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Employers are rushing to comply with the new rules to avoid fines.
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Many avoid fines or pay well below the maximum.
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Targeted grants might help the lagging hospitals get up to speed and avoid fines, researchers suggest.
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Police said they wanted to avoid fines and arrests and would aim to persuade people to comply.
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Some mothers chose to give birth in Hong Kong to avoid fines for breaching China's one-child policy.
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Greenstar said this target could be exceeded by more than 330,000 tonnes, avoiding fines, by recycling biodegradable material in brown bins.
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Swiss bank UBS and Britain's Barclays avoided fines of 2.5 billion euros and 690 million respectively for revealing the existence of the cartel.