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Liberalização Do Sector Postal

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Liberalização Do Sector Postal Autoridade da Concorrência LIBERALIZAÇÃO DO SECTOR POSTAL Principais questões concorrenciais - Julho de 2010 - ÍNDICE Sumário executivo ...................................................................................................... 3 1. Introdução .......................................................................................................... 6 2. Caracterização do sector ...................................................................................... 8 2.1. Introdução ................................................................................................... 8 2.2. Segmentação do mercado .............................................................................. 8 2.3. Cadeia de valor ............................................................................................. 9 2.4. Processo de liberalização .............................................................................. 11 2.5. Caracterização do sector: conclusões ............................................................. 14 3. Mercado português ............................................................................................ 15 3.1. Introdução ................................................................................................. 15 3.2. Área liberalizada vs. Área reservada .............................................................. 15 3.3. Estrutura de mercado .................................................................................. 18 3.4. Preços e qualidade de serviço ....................................................................... 21 3.5. Mercado português: conclusões ..................................................................... 22 4. Condicionalismos à entrada e à expansão ............................................................. 24 4.1. Introdução ................................................................................................. 24 4.2. Condicionalismos legais ................................................................................ 24 4.3. Condicionalismos naturais ............................................................................ 28 4.4. Condicionalismos à entrada e à expansão: conclusões ..................................... 32 5. Comportamentos anti-concorrenciais ................................................................... 35 5.1. Introdução ................................................................................................. 35 5.2. Tipificação de comportamentos ..................................................................... 35 5.3. Prática decisória da Comissão Europeia .......................................................... 37 5.4. Prática decisória das ANC ............................................................................. 42 5.5. Comportamentos anti-concorrenciais: conclusões ............................................ 44 6. Conclusões e recomendações .............................................................................. 46 Bibliografia ............................................................................................................... 50 Anexo I – Glossário ................................................................................................... 51 ÍNDICE DE GRÁFICOS Gráfico 1: Tráfego postal por área e serviço (2009) ....................................................... 18 Gráfico 2: Tráfego postal por área e por serviço, em milhares de itens (2007-2009) ......... 18 Gráfico 3: Tráfego postal liberalizado por destino (2009) ............................................... 18 Gráfico 4: Tráfego postal liberalizado por destino, em milhares de itens (2007-2009) ........ 18 Gráfico 5: Capitação postal (2004-2009) ..................................................................... 19 Gráfico 6: Prestadores de serviços postais em actividade (2002-2009) ............................ 19 Gráfico 7: Mercado liberalizado de tráfego postal por destino: quotas de mercado dos CTT (2008-2010) ............................................................................................................ 20 Gráfico 8: Mercado liberalizado de tráfego postal por serviço: quotas de mercado dos CTT (2008-2010) ............................................................................................................ 20 Gráfico 9: Índice da evolução de preços (2006-2008) .................................................... 21 Gráfico 10: Indicador global de qualidade (2006-2008) ................................................. 22 ÍNDICE DE TABELAS Tabela 1: Serviços abrangidos pela área reservada na UE27 ........................................... 17 Tabela 2: Serviços postais isentos de IVA na UE27 ........................................................ 27 ÍNDICE DE FIGURAS Figura 1: Cadeia de valor tradicional ............................................................................. 9 Figura 2: Nova cadeia de valor ................................................................................... 10 Figura 3: Segmentação actual do mercado por área liberalizada e área reservada ............. 17 2/52 SUMÁRIO EXECUTIVO 1. O presente documento de orientação tem por objecto avaliar a situação concorrencial do sector postal em Portugal e identificar os principais condicionalismos enfrentados pelos prestadores de serviços postais alternativos ao incumbente. 2. A proximidade da data de conclusão do processo de liberalização do sector postal, iniciado no final dos anos 90 do século XX, poderá implicar um aumento das questões de natureza concorrencial neste sector, à semelhança do verificado em outras indústrias de rede. Este facto motivou a Autoridade da Concorrência (AdC), seis meses antes da abertura total do mercado postal prevista na terceira Directiva Postal, a publicar o presente documento de orientação. 3. A liberalização do sector postal em Portugal, tem vindo a traduzir-se na progressiva restrição do lote de serviços constante da área reservada, embora o âmbito da mesma seja ainda muito abrangente no contexto europeu. 4. Relativamente aos preços dos principais serviços postais incluídos no âmbito do Serviço Universal (SU), estes têm vindo a reduzir-se em Portugal, por via da intervenção regulamentar, comparando favoravelmente com a média comunitária. Ainda assim, a procura de serviços postais no nosso país diminuiu nos últimos anos, em resultado da crise económica e da crescente substituição destes serviços por meios electrónicos alternativos de envios de correspondência e publicidade. 5. Por outro lado, os CTT – Correios de Portugal S.A. (CTT) mantêm uma posição de liderança na maior parte dos segmentos de mercado dos serviços postais abertos à concorrência, com quotas em volume superiores a 90%. Os serviços de correio expresso, que representam cerca de 2% do tráfego postal total e aproximadamente 25% das receitas totais do sector, constituem a excepção a este cenário. 6. Esta posição de liderança por parte dos CTT resulta do facto de uma parte significativa dos segmentos de mercado de serviços postais se caracterizar por uma fraca contestabilidade, em face da existência de elevados condicionalismos à entrada e à expansão. 7. O primeiro conjunto destes condicionalismos relaciona-se com questões legais, nomeadamente a existência de uma área reservada, os processos de licenciamento, com o acesso à rede, o tratamento fiscal diferenciado, os requisitos da obrigação de SU e a incerteza regulatória. 8. A adopção de regras de abertura dos mercados à concorrência tem permitido atenuar parte destes condicionalismos à entrada e à expansão. Com efeito, de acordo com as Directivas Postais comunitárias, a extensão da área reservada deverá ser progressivamente reduzida com vista à total liberalização. 9. Neste contexto, e tendo como objectivo a promoção da concorrência e do bem-estar dos consumidores, a AdC recomenda: 3/52 (i) que o serviço postal seja assegurado, sempre que possível, por mecanismos de mercado, incluindo procedimentos concursais, nas regiões em que tal for viável; (ii) que o processo de selecção do prestador de SU seja transparente e desenhado de modo a incluir o maior número de candidatos habilitados a efectuar esta prestação; (iii) que o acesso aos elementos de rede da infra-estrutura postal seja assegurado, em condições transparentes e não discriminatórias, a todos os prestadores concorrentes aos CTT, o mesmo se aplicando ao nível da interoperabilidade entre redes; e (iv) que se garanta a existência de um level playing field através da revisão das regras fiscais aplicáveis, em particular, no que concerne à isenção de IVA. 10. Um segundo conjunto de condicionalismos relaciona-se com características intrínsecas destes mercados (condicionalismos naturais), prevendo-se a sua persistência mesmo após a plena liberalização do sector. 11. Os condicionalismos naturais à entrada e à expansão do lado da procura resultam da possível existência de efeitos de reputação, efeitos de carteira ou portfolio, custos de mudança e de contrapoder negocial dos compradores. 12. Neste caso, e no que ao mercado português diz respeito, destacam-se os efeitos de reputação e de carteira ou portfolio, na medida em que os CTT, por operarem no mercado há mais tempo e beneficiarem da confiança dos seus clientes, detêm uma vantagem competitiva significativa face aos prestadores concorrentes. 13. Do lado da oferta, os condicionalismos naturais à entrada e à expansão relacionam-se com os custos afundados, as economias de escala, as economias de densidade, as economias de gama e os efeitos
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