EU Merger Control : Ancillary Restraints
© Łukasz Stępkowski
• The Merger Regulation alludes to the idea that not all restrictions of competition are prohibited under merger rules, in that only significant impediments to
competition are supposed to be included in the Commission’s analysis and then prohibited (see 2(3) of the Merger Regulation)
• At the same time, the application of the Merger Regulation normally precludes the application of other rules of competition law, in particular Regulation no 1/2003 (see 21(1) MR)
• The practical consequence of this is that certain restrictions are not caught by Article 2(3) MR
• This concept amounts to the idea of the so-called „ancillary restraints”
• Admittedly, ancillary restraints are restrictions of competition that are deemed to be permissible under a merger
• The proper name for ancillary restraints is „restrictions directly related and
necessary to the implementation of the concentration”
• The phrase „ancillary restraints” is not found under the MR
• However, recital 21 of the MR reads:
• „This Regulation should also apply where the undertakings concerned accept restrictions directly related to, and necessary for, the implementation of the concentration.
• Commission decisions declaring concentrations compatible with the common market in application of this Regulation should automatically cover such restrictions, without the Commission having to assess such restrictions in individual cases. At the request of the undertakings concerned, however, the Commission should, in cases presenting novel or unresolved questions giving rise to genuine uncertainty, expressly assess whether or not any restriction is directly related to, and necessary for, the implementation of the concentration.
• A case presents a novel or unresolved question giving rise to genuine uncertainty
if the question is not covered by the relevant Commission notice in force or a
published Commission decision”.
• The MR’s position is therefore that any purported ancillary restraints are to be included in the Commission’s analysis
• In addition, ancillary restraints are not to be assessed separately
• Should there be a positive decision from the Commission, ancillary restraints are covered by it and thus permitted
• Articles 6 and 8 MR : „A decision declaring a concentration compatible shall be deemed to cover restrictions directly related and necessary to the
implementation of the concentration”
• Apart from the MR, there is a dedicated set of guidelines from the Commission:
• Commission Notice on restrictions directly related and necessary to concentrations
• https://eur-lex.europa.eu/legal-content/EN/ALL/?uri=CELEX:52005XC0305(02)#
ntr11-C_2005056EN.01002401-E0011
, hereinafter „Ancillary Restraints Notice / ARN”
• The ARN is without prejudice to the case-law of the Court of Justice of the
European Union
• Why there is a permission for ancillary restraints?
• The core idea is that a merger may leave an undertaking vulnerable to the other undertaking’s anti-competitive conduct
• Suppose that there is a concentration between A and B, in that A sells a part of its business to B; A is a well-known undertaking and has goodwill on the market
• After the transaction, A quickly rebuilds the sold part of its business and forecloses B from entering the market
• A profits both from the transaction and its operations
• B gets the part of A’s business, but cannot actually act on the market, potentially turning a loss or becoming insolvent in an extreme case
• Hence, some measures allowing for a „stable” merger may be called for
• The Court of Justice has long since accepted that there may be permitted ancillary restraints in a merger
• The reasoning therefor is that without certain safeguards, the acquiring party or a newly formed undertaking would be vulnerable to the other party’s conduct,
were it to attempt to claw back its customers immediately after the merger, with the competition on the market affected by the potential collapse of the acquiring party/newly formed undertaking
• The Court stated in 42/84 Remia, p. 20 that:
• „In order to have that beneficial effect on competition , such clauses must be necessary to the transfer of the undertaking concerned and their duration and scope must be strictly limited to that purpose”
• https://eur-lex.europa.eu/legal-content/EN/TXT/?
qid=1545080159693&uri=CELEX:61984CJ0042
• As such, ancillary restraints:
• 1) must be genuinely necessary for the transfer of an undertaking to take place
• 2) their scope must be limited
• 3) their duration must be limited
• Where those criteria are fulfilled, Article 101 TFEU does not apply
• The Court in Remia reviewed a 10 year non-competition clause which the Commission prohibited on grounds, inter alia, that the clause had a duration longer than necessary (longer than 4 years in regard to a market that was
characterized by neither high technology requirements nor the need of securing
long-term supply); the Court found that the Commission correctly found that this
restraint went beyond what was necessary
• There is no „rule of reason” in regard to ancillary restraints in the context of mergers
• Sometimes, economic sciences (in particular, economic scientists based in the USA) advocate – generally speaking - that there should be a certain limit to the appreciability of restraints
• However, the CFI (now the General Court) stressed in a merger context that there is no such rule under what is now EU law
• T-119/99 Metropole :https://eur-lex.europa.eu/legal-content/EN/TXT/?
qid=1545080176910&uri=CELEX:61999TJ0112 , para. 72, 76
• The CFI in Metropole further clarified that a „necessary” restriction means a
restriction which is „any restriction which is subordinate to the implementation of
that operation and which has an evident link with it” (para. 105)
• Further, the CFI in Metropole stated that:
• „The condition that a restriction be necessary implies a two-fold examination. It is necessary to establish, first, whether the restriction is objectively necessary for
the implementation of the main operation and, second, whether it is proportionate to it (…)
• There is no need „to weigh the pro and anti-competitive effects of an agreement”
in the scope of Article 101(3) TFEU
• However, a restriction must not only be objectively necessary for a merger, but
also must be proportionate (see para 106)
• The Commission’s sole jurisdiction to decide on ancillary restraints while
assessing a merger implies that a national court may not, by virtue of direct application of Article 101 TFEU, check their compatibility on its own
• CFI in T-251/00 Lagardere
• https://eur-lex.europa.eu/legal-content/EN/ALL/?uri=CELEX:62000TJ0251&qid=
1545080195780
• Para. 84: Furthermore, the defendant cannot successfully plead the direct effect of Article 81(1) EC [now: 101(1) TFEU] to argue that it is for the national court to
rule whether restrictions are directly related and necessary to a concentration which the Commission has approved, without the national court being bound by the Commission's reasoning on that point in the grounds of the decision
approving the concentration.
• The ARN provides further data on ancillary restraints from the point of view of the Commission
• 12. For restrictions to be considered ‘directly related to the implementation of the
concentration’, they must be closely linked to the concentration itself. It is not sufficient that an agreement has been entered into in the same context or at the same time as the concentration (10). Restrictions which are directly related to the concentration are economically related to the main transaction and intended to allow a smooth transition to the changed company structure after the concentration.
• 13. Agreements must be ‘necessary to the implementation of the concentration’ (11), which means that, in the absence of those agreements, the concentration could not be implemented or could only be implemented under considerably more uncertain conditions, at substantially higher cost, over an appreciably longer period or with considerably greater difficulty (12).
• Agreements necessary to the implementation of a concentration are typically aimed at
protecting the value transferred (13), maintaining the continuity of supply after the break-up of a former economic entity (14), or enabling the start-up of a new entity (15). In determining
whether a restriction is necessary, it is appropriate not only to take account of its nature, but also to ensure that its duration, subject matter and geographical field of application does not exceed what the implementation of the concentration reasonably requires.
• If equally effective alternatives are available for attaining the legitimate aim pursued, the undertakings must choose the one which is objectively the least restrictive of competition.