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Preventing innovative cooperations: the legal exemptions unintended side effect

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Abstract

In 2004, European competition law had been considerable changed by the introduction of the new Council Regulation No. 1/2003. One of the major renewals was the replacement of the centralized notification system for inter-company cooperations in favor of a so-called legal exemption system. We analyze the implications of this reform and its arising uncertainty on the agreements firms implement, especially on innovative agreements like vertical R&D agreements. By means of a decision theoretic approach, we show that the law’s intention to reduce the incentive to establish illegal cartels will be reached but innovating cooperations might be prevented. To avoid this unintended side effect, fines but not the monitoring activities should be increased.

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Notes

  1. The differences between past and present competition law in the EU are given in Table 1 of Appendix 1.

  2. Press Release IP/02/1739 from 26 November 2002.

  3. Preamble 10 of the White Paper, OJ EC C 132/1 from 12 May 1999.

  4. Article 101(3) provides that the prohibition contained in Article 101(1) may be declared inapplicable in case of agreements which contribute to improving the production or distribution of goods or to promoting technical or economic progress (see Fig. 1 in the Appendix for types of efficiencies). A prerequisite for the application of Article 101(3) is that consumers receive a fair share of the resulting benefits, and that the joint ventures do not impose restrictions on competition.

  5. Agreements that are concluded between different parties with a combined market share of less than 25% and aiming to pursue one of the following three conditions are exempted from Article 101(1) (EC, 2002). These are in particular (a) research and development of products and processes and joint exploitation of the results, (b) exploitation of the results of research previously carried out by the parties and (c) research and development of products and processes excluding joint exploitation of the results. Instead, a vertical agreement means an arrangement or concerted practice between two or more companies operating at different levels of the production, distribution or supply chain which are not per se prohibited. Restrictive vertical agreements may be permitted if the involved parties can assure that technological or efficiency gains resulting from that agreement outweigh any anti-competitive effect.

  6. These information asymmetries concern not only the cartel infringements but also the offenders’ level of wealth which is a prerequisite when determining the fine (Polinsky 2006).

  7. The European Commission’s fining policy was not based on specific criteria until 1998, when the EC published Fining guidelines for the first time (see van den Bergh and Camesasca 2006).

  8. For a discussion on criminal sanctions in EU Competition Law see Wils (2006). Although he argues in favour of imprisonment as a penalty for hardcore cartels, he still stresses the need for adequate fines in order to deter from cartel agreements.

  9. In the following model, we subsume both probabilities of false classification in one parameter q, which determines the probability of the Antitrust Authority to err.

  10. The theory on law enforcement builds up on the seminal work of Becker (1968). However, most literature on the subject has been published in the last 15 years. For an overview see e.g. Garoupa (1997), Polinsky and Shavell (2000). Van den Bergh and Camesasca (2006, Chap. 8) summarize the literature on law enforcement from a European perspective.

  11. For instance Guidelines on the method of setting fines to be imposed pursuant to Article 23(2) (a) of Regulation No 1/2003, OJ 2006 C 210/2 from 1 September 2006. Additionally, the Antitrust Authority (Directorate General Competition) has established a new cartel unit in order to have more staff working on cartel cases. Several sector inquiries have been carried out since 2000.

  12. The Lisbon Strategy intends to increase the competitive ability of and within the European Union. It aims to increase productivity, efficiency and to accelerate innovations through several political actions.

  13. In this context, we neglect the existence of remedies and latitude to adopt the agreement within the monitoring period.

  14. The case of unprofitable cooperations (with profits less or equal to zero) is excluded, that for further analysis the possibility of non-cooperation need not be taken into account.

  15. Although, the notification procedure has been abolished with the introduction of Regulation No. 1/2003, firms may notify their agreements notified via comfort letters, still. However, the existence of comfort letters does not alter our results. They may decrease uncertainty relative to the pure-ex-post control system but cannot eliminate it completely. For further insights see for example Jenny (2000).

  16. Ex-post, the AA has several means to detect illegal cooperations. The leniency program seems to be the most powerful instrument. Introduced in 1996 and considerably changed in 2002, the European leniency program is intended to create an incentive for undertakings involved in cartels to leave the cartel and cooperate with the Commission by providing generous fine reductions up to immunity (European Commission 2002). A higher profit might lead to whistle blowing by a partner in order to use it as a pre-emptive strike and to gain a strategic advantage over competitors (Blum et al. 2008). However, in nearly all leniency cases the cooperation has been illegal as they concerned the coordination of price and supply policies which are per se forbidden. Another tool which is used by the AA are sector inquiries. In the recent past the EC carried out several sector inquiries in different industries each forced by signs that competition in the specific market is not functioning well. The EC discovered that a decline in innovation and a delay in market entry in the pharmaceuticals sector led to 20% higher prices than possible if entry would have taken place immediately after expiry of the patent of the originator (European Commission 2009, para. 209–229).

  17. It has to be noticed that consequently, q gets assigned to different evolvements in the decision tree, in a way that a wrong decision given an innovative agreement implies punishing and a wrong decision if a cartel has arisen means not identifying the cartel.

  18. Guidelines on the method of setting fines to be imposed on companies that infringe EC Treaty rules, see press release IP/07/857 from 28 June 2006: Competition: Commission revises Guidelines for setting fines in antitrust cases, available on: http://europa.eu/rapid/pressReleasesAction.do?reference=IP/06/857&format=HTML&aged=0&language=EN&guiLanguage=en (accessed on 09/04/2008).

  19. See guidelines on the method of setting fines to be imposed pursuant to Article 23(2)(a) of Regulation No 1/2003, OJ 2006 C 210/2 from 1 September 2006.

  20. The final amount of the fine depends also on the size of the markets affected, the duration of the infringement, its recidivism and the size of the firm (market share). See also Table 1 in the “Appendix”.

  21. This probability is assumed to be equal for both, an error of type I and an error of type II. Hence, for the lower as well as for the upper path, q remains the same. This assumption seems to be justifiable, as the newly implemented law gives strict guidance for examining a cartel as well as an exemption such that a wrong interpretation or application may result from systematic or systemic problems.

  22. For simplicity, we assume that the firm does not intend to enter an illegal agreement. Therefore, this probability stands also for the probability that the company had a wrong upfront appraisal, whereas the probability that the company was not mistaken is given by (1 − s). This procedure allows us further to distinguish different probabilities for legal and illegal innovative agreements in a second step.

  23. Recall that the third alternative—no agreement—can be neglected as per definition, the resulting extra profit is zero.

  24. For the proof in detail see “Appendix 2”.

  25. In this context, if AA’s probability to err is high and ex-ante anticipated by the firm, this may lead to higher expected values for the illegal path, such that legal cooperations may be prevented.

  26. It is further assumed that the order of profits is also prevailed by the revenues.

  27. Let therefore f denote\( f = f(R_{cc} ) = f(R_{Ic} ) = f(R_{II} ) \) and the probability of being detected p denotes \( p_{cc} = p_{Ic} = p_{II} \).

  28. For lucidity, the proof and adherent statements are omitted here, for further details see “Appendix 3”.

  29. Recall, only positive expectation values lead to a decision in favour of a certain path in the decision tree.

  30. Regulation No. 622/2008, OJ L 171 from 1 July 2008.

  31. See Press Releases for the following two cartel decisions: “Memory Chips“IP/10/586 and “Animal Feed Phosphates” IP/10/985.

  32. The assumption of linear dependence simplifies the proof. The results can also be assigned to exponential dependence.

  33. \( \Updelta_{2}^{2} \)=1 would lead to the proof in Appendix 2.

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Acknowledgments

We thank an anonymous reviewer for very helpful comments and suggestions.

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Correspondence to Margarethe Rammerstorfer.

Appendices

Appendix 1

See Table 1.

Table 1 Comparison of application of Article 81—old (Reg. No. 17/62) and new (Reg. No. 1/2003)

Appendix 2

The expectation value for the innovative path is given by:

$$ E(I) = \pi_{II} + s(\pi_{Ic} - \pi_{II} ) - c[p_{Ic} s + (1 - s)p_{II} ] - p_{II} f(R_{II} )q(1 - s) - p_{Ic} f(R_{Ic} )(1 - q)s. $$
(23)

The second term states the defending costs, which depend on the probability of being detected and the probability that the company received wrong information ex-ante. This term will always reduce the maximum possible expectation value, which is determined by the first two terms, as \( c[p_{Ic} s + (1 - s)p_{II} ] \)cannot become negative.

As c is per definition a positive value, the latter term can only become negative if:

$$ p_{Ic} s < - (1 - s)p_{II} $$
(24)
$$ p_{Ic} s < ( - 1 + s)p_{II} . $$
(25)

Since \( (1 - s)p_{II} > 0 \)it implies that

$$ - (1 - s)p_{II} < 0. $$

Hence, \( p_{Ic} s < 0 \).

Because 0 ≤ q ≤ 1 and 0 ≤ s ≤ 1, the term (1 − s)p II on the right hand side cannot become negative (the lowest value for the right hand side is given by zero), such that the total value of the right hand side can never reach a positive value. Consequently, if the left hand side has to approach a lower value than the right hand side, this implies that p Ic s < 0, which is precluded by definition.

Appendix 3

Again, for a cartel to be preferable, it must hold that E(C) > E(I). Assuming that R cc  > R Ic  > R II and π cc  > π Ic  > π II , this yields to:

$$ \begin{gathered} \pi_{cc} - p_{cc} [c + f(R_{cc} )(1 - q)] > (1 - s)[\pi_{II} - p_{II} [c + f(R_{II} )q] \hfill \\ +\,s[\pi_{Ic} - p_{Ic} [c + f(R_{Ic} )(1 - q)]] \hfill \\ \end{gathered} $$
(26)

Assuming further that the probability of detection, as well as the fine depend linear on excess profits (π).Footnote 32 Define: \( \Updelta_{1} \pi_{cc} = \pi_{Ic} \) and Δ2 π cc  = π II , with Δ1, Δ2 < 1 which yields also \( \Updelta_{1} R_{cc} = R_{Ic} \) and \( \Updelta_{2} R_{cc} = R_{II} \), and, consequently, implies that\( \Updelta_{1} p_{cc} = p_{Ic} \), \( \Updelta_{2} p_{cc} = p_{II} \). With respect to these conditions, inequality (26) can be rewritten as:

$$ \begin{gathered} \pi - pc + pf - pfq > \Updelta_{2} \pi - \Updelta_{2} pc - \Updelta_{2}^{2} pfq + \pi s(\Updelta_{1} - \Updelta_{2} ) + spc(\Updelta_{2} - \Updelta_{1} ) \hfill \\ +\,pfqs(\Updelta_{2}^{2} + \Updelta_{1}^{2} ) - pfs\Updelta_{1}^{2} \hfill \\ \end{gathered} $$
(27)

Solving for the probability q that AA makes a mistake, the following solutions can be distinguished:

$$ \begin{gathered} {\text{Solution}}\;1: \hfill \\ q < {\frac{{(\pi - pc + pf - \Updelta_{2} \pi + \Updelta_{2} pc - \pi s\Updelta_{1} + \pi s\Updelta_{2} - spc\Updelta_{2} + spc\Updelta_{1} + pfs\Updelta_{1}^{2} )}}{{pf(1 - \Updelta_{2}^{2} + s\Updelta_{2}^{2} + s + \Updelta_{1}^{2} )}}}, \hfill \\ {\text{if}} \hfill \\ 0 < pf - \Updelta_{2}^{2} pf + pfs(\Updelta_{2}^{2} + \Updelta_{1}^{2} ) \hfill \\ {\text{Solution}}\;2: \hfill \\ q > {\frac{{(\pi - pc + pf - \Updelta_{2} \pi + \Updelta_{2} pc - \pi s\Updelta_{1} + \pi s\Updelta_{2} - spc\Updelta_{2} + spc\Updelta_{1} + pfs\Updelta_{1}^{2} )}}{{pf(1 - \Updelta_{2}^{2} + s\Updelta_{2}^{2} + s + \Updelta_{1}^{2} )}}}, \hfill \\ {\text{if}} \hfill \\ 0 > pf - \Updelta_{2}^{2} pf + pfs(\Updelta_{2}^{2} + \Updelta_{1}^{2} ). \hfill \\ \end{gathered} $$

Solution 1 states that if the probability that AA slips up (q) is smaller than the ratio on the right hand side and if the additional constraint, which is given by \( 0 < pf - \Updelta_{2}^{2} pf + pfs(\Updelta_{2}^{2} + \Updelta_{1}^{2} ) \)holds, a cartel is preferred. Furthermore, a cartel overrules an innovative agreement if q exceeds the right hand side and if \( 0 > pf - \Updelta_{2}^{2} pf + pfs(\Updelta_{2}^{2} + \Updelta_{1}^{2} ) \).

Therefore, an additional statement about the parameters in the constraint has to be added.

Considering \( 0 < pf - \Updelta_{2}^{2} pf + pfs(\Updelta_{2}^{2} + \Updelta_{1}^{2} ) \) and solving for the probability of a firm’s error (s)—which highlights the probability that the firm assumes ex-ante that its agreement is innovative but which emphasizes ex-post to be a cartel—this has to fulfill:\( {\frac{{\Updelta_{2}^{2} - 1}}{{(\Updelta_{2}^{2} + \Updelta_{1}^{2} )}}} < s. \)

As \( \Updelta_{2}^{2} \)<1, the ratio on the left hand side becomes negative. Hence, solution 1 is valid for all probabilities s.

From solution 2, it follows:

$$ {\frac{{\Updelta_{2}^{2} - 1}}{{(\Updelta_{2}^{2} + \Updelta_{1}^{2} )}}} > s, $$

which can never hold as s determines a probability and, thus, has to lie in the range of 0 ≤ s ≤ 1. Therefore, a positive value for the left hand side can only be reached if Δ 22  = 1, which is excluded by assumption.Footnote 33

Concluding, solution one gives the necessary parameter constellation such that the expectation value for the cartel exceeds the innovative agreement. The same relation holds for exponential dependence of fees and detection probabilities on excess profits.

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Growitsch, C., Nulsch, N. & Rammerstorfer, M. Preventing innovative cooperations: the legal exemptions unintended side effect. Eur J Law Econ 33, 1–22 (2012). https://doi.org/10.1007/s10657-010-9184-9

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