分离”原则）。这一制度设计的目的是“防止ICAC既当‘调查员’又当‘检察官’”，确保检控决定的客观性。

ICAC is responsible for investigating corruption, but does not have the authority to directly prosecute. After the investigation is completed, ICAC needs to transfer the case materials to the Department of Justice, which will independently decide whether to prosecute (i.e. the principle of "separation of investigation and prosecution"). The purpose of this system design is to prevent ICAC from acting as both an 'investigator' and a 'prosecutor', ensuring the objectivity of prosecution decisions.

“谁来监督监督者？”这是所有反贪机构面临的共同问题。ICAC之所以能保持廉洁，关键在于其建立了“多层级、全方位”的监察体系，确保权力不被滥用：

Who will supervise the supervisors? This is a common problem faced by all anti-corruption agencies. The key to ICAC's ability to maintain integrity lies in its establishment of a "multi-level, all-round" supervision system to ensure that power is not abused:

根据《廉政公署条例》，香港设立“廉政公署事宜投诉委员会”（简称“投诉委员会”），由7-9名独立人士组成（包括法官、律师、学者、商界代表等，均由行政长官任命，且不得与ICAC有利益关联）。投诉委员会的职责是“受理公众对ICAC人员的投诉（如滥用职权、暴力执法），并独立调查核实”。

According to ICAC Ordinance, Hong Kong has established the "ICAC Complaints Committee" (referred to as the "Complaints Committee"), which is composed of 7-9 independent individuals (including judges, lawyers, scholars, business representatives, etc., all appointed by the Chief Executive and not affiliated with the ICAC). The responsibility of the Complaints Committee is to 'receive public complaints about ICAC personnel (such as abuse of power, violent law enforcement), and independently investigate and verify'.

例如，若市民认为ICAC调查人员在搜查时损坏私人财物，可向投诉委员会投诉，投诉委员会有权查阅ICAC的调查记录、传唤相关人员作证，调查结果需向行政长官报告，并向公众公开（涉及保密信息除外）。2023年，投诉委员会共受理投诉32起，其中2起被证实存在程序瑕疵，ICAC均对相关人员进行了纪律处分（包括警告、调岗）。

For example, if citizens believe that ICAC investigators damaged personal property during a search, they can file a complaint with the Complaints Committee. The Complaints Committee has the right to review ICAC's investigation records, summon relevant personnel to testify, report the investigation results to the Chief Executive, and make them public to the public (except for confidential information). In 2023, the Complaints Committee received a total of 32 complaints, of which 2 were found to have procedural flaws, and ICAC imposed disciplinary actions (including warnings and job transfers) on the relevant personnel.

香港法院对ICAC的调查行为拥有“最终审查权”—— 无论是逮捕、搜查，还是资产冻结，ICAC都需获得法庭授权；若ICAC的行为违反法律程序（如无证搜查、非法监听），法庭可裁定相关证据无效，甚至撤销案件。

The Hong Kong court has the "final review power" over ICAC's investigative actions - whether it is arrest, search, or asset freeze, ICAC needs to obtain court authorization; If ICAC's actions violate legal procedures (such as unlicensed searches or illegal listening), the court may rule that the relevant evidence is invalid or even dismiss the case.

香港立法会通过“财政审批”和“质询机制”监督ICAC：

The Hong Kong Legislative Council supervises ICAC through "financial approval" and "inquiry mechanism":

财政监督：ICAC的年度预算需提交立法会“财务委员会”审议，立法会议员可就预算用途（如调查经费、宣传开支）提出质询，ICAC需逐项答复；

Financial supervision: The annual budget of ICAC needs to be submitted to the Finance Committee of the Legislative Council for review. Legislative Council members may raise questions about the use of the budget (such as investigation funds and publicity expenses), and ICAC needs to answer them item by item;

政策监督：立法会可成立“专责委员会”，调查ICAC的工作（如反贪政策的有效性），ICAC需配合提供相关文件和证词。

Policy supervision: The Legislative Council may establish a "special committee" to investigate the work of ICAC (such as the effectiveness of anti-corruption policies), and ICAC needs to cooperate by providing relevant documents and testimony.

2022年，立法会曾就“ICAC对私营企业反贪宣传不足”展开质询，最终推动ICAC增加了针对中小企业的《廉洁合规指南》发行量 —— 这体现了立法会对ICAC工作的“纠错与改进”作用。

In 2022, the Legislative Council raised a question on the insufficient anti-corruption publicity of ICAC for private enterprises, ultimately leading to an increase in the circulation of ICAC's "Integrity and Compliance Guidelines" for small and medium-sized enterprises. This reflects the Legislative Council's role in "correcting and improving" ICAC's work.

ICAC内部设有“纪律委员会”，制定了严格的《廉政公署人员行为守则》：禁止调查人员接受任何礼品（哪怕是价值100港元的纪念品），禁止与涉案人员私下接触，甚至禁止在调查期间透露案件信息给家人 —— 一旦违反，将面临解雇，甚至刑事指控。

The ICAC has an internal "Disciplinary Committee" and has established a strict "Code of Conduct for ICAC Personnel": investigators are prohibited from accepting any gifts (even souvenirs worth HKD 100), from having private contact with individuals involved in the case, and even from disclosing case information to family members during the investigation period - any violation may result in dismissal or even criminal charges.

此外，ICAC人员的所有财务状况需定期申报（包括工资、投资、房产等），若发现异常收入，将立即启动内部调查。这种“严于律己” 的纪律要求，确保了ICAC人员自身的廉洁。

In addition, all financial status of ICAC personnel must be regularly reported (including salaries, investments, real estate, etc.), and if any abnormal income is found, an internal investigation will be immediately initiated. This strict discipline requirement ensures the integrity of ICAC personnel themselves.

从港片里的“铁血形象”到现实中的“廉洁守护者”，ICAC的成功并非偶然 —— 它的核心“密码”在于“独立的地位、专业的能力、严格的监督”。对于想赴港投资、工作或生活的内地企业和个人来说，了解ICAC不仅是“规避法律风险”的需要，更是“融入香港法治环境”的关键：

From the "iron blooded image" in Hong Kong films to the "honest guardian" in reality, the success of ICAC is not accidental - its core "code" lies in "independent status, professional ability, and strict supervision". For mainland enterprises and individuals who want to invest, work or live in Hong Kong, understanding ICAC is not only a need to "avoid legal risks", but also a key to "integrating into Hong Kong's legal environment":

对企业来说，需熟悉ICAC的《商业道德指引》，建立反贿赂合规体系（如供应商审查、员工培训），避免因“不懂当地规则”而触碰贪腐红线（如向公职人员赠送贵重礼品）。

For enterprises, it is necessary to be familiar with the ICAC's "Guidelines for Business Ethics", establish anti bribery compliance systems (such as supplier audits and employee training), and avoid crossing the red line of corruption due to "not understanding local rules" (such as giving valuable gifts to public officials).

个人层面，若发现贪腐行为，可通过ICAC的正规渠道举报（需注意提供具体证据，如转账记录、聊天截图），且举报人的信息会被严格保密。

On a personal level, if corrupt behavior is discovered, it can be reported through the formal channels of ICAC (specific evidence should be provided, such as transfer records and chat screenshots), and the informant's information will be strictly confidential.

而在跨境合作方面，在粤港澳大湾区建设中，ICAC与内地监察机关（如广东省监察委员会）已建立跨境反贪协作机制，企业需关注两地反贪政策的衔接（如跨境商业贿赂的认定标准）。

In terms of cross-border cooperation, in the construction of the Guangdong Hong Kong Macao Greater Bay Area, ICAC has established a cross-border anti-corruption cooperation mechanism with mainland supervisory authorities (such as the Guangdong Provincial Supervisory Commission), and enterprises need to pay attention to the connection between anti-corruption policies in the two places (such as the identification standards for cross-border commercial bribery).