Complaint Counsel's Pre-Trial Brief
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FEDERAL TRADE COMMISSION | OFFICE OF THE SECRETARY | FILED 5/19/2021 | OSCAR NO. 601467 | Page 1 of 89 | PUBLIC PUBLIC UNITED STATES OF AMERICA FEDERAL TRADE COMMISSION OFFICE OF ADMINSTRATIVE LAW JUDGES In the Matter of Altria Group, Inc. DOCKET NO. 9393 a corporation; and JUUL Labs, Inc. a corporation. COMPLAINT COUNSEL’S PRE-TRIAL BRIEF Maribeth Petrizzi Stephen Rodger Acting Director James Abell Jeanine Balbach Jennifer Milici Michael Blevins Acting Deputy Director Erik Herron Frances Anne Johnson Dominic E. Vote Joonsuk Lee Assistant Director Meredith Levert Nicole Lindquist Peggy Bayer Femenella Michael Lovinger Deputy Assistant Director David Morris Kristian Rogers Federal Trade Commission Steven Wilensky Bureau of Competition Attorneys 600 Pennsylvania Ave., N.W. Washington, DC 20580 Telephone: (202) 326-2470 Facsimile: (202) 326-3496 Email: [email protected] Dated: May 19, 2021 FEDERAL TRADE COMMISSION | OFFICE OF THE SECRETARY | FILED 5/19/2021 | OSCAR NO. 601467 | Page 2 of 89 | PUBLIC PUBLIC TABLE OF CONTENTS TABLE OF AUTHORITIES ......................................................................................................... iv INTRODUCTION...................................................................................................................... 1 I. BACKGROUND .................................................................................................................... 4 1. The Rise of Electronic Cigarettes ...................................................................................... 4 a. E-Cigarettes Are Critically Important to the Tobacco Companies ................................. 4 b. Closed-System E-Cigarettes Differ from Open-Tank E-Cigarettes ................................ 5 c. Closed-System E-Cigarettes Include Cigalikes and Pod-Based Products ...................... 5 d. FDA Regulation and Other Barriers Limit Market Participation ................................... 6 2. The Market for Closed-System E-Cigarettes in the United States Is Dominated by a Very Small Group of Competitors .................................................................................... 7 a. Altria ............................................................................................................................... 7 b. JLI ................................................................................................................................... 8 c. Reynolds ......................................................................................................................... 9 d. ITG .................................................................................................................................. 9 e. JTI ................................................................................................................................. 10 f. NJOY ............................................................................................................................ 10 3. The Transaction Includes a Non-Compete Prohibiting Altria from Competing in E- Cigarettes......................................................................................................................... 10 4. Altria Was a Meaningful and Well-Positioned Competitor Who Was Committed to the E-Cigarette Category over the Long-Term................................................................ 12 a. Altria was a Major Competitor in Closed-System E-Cigarettes ................................... 12 b. Altria was Committed to Competing in E-Cigarettes Long-Term, and was Well- Positioned to Do So...................................................................................................... 14 5. JLI’s Growth Threatened Altria ...................................................................................... 18 6. As Part of Its Agreement to Acquire an Interest in JLI, Altria Agreed to— and Did—Exit the E-Cigarette Business ......................................................................... 18 7. The Non-Compete Foreclosed Other Avenues for Altria to Compete in the Closed- System E-Cigarette Market ............................................................................................. 27 II. ARGUMENT ....................................................................................................................... 30 1. The Relevant Market Is Sales of Closed-System E-Cigarettes in the United States ....... 30 a. The Relevant Product Market Is Closed-System E-Cigarettes ..................................... 30 i. Closed-System E-Cigarettes Are a Relevant Product Market Based on the Brown Shoe Factors .............................................................................................. 32 ii. The Closed-System E-Cigarette Market Excludes Open-Tank E-Cigarettes Because They Are Not Close Substitutes ............................................................. 35 i FEDERAL TRADE COMMISSION | OFFICE OF THE SECRETARY | FILED 5/19/2021 | OSCAR NO. 601467 | Page 3 of 89 | PUBLIC PUBLIC iii. The Hypothetical Monopolist Test Confirms Closed-System E-Cigarettes Are a Relevant Product Market............................................................................. 37 b. The Relevant Geographic Market Is the United States ................................................. 38 2. Respondents’ Agreement Violates Section 1 of the Sherman Act .................................. 38 a. Altria and JLI agreed that Altria would exit the U.S. e-cigarette market in exchange for its stake in JLI......................................................................................................... 39 i. Respondents’ communications establish that both firms understood that Altria could not continue to compete in the e-cigarette market ...................................... 40 ii. Altria’s outside agreement with PMI presented obstacles to Altria divesting or contributing its e-vapor assets............................................................................... 41 iii. In the absence of the transaction, the discontinuation of Nu Mark was against Altria’s economic self-interest .............................................................................. 42 iv. The Timeline of Altria’s Actions is Highly Suspect ............................................. 44 v. Respondents’ words and actions further support finding an anticompetitive agreement .............................................................................................................. 45 vi. Altria’s proffered explanations for its decision to exit the e-cigarette market are pretextual and inconsistent .............................................................................. 46 b. Respondents’ Agreement is Unlawful Under the Rule of Reason ................................ 51 i. The agreement has harmed and will continue to harm consumers ....................... 52 ii. Respondents cannot show procompetitive justifications for their Agreement ..... 55 iii. Even if the Respondents could show procompetitive justifications, the Agreement was not necessary to achieve them ..................................................... 56 iv. The competitive harm outweighs any benefits ..................................................... 57 c. Standing alone, the written Non-Compete also violates Section 1 of the Sherman Act ................................................................................................................. 57 i. Respondents cannot show the Non-Compete agreement is ancillary to an otherwise lawful transaction ................................................................................. 58 ii. Even if the Non-Compete was ancillary to an otherwise lawful transaction, it fails under the rule of reason ............................................................................. 60 3. The Transaction Violates Section 7 of the Clayton Act .................................................. 60 a. Applicable Legal Standard Under Section 7 ................................................................. 60 b. The Transaction Is Presumptively Unlawful in the Market for Sales of Closed-System E-Cigarettes in the United States ........................................................ 62 c. Evidence of Competitive Harm Bolsters the Presumption ........................................... 64 d. Respondents Cannot Rebut the Strong Presumption of Illegality ................................ 66 i. Entry or expansion will not be timely, likely, or sufficient to counteract the anticompetitive effects of the Transaction ............................................................ 67 ii. The claimed efficiencies are insufficient to rebut the presumption of harm ........ 69 ii FEDERAL TRADE COMMISSION | OFFICE OF THE SECRETARY | FILED 5/19/2021 | OSCAR NO. 601467 | Page 4 of 89 | PUBLIC PUBLIC a. Respondents’ Claimed Efficiencies Cannot be Verified ..................................... 70 b. Respondents’ Claimed Efficiencies Are Not Merger-Specific ........................... 71 e. The Transaction Also Eliminated Altria as a Potential Competitor to JLI ................... 72 4. The Appropriate Remedies are the Complete Divestiture of Altria’s Equity Stake and the Immediate Termination of the Non-Compete Agreement .................................. 74 CONCLUSION ........................................................................................................................ 76 iii FEDERAL TRADE COMMISSION | OFFICE OF THE SECRETARY | FILED 5/19/2021 | OSCAR NO. 601467 | Page 5 of 89 | PUBLIC PUBLIC