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Expte. 652/07 Repsol/Cepsa/Bp) RESOLUCIÓN (EXPTE. 652/07 REPSOL/CEPSA/BP) CONSEJO D. Luís Berenguer Fuster, Presidente D. Fernando Torremocha y García-Sáenz, Vicepresidente D. Emilio Conde Fernández-Oliva, Consejero D. Miguel Cuerdo Mir, Consejero Dª. Pilar Sánchez Núñez, Consejera D. Julio Costas Comesaña, Consejero Dª. M. Jesús González, Consejera Dª. Inmaculada Gutiérrez, Consejera En Madrid, a 30 de julio de 2009. El Consejo de la Comisión Nacional de la Competencia (el Consejo de la CNC, el Consejo) con la composición ya expresada y siendo Ponente Dña. Pilar Sánchez Núñez, ha dictado la siguiente Resolución en el expediente sancionador 652/07 - número 2804/07 de la Dirección de Investigación (DI)-, iniciado de oficio, por presuntas conductas prohibidas por la Ley 16/1989, de Defensa de la Competencia (LDC). ANTECEDENTES DE HECHO 1. El 1 de agosto de 2008 la DI dio trasladado al Consejo del expediente 2804/07 incoado de oficio el 30 de julio de 2007 contra las operadoras de productos petrolíferos REPSOL COMERCIAL DE PRODUCTOS PETROLÍFEROS, S.A. (REPSOL), CEPSA ESTACIONES DE SERVICIO S.A. (CEPSA) Y BP OIL ESPAÑA S.A. (BP), por prácticas restrictivas de la competencia prohibidas en el artículo 1 de la LDC. En su informe la DI propone al Consejo que: Primero.- Que se declare que los contratos de REPSOL COMERCIAL DE PRODUCTOS PETROLÍFEROS, S.A., CEPSA ESTACIONES DE SERVICIO S.A. Y BP OIL ESPAÑA S.A. con sus denominados comisionistas y revendedores son acuerdos entre operadores económicos que deben examinarse a la luz de las normas de competencia en la medida en que estos distribuidores soportan al menos parte de los riesgos comerciales y financieros de la venta minorista de carburantes, y para los cuales la solución aportada por las imputadas de permitir al distribuidor la concesión de descuentos con cargo a su comisión/margen sin disminuir los ingresos del principal no es aplicable, lo que hace que dicha solución sea inapropiada para 1 solucionar el problema de competencia detectado en este tipo de relaciones contractuales. Segundo.- Que se declare que la combinación de precios máximos y recomendados con otra serie de prácticas, propias de las relaciones verticales de las partes, equivale a una fijación indirecta del precio de reventa por el operador y, por lo tanto, no está cubierta por la exención, con independencia de la cuota de mercado del operador. Esta fijación indirecta, a la que contribuye la estructura del sector y el efecto acumulativo derivado de la estructura patrimonial y operativa de los contratos, constituye en el caso de cada uno de los tres operadores individualmente considerados y de manera conjunta una práctica contraria al Artículo 1 de la LDC, que tiene por efectos anticompetitivos una reducción de la competencia intramarca al convertir los precios recomendados o máximos en fijos y una facilitación del alineamiento entre los operadores y, por tanto, la limitación de la competencia intermarca. Tercero.- Que se intime a REPSOL COMERCIAL DE PRODUCTOS PETROLÍFEROS, S.A., CEPSA ESTACIONES DE SERVICIO S.A. Y BP OIL ESPAÑA S.A. para que en el futuro se abstengan de realizar estas prácticas prohibidas. En este sentido, la DI propone que se imponga a las citadas empresas la adecuación de sus contratos para evitar las prácticas anticompetitivas. Cuarto.- Que se ordene a REPSOL COMERCIAL DE PRODUCTOS PETROLÍFEROS, S.A., CEPSA ESTACIONES DE SERVICIO S.A. Y BP OIL ESPAÑA S.A. la publicación, a su costa, de la parte dispositiva de la Resolución que en su momento se dicte en el BOE y en un diario de información general que tenga difusión en todo el territorio nacional. Así mismo, que se imponga a REPSOL COMERCIAL DE PRODUCTOS PETROLÍFEROS, S.A., CEPSA ESTACIONES DE SERVICIO S.A. Y BP OIL ESPAÑA S.A. la obligación de comunicar a todos sus abanderados los términos de esa resolución que afecten a sus contratos. Quinto.- Que se adopten los demás pronunciamientos previstos en el artículo 46 de la LDC. 2. Según consta en el expediente, éste se origina como sigue: “El 28 de mayo de 2004, tuvo entrada escrito de la Unión de Consumidores de Ávila (UCA), en el que, a la vista de los precios aplicados por las ocho Estaciones de Servicio (EESS) de dicha ciudad, solicitaba del Servicio de Defensa de la Competencia (SDC) su opinión sobre la existencia de un posible acuerdo de precios perjudicial para los consumidores, así como sobre el que los precios en Ávila fueran los más caros de Castilla y León y unos de los más elevados de España. El día 1 de marzo de 2005 tuvo entrada en el SDC, a través del Tribunal de Defensa de la Competencia (TDC), escrito del Ayuntamiento de Ávila en el que se daba cuenta del acuerdo adoptado por el Pleno de dicho Ayuntamiento de 31 de mayo de 2004 de “trasladar una consulta al Tribunal de la Competencia, acogiéndose al artículo 26 de Funciones Consultivas de la Ley 16/89, de 17 de julio de 2 Defensa de la Competencia, pidiendo el análisis de precios de las distintas Estaciones de Servicio de Ávila y la emisión de un informe aclaratorio en materia de competencia respecto al precio de los carburantes”. El 8 de noviembre de 2005 se solicita información a las 8 EESS hasta la fecha interesadas relativa al contrato y al sistema de fijación de precios, contestando todas entre el 30 de noviembre y el 5 de diciembre de 2005. Del análisis de la información que, a instancia del SDC, fue remitida por el Ayuntamiento, la UCA y las propias EESS, se extrajeron las siguientes conclusiones (folios 1 a 389): - las EESS abanderadas de Cepsa tienen el mismo precio y cambian éste el mismo día. - a igual conclusión se llega respecto de las EESS de BP y Repsol respectivamente, si bien hay algún día en que difieren, tanto en cuanto a precio como a días de cambio, coincidiendo también en ocasiones en precio y día de cambio las EESS de ambos operadores. - los precios establecidos por las distintas EESS, con independencia del operador y tipo de contrato, son los recomendados por el propio operador, de ahí la mayoritaria igualdad que se aprecia entre EESS abanderadas por el mismo operador y su práctica coincidencia en el día de cambio de precio. Es decir, cabría inferir un seguimiento total de los precios recomendados o máximos por parte de las EESS. Como consecuencia del citado resultado, el SDC consideró la necesidad de abrir nuevas diligencias para determinar el grado de seguimiento por parte de los distribuidores de carburantes de los precios máximos/recomendados comunicados por los respectivos operadores”. 3. “El 19 de diciembre de 2005 el Servicio, en virtud del artículo 31 de la LDC, inició unas diligencias bajo el número DP 13/05 al objeto de analizar la situación y grado de competencia, así como la posible existencia de prácticas restrictivas de la competencia en el mercado de la distribución al por menor de productos petrolíferos de automoción a través de estaciones de servicio, concretamente para determinar si el precio que las operadoras establecen como máximo o recomendado a las EESS que suministran funciona realmente como tal o si por el contrario el grado de seguimiento del mismo es mayoritario, y de ser así a qué se debía dicho seguimiento. 4. El resultado de las diligencias anteriores concluía que había un elevado grado de seguimiento por parte de las estaciones de servicio del precio de venta recomendado o precio máximo fijado por los operadores. Estos resultados motivaron la incoación del presente expediente el 30 de julio de 2007 contra REPSOL, CEPSA y BP, “… de conformidad con lo establecido en los apartados 1 y 4 del artículo 36 de la LDC, … por prácticas restrictivas de la competencia prohibidas en el artículo 1 de la LDC.”. 3 5. Una vez incoado el expediente se llevaron a cabo las siguientes actuaciones instructoras por parte de la DI: “1.- Por un lado, se continuó analizando la información relativa a los precios sobre la base de la información incluida en la base de datos del Ministerio de Industria, Turismo y Comercio, con el doble objeto de comprobar tanto el seguimiento real del precio máximo o recomendado por las EESS, como el efecto sobre el nivel de precios y, por tanto, de la competencia intermarca. 2.- Por otro lado, solicitó información a una muestra representativa de EESS sobre los mecanismos de fijación de los precios de venta al público y su relación con los precios máximos o recomendados por el proveedor. Se procedió de modo que dicha muestra recogiera todas las posibilidades en cuanto al problema de alineación de precios que se investigaba. Así, no sólo se solicitó información a EESS de las tres operadoras interesadas, sino también a otras en las que los porcentajes de alineación de precios eran claramente inferiores (ERG, AGIP). Por otra parte, la muestra recogía tanto EESS que sí modificaban el PVR por la operadora, como EESS que no lo hacían. Asimismo, se procuró que dicha muestra diera cabida a los distintos tipos de regímenes de propiedad/gestión de la estación. El número total de EESS encuestadas fue de 50. Para ello, se consideró necesario solicitar información sobre los sistemas de establecimiento y comunicación de precios máximos/recomendados utilizados, sobre los sistemas para el establecimiento de los precios de transferencia de los productos, sobre los mecanismos de fijación de las comisiones y márgenes de beneficios para el distribuidor, sobre el sistema de facturación del producto vendido a través de tarjetas propias de los operadoras, etc. Todo ello, con el fin último de determinar si esa presunta alineación generalizada entre los precios de venta al público (PVP) y los precios máximos/recomendados (PVR) que se había detectado era efectivamente real y, en caso afirmativo, cuáles serían las causas de la citada alineación y la consecuente ausencia de competencia intramarca.
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