Eurotunnel/Seafrance Merger Inquiry Remittal: Final Decision
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Eurotunnel/SeaFrance merger inquiry remittal Final decision on the question remitted to the Competition and Markets Authority by the Competition Appeal Tribunal on 4 December 2013 and consideration of possible material change of circumstances under section 41(3) Notified: 27 June 2014 © Crown copyright 2014 You may reuse this information (not including logos) free of charge in any format or medium, under the terms of the Open Government Licence. To view this licence, visit www.nationalarchives.gov.uk/doc/open-government- licence/ or write to the Information Policy Team, The National Archives, Kew, London TW9 4DU, or email: [email protected]. The Competition and Markets Authority has excluded from this published version of the report information which the inquiry group considers should be excluded having regard to the three considerations set out in section 244 of the Enterprise Act 2002 (specified information: considerations relevant to disclosure). The omissions are indicated by []. Some numbers have been replaced by a range. These are shown in square brackets. Contents Summary .................................................................................................................... 1 Decision ................................................................................................................... 11 1. Introduction ......................................................................................................... 11 2. Background to the remittal .................................................................................. 12 The process on remittal ...................................................................................... 12 The statutory framework and Guidelines ............................................................ 13 The judgment of the CAT and basic approach to the remitted question ............. 16 The judgment of the CAT .............................................................................. 16 Hot lay-up of the vessels ............................................................................... 18 Ex-SeaFrance employees ............................................................................. 18 The interrelationship between vessels and employees ................................. 20 Our basic approach ....................................................................................... 20 Point in time at which the enterprise/asset question must be determined........... 20 FCA decision ...................................................................................................... 24 3. Our assessment of the remitted issue ................................................................. 24 Background to the transaction and reason for period of inactivity ....................... 24 Safeguard procedure (April 2010 to June 2011) ............................................ 25 State aid ........................................................................................................ 26 Invitation of offers to buy SeaFrance as a going concern (July 2011) ........... 26 Liquidation of SeaFrance (November 2011) .................................................. 29 Invitation of further bids (December 2011) .................................................... 30 Formal cessation of activities (January 2012) and invitation of bids for liquidated assets (May 2012) ........................................................................ 31 SeaFrance assets in the UK .......................................................................... 36 Summary of parties’ submissions on the period of inactivity ............................... 37 Our views on the history of the transaction and the period of inactivity............... 38 Consideration of SeaFrance employees ............................................................. 41 Judgment of the CAT ..................................................................................... 41 Arrangements relating to SeaFrance employees........................................... 43 Our views ...................................................................................................... 46 The employee indemnity ............................................................................... 47 Parties’ submissions on indemnity and staff continuity .................................. 50 Our views on the indemnity and staff continuity............................................. 52 Acquired SeaFrance assets ................................................................................ 55 Suitability of the acquired vessels for the Dover–Calais route ....................... 56 Acquired vessels and availability of alternatives ............................................ 58 Berthing slots and booths ................................................................................... 71 Berthing slots ................................................................................................. 71 Other acquired assets ................................................................................... 74 4. Conclusions on the remitted question ................................................................. 86 Assessment of jurisdictional issue applying the approach in the judgment ......... 86 Broader observations on the jurisdictional test ................................................... 92 5. MCC consideration ............................................................................................. 94 Summary of the MCCs put forward by GET, the SCOP and the Mayor and other representatives of Calais ................................................................................... 96 Demand growth ............................................................................................. 96 MCC arguments in relation to the exit of DFDS ............................................. 98 Assessment of the MCCs proposed by GET and the SCOP ............................ 100 Comparison of the CC’s June 2013 and GET’s current demand projections .... 101 1 Overall short-sea demand ........................................................................... 101 DFDS’s financial performance ..................................................................... 118 DFDS financial performance........................................................................ 119 CMA assessment ........................................................................................ 124 Conclusion on DFDS financial performance ................................................ 126 Conclusion on the MCCs proposed by GET and the SCOP ........................ 127 6. Remedies .......................................................................................................... 127 Remedies specified in the Report ..................................................................... 127 Alternative remedies proposed by GET ............................................................ 128 Alternative remedy proposed by the SCOP ...................................................... 129 Review of the SCOP remedy ....................................................................... 131 Conclusion on the effectiveness of the SCOP proposal .............................. 137 Proportionality .............................................................................................. 138 DFDS’s proposed amendment to the Report remedy ....................................... 138 Review of DFDS remedy proposal .............................................................. 139 Conclusion on DFDS’s proposal .................................................................. 140 Proportionality of remedies in the Report .......................................................... 140 Conclusion on remedy proposals ...................................................................... 142 Appendices A: Chronology of events B: Details of assets acquired by GET/SCOP C: The vessels D: Evidence regarding acquired non-vessel assets E: The French Competition Authority’s decision F: MARPOL regulations G: Press articles concerning DFDS highlighted by GET H: Analysis of the difference between GET demand projections and CC June 2014 projections I: Break-even analysis of DFDS operations on the Dover–Calais route J: DFDS Dover–Calais financials actual, 2014 K: Decision on remedies in the Report Glossary 2 Summary 1. On 6 June 2013, the Competition Commission (CC) published a report (the Report) on the completed acquisition by Groupe Eurotunnel S.A. (GET) of certain assets of former SeaFrance S.A. (SeaFrance). We found that we had jurisdiction in this case as the transaction constituted a relevant merger situation within the meaning of the Enterprise Act 2002 (the Act). We also concluded that the transaction may be expected to result in a substantial lessening of competition (SLC) in the market for the supply of transport services to passengers on the short sea1 and in the market for the supply of transport services to freight customers on the short sea. 2. Following challenges to our decision by GET and the Société Coopérative de Production SeaFrance S.A. (the SCOP),2 the Competition Appeal Tribunal (CAT) found in its judgment dated 4 December 2013 (the judgment of the CAT)3 that the question of whether the CC has jurisdiction by virtue of the fact that in this case two enterprises ceased to be distinct should be remitted to the CC for its reconsideration. 3. This report sets out our decision on the remitted question and our decision