International discussion: consumer welfare vs. structural approach<\/strong><\/p>\n\u00d8\u00a0 Let me underpin this \u201cwindow of opportunity\u201d frame with a transatlantic historical view on the antitrust pendulum.<\/p>\n
\u00d8\u00a0 Starting in the 1970s into the 1990s, the so-called neoliberal and Chicago School thinking triggered a battle for the soul of antitrust world-wide and had a deep impact on economic policies.<\/p>\n
\u00d8\u00a0 Before in the US, the Sherman Act had been enacted and enforced following a plethora of economic and societal goals. There was a firm recognition of the need to constrain private power to protect society and democracy. As this famous quote ascribed to Justice Brandeis reads: \u201cWe can have democracy in this country, or we can have great wealth concentrated in the hands of a few, but we can’t have both.\u201d<\/p>\n
\u00d8\u00a0 In Germany, legal scholars and economists such as Walter Eucken in the wake of the Second World War thought deeply about the interdependencies between private power, democracy and society.<\/p>\n
\u00d8\u00a0 These broader concepts gave competition policy both in the US and Europe legitimacy and a solid foundation to look into market structures and apply per these rules in abuse of dominance cases.<\/p>\n
\u00d8\u00a0 The Chicago School brought this to an end. By focussing on consumer welfare as the sole purpose of antitrust, it brought economic rigour. But it also impoverished competition policy.<\/p>\n
\u00d8\u00a0 The European Commission bought into this \u2018antitrust redux\u2019 to some extent under the heading of the \u201cmore economic approach\u201d.<\/p>\n
\u00d8\u00a0 With some Neo-Brandesians now in charge in several national public institutions and the Europeans being proactive on digital markets for some time, are we witnessing a \u201cZeitenwende\u201d in antitrust? Maybe not that far. But it is fair to say that the antitrust pendulum is swinging back from Chicago to some extent.<\/p>\n
Trend towards broader-based competition policy<\/strong><\/p>\nMy hope is that for some time to come, we will see a trend towards more structure-oriented and broader-based competition policies beyond a too narrow, short-term consumer welfare thinking for five reasons:<\/p>\n
\u00d8\u00a0 First, concentration levels and mark-ups. There is a lively and complex debate among economists about the causes and consequences of the rise in concentration, in particular in the US. The French economist Thomas Philippon [\u201cThe Great Reversal\u201d] has shown that mark-ups are systematically related over time and across countries and industries to the changes in concentration. So, we do need to look into market structures.<\/p>\n
\u00d8\u00a0 Second, demand by voters. Citizens increasingly ask the question whether states still have the power to regulate global firms. There is political momentum to raise the power question in capitalism. Competition policy has proven over time that it can constrain private power. Some policies on consumer markets can set de facto world-wide standards \u2013 nicely described for the EU as \u201cThe Brussels Effect\u201d by the academic Anu Bradford.<\/p>\n
\u00d8\u00a0 Third, inflation. The relation between inflation and competition is not straightforward. But some mechanisms are clear: Innovation competition may dramatically reduce prices. Politically, price increases already give competition enforcers some tailwind. In some markets, exploitative pricing may be limited by antitrust action. And in competitive markets, price and tax reductions should be passed on to consumers. As a side-note in this context: We have to think about the drop in leniency applications and about reinforcing the fight against cartels.<\/p>\n
\u00d8\u00a0 Fourth, sustainability. I know that many of you are discussing the relation of competition and sustainability in your jurisdiction, at least with a view to improving legal certainty. The European Union has published its draft Horizontal Guidelines. I see them as a starting point. For Germany, we will decide on further clarifications within the reform of our Act against Restraints in this legislative cycle. But let me also be clear here: The main way to protect the climate, to improve sustainability on all fronts is to internalise external costs and to raise standards through legislative instruments outside competition policy. And \u2013 as the Minister pointed out – competitive open markets supporting disruptive technologies are key to achieve the objectives of the Green transition of our economies.<\/p>\n
\u00d8\u00a0 Fifth, the digital revolution and platforms. Non-price effects and open-ended balancing have demonstrated the limits of the consumer welfare approach on rapidly-evolving platform markets and in digital abuse of dominance cases. The Digital Markets Act is a direct answer to these limits, but only if it is properly enforced.<\/p>\n
Digital Markets Act<\/strong><\/p>\n\u00d8\u00a0 On the DMA, let me first say that the German Federal Government regards it as a major achievement. We had asked for additional instruments on the digital gatekeepers on the EU level for years. In Germany, we adopted a particular provision on big platforms with leveraging power across markets last year.<\/p>\n
\u00d8\u00a0 As a staunch supporter of transparency and controlling lobbying in legislative procedures, I can say that EU legislators withstood the many efforts by the GAFAs.<\/p>\n
\u00d8\u00a0 Within the frame of our G7 Presidency, I will host a workshop for policy-makers on 12 October this year on the different legislative efforts on digital markets. The OECD will help us in mapping the different legislative efforts in this area. Our workshop will be another good opportunity to foster cooperation and search for common principles.<\/p>\n
\u00d8\u00a0 Let me express one sceptical note on the DMA: It has \u2013 rightly \u2013 been labelled as a permanent abuse control \u201con steroids\u201d. It mostly shies away from structural measures. In that regard, I put some hope in our US colleagues.<\/p>\n
Structural measures and instruments<\/strong><\/p>\n\u00d8\u00a0 In my view, in the EU we need to think about reinforcing structural measures and instruments.<\/p>\n
\u00d8\u00a0 One particular area where we need reinforcement is EU merger control. The number of interventions in mergers has dropped over the years. Unfortunately, and to some extent incomprehensibly, the European Commission so far has resisted calls to look into the EU Merger Regulation and the underlying substantive Guidelines to better deal with killer acquisitions. We need reform here.<\/p>\n
\u00d8\u00a0 Second, we should think about reviving the New Competition Tool debate. In preparation for the DMA, the European Commission had tabled the option of an instrument to address structural market deficiencies, independent of an abuse of power.<\/p>\n
\u00d8\u00a0 Third, market investigations can be a good screening tool and starting point for proposing structural measures towards better markets. The British CMA may provide good examples here. We will look into giving more flexibility to the Bundeskartellamt in its market investigations, when reforming our national competition law. Market investigations and structural remedies should also be on the table for the upcoming review of Regulation 1\/2003 that Commissioner Vestager has announced recently.<\/p>\n
\u00d8\u00a0 These are just some of our proposals and intended measures. In February, we also presented a more comprehensive national ten-point plan on competition policy.<\/p>\n
Importance of antitrust agencies\u2019 work<\/strong><\/p>\n\u00d8\u00a0 Before I conclude, let me shortly express my recognition and gratitude. As some of you might know, I am a firm believer in public service.<\/p>\n
\u00d8\u00a0 I would like to thank in particular the competition enforcers who are present here today for their hard work. You have to cope with politicians like me who would like to see immediate market results. You have to withstand the siren song of big pay cheques by law firms and big tech jobs. You have to deal with sometimes over-rigorous courts which have plenty of time to dig into every detail of your decision.<\/p>\n
\u00d8\u00a0 I would like to encourage you to keep on rolling and doing your job \u2013 you work not only in the interest of short-term consumer welfare. Democracies are fragile. Markets are fragile. Your work protects the freedom to compete and sometimes the freedom of expression.<\/p>\n
\u00d8\u00a0 And if I may express a wish: Be courageous and bold.<\/p>\n
\u00d8\u00a0 Many thanks.<\/p>\n","protected":false},"excerpt":{"rendered":"
I delivered the following speech on 4.5.2022 at the 21st International Cartel Conference (IKK) of the Bundeskartellamt in my role as State Secretary. For more background: https:\/\/www.d-kart.de\/blog\/2022\/05\/04\/antitrust-pendulum-swinging-back\/ Dear Andreas Mundt, Dear Olivier and Benoit, Dear heads of agencies, Ladies and gentleman, \u00d8\u00a0 Many thanks for the invitation. \u00d8\u00a0 This forum is a great place to […]<\/p>\n","protected":false},"author":36149,"featured_media":44254,"comment_status":"closed","ping_status":"closed","sticky":false,"template":"","format":"standard","meta":{"_acf_changed":false,"footnotes":""},"categories":[3174],"tags":[],"class_list":["post-44255","post","type-post","status-publish","format-standard","has-post-thumbnail","hentry","category-bmwk-en"],"acf":[],"yoast_head":"\n
Current Competition Policy Challenges and Agenda of the BMWK - Speech at the 21st International Cartel Conference (IKK) of the Federal Cartel Office - Sven Giegold<\/title>\n<meta name=\"robots\" content=\"index, follow, max-snippet:-1, max-image-preview:large, max-video-preview:-1\" \/>\n<link rel=\"canonical\" href=\"https:\/\/sven-giegold.de\/en\/speech-icc-competition-policy\/\" \/>\n<meta property=\"og:locale\" content=\"en_US\" \/>\n<meta property=\"og:type\" content=\"article\" \/>\n<meta property=\"og:title\" content=\"Current Competition Policy Challenges and Agenda of the BMWK - Speech at the 21st International Cartel Conference (IKK) of the Federal Cartel Office - Sven Giegold\" \/>\n<meta property=\"og:description\" content=\"I delivered the following speech on 4.5.2022 at the 21st International Cartel Conference (IKK) of the Bundeskartellamt in my role as State Secretary. 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