An
important ruling of the Court of Justice of the European Union (CJEU) on 3
September 2024, in two cases brought by Illumina and Grail against the European
Commission (EC), has essentially held that a company’s right to legal certainty
places a limit on the EC’s most flexible merger control powers. The relevant
powers, under Art. 22 of the EU Merger Regulation (EUMR), have been invoked
over the last 3 years at the ‘new frontiers’ of EU enforcement against
suspected ‘killer acquisitions’ of companies which do not meet merger control
turnover thresholds.
This
is a valuable CJEU ruling for companies engaged in M&A in the EU. It
may however result in the Irish Competition Authority (CCPC) having a bigger
role in global merger control and specifically in helping the EC review
suspected ‘killer acquisitions’ involving Irish-based pharma and tech companies
in particular. We explain why below-
In ruling in favour of Illumina and Grail (and thereby invalidating a €432m gun-jumping fine and a 2022 EC decision prohibiting their merger), the CJEU found that the EC has no power to investigate a merger under Art. 22 EUMR pursuant to referrals from national authorities who themselves lack power to investigate. In reaching this decision, the Court relied on the principle of legal certainty and the importance of turnover thresholds in providing that legal certainty.
Commissioner
Vestager’s statement in reaction to the CJEU ruling sought to downplay its
practical significance, by suggesting that the EC will get to the same place in
future by instead relying on referrals from other national authorities who have
recently acquired ‘call-in’ powers over ‘below threshold’ mergers:
“Going forward, in compliance with today's
judgment, the Commission will continue to accept referrals made under Article
22 of the Merger Regulation by Member States that have jurisdiction over a
concentration under their national rules where the applicable legal
requirements are met. In the last few years, several Member States have
introduced provisions allowing them to request the notification of transactions
that do not meet national thresholds, in situations where they might have a
significant competitive impact.”
While
Ireland was not named by Commissioner Vestager, it is clear that Ireland will
have a new importance to the EC. This is because, firstly, Ireland has
new national law powers to investigate ‘below threshold’ mergers affecting
competition here and, secondly, Ireland (likely more so than other national
authorities across the EU with similar ‘call-in’ powers) is a Head Office
location for many pharma and tech companies whose mergers may be alleged to be
‘killer acquisitions’ which warrant use of the EC’s Art. 22 powers. We
therefore expect the EC to look to Ireland for future Art. 22 referrals, just
as merging parties may look to Ireland as a prime referrer candidate when in
the different situation of considering making a Art. 4(5) referral request
to the EC themselves to avoid multiple national merger reviews across the EU.
It
should also be noted that the CJEU ruling may provide a new legal basis for
parties to dispute the EU law compatibility of the wide national powers of
regulators, such as the CCPC, in relation to ‘below-threshold’ mergers.
We refer to the below-quoted paragraphs 208 and 209 of the CJEU ruling, which
emphasise that turnover thresholds are important in ensuring that merger
control laws respect of legal certainty requirements:
“In that context, it must be borne in mind
that, in the scheme of the systems of prior control of concentrations of
undertakings successively envisaged at EU level, the thresholds set for
determining whether or not a transaction must be notified are of cardinal
importance. Undertakings that are potentially subject to notification and
standstill obligations must be able easily to determine whether their proposed
transaction must be the subject of a preliminary examination and, if so, by
which authority, and when a decision of that authority relating to that deal
may be expected.
Determining the competence of the national
competition authorities by reference to criteria relating to turnover is an
important guarantee of foreseeability and legal certainty for the undertakings
concerned, which must be able easily and quickly to identify to which authority
they must turn, and within what time limit and in what form…”
This
raises the legal question of whether call-in powers must be limited by a
‘brightline’ turnover/market share threshold to be compatible with EU law, or
whether limits such as call-in deadlines are sufficient. While the CJEU’s
ruling in Towercast last year is supportive of the compatibility of
national authorities’ wide competence to review mergers under general
competition law powers (ie, rules comparable to Art. 102 TFEU rather than
merger control rules), Towercast did not consider national call-in powers
such as those in Ireland which impose pre-closing notification and suspension
obligations and potential liability for huge gun-jumping fines. Thus, any
efforts to increase enforcement against ‘below threshold’ mergers will need to
approached carefully by the EC and national authorities with further litigation
being possible. In particular, it will be interesting to see whether the
EC will favour Art. 22 referrals from Member States like Ireland with wide
call-in powers (and no thresholds) or Member States with a more limited
national law jurisdiction, if and when the EC has a choice.
If you have any queries regarding Irish practice on the above, please contact our Competition Partners Kate McKenna, Niall Collins or Calum Warren.