How to prove that an on-site inspection is obstructed: Board’s Kınık and A101 decisions
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How to prove that an on-site inspection is obstructed: Board’s Kınık and A101 decisions
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End of the indefinite exemption: Unmaş decision
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The Board accepts Baymak’s commitments and terminates the preliminary investigation
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Chain markets not fined for hub-and-spoke: The Board’s Sunny decision
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Turkish Competition Board clears Adidas of RPM and discrimination allegations
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Non-poaching agreements in labor markets: The Competition Board’s private hospitals decision
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Does Johnson&Johnson Have Exemption or Not?: The regional administrative court strikes in J&J’s exemption case
How to prove that an on-site inspection is obstructed: Board’s Kınık and A101 decisions
Through the administrative fines imposed by the Turkish Competition Board (“Board”), it has again sent a clear signal that it will show zero tolerance regarding any noncompliance in its on-site inspections and particularly the deletion of emails or instant messages. Within the case law of the Board, the Kınık Maden Suları A.Ş. (“Kınık”) and Yeni Mağazacılık A.Ş. (“A101”) decisions are of great importance as they clearly reflect the emphasis of the Board and highlight the importance of timing of data deletion during on-site inspections.
Board’s assessment
Log records constitute the most critical evidence for the suspicion of obstruction of an on-site inspection in these decisions spesifically.
During Kınık’s inspection, the Turkish Competition Authority’s (“Authority”) case handlers found that certain email and WhatsApp conversations of the investigated employees were deleted during the inspection, as detected by the log history. They later confirmed this fact with a test in the Authority’s IT laboratory. The searched terms in the records of the employees’ search histories increased the suspicion regarding the deletion. Indeed, it was found that the terms in the search history were related to rival undertakings. In that regard, all investigated undertakings must ensure that their employees comply with this enforcement trend and show a high sensitivity regarding deletion of emails and instant messages on their mobile phones. The Board’s A101 decision, as adopted in the Kınık decision and other past Board decisions, makes the evaluation based on log records within the scope of the obstruction of on-site inspection, but it also raises some controversies. Within the A101 decision, during the on-site inspection, certain employees whose phones were to be examined deleted the WhatsApp application from their mobile phones. When the correspondence was restored through backup in the reinstalled applications, there was almost no correspondence. The Board considered that even if there was a suspicion of data deletion, it concluded that the on-site inspection was not hindered as the log records could not determine whether (i) the deletion had occurred on the phones of all three employees and, if so, (ii) when the deletion had occurred.
Dissenting opinion: Should evidence of the deletion, other than log records, be considered? In a dissenting opinion of A101, two Board members stated that the absence or inability to obtain a log record could not be claimed as evidence that the deletion had not occurred. Accordingly, the following points were discussed as concrete evidence that should be considered as an alternative to the log records:
▪ Delaying the examination by 15 minutes (during which time the case handlers were kept in a room by themselves).
▪ […] taking the mobile phone taken into custody for inspection and performing operations on it without the knowledge of the case handlers.
▪ Deleting the WhatsApp on the grounds that it contained private/confidential correspondence.
▪ The seniority of the employees alleged to have deleted the WhatsApp application, as they were the direct focus of the on-site inspection.
▪ The fact that the action in question was carried out separately by three high-level individuals
▪ The fact that all three employees had uninstalled the application from their phones and during the on-site inspection, either the application was not installed at all, or it was installed but the login procedure required for use was not performed.
▪ After the reinstalment of WhatsApp application, no correspondence was retrieved
In light of the aforementioned arguments, it was declared in the dissenting opinion that the maxim in dubio pro reo principle — “when in doubt, rule for the accused”— was inapplicable as there had been no question but a substantial amount of concrete evidence regarding the obstruction of the on-site inspection.
Conclusion Although log records are important evidence in cases of obstruction of the on-site inspection, the diversity of the evidence to be used in these cases will be among the issues of discussion, as set out in the dissenting opinion of the A101 decision. In addition, this decision is an example of the application of the maxim in dubio pro reo principle within the decisions of the Board.
It appears that the Authority will continue to maintain its tough approach in order to ensure that the on-site inspection can be carried out properly. The undertakings should keep their guard up and be prepared for an unexpected visit from the Authority.
Unmas: You cannot benefit from the exemption indefinitely
The Board concluded its preliminary investigation against Unmaş Unlu Mamuller Gıda Sanayi ve Ticaret A.Ş. (“Unmaş”) without finding necessary to launch a full-fledged investigation based on the assessments that Unmaş is not dominant in the market for “packed bread” and its de facto exclusivity practices benefit from the Block Exemption Communiqué No. 2002/2 for Vertical Agreements (“Communiqué No. 2002/2”).
However, the Board enforced Art. 6/1 of the Communiqué No. 2002/2 and decided to carry out a separate analysis to determine whether Unmaş’ practices have effects against the individual exemption conditions under Art. 5 of the Law No. 4054 and thereby, to revoke Unmaş’ exemption granted by the Communiqué No. 2002/2 pursuant to Art. 13 of the Law. No. 4054.
After its analysis, the Board withdrew the block exemption for vertical agreements between Unmaş and sales points.
The Board’s decision provides some notable insights as there are only a few decisions for withdrawal of the block exemption.
The Board’s assessment of the relevant markets
Before moving on to assess whether it should withdraw the block exemption, the Board provided a general overview of the bread production sector in in Türkiye. With reference to the Turkish Food Codex Regulation, the Board compared the traditional bread production and the industrial bread production and concluded that these differentiate mainly in terms of the products’ nature (ingredients, shelf life, freshness, hygiene) and pricing.
Also, the Board noted that bread produced through the traditional production method is generally sold in geographical areas that are close to the place of production, whereas packed bread can be sold all over Türkiye. The Board, first, evaluated the arguments of Unmaş regarding the definition of the relevant product market, and then analyzed the opinion of the Economic Analysis and Research Department (“EARD”)
i. Position of Unmaş regarding the definition of the relevant market
Unmaş argued that the relevant market should be defined as the “bread market,” covering unpacked bread as well, with reference to some of the Board’s decisions on the relevant sector. Unmaş’ argument is on the grounds that (i) packed and unpacked bread can be sold through the same sales channels and as substitutes for each other; (ii) there is no significant price gap between these bread types and the potential price gap might arise due to the ingredients of breads, (iii) the demand for packed bread remains low specifically due to the packaging obligations on breads brough with the COVID-19 pandemic; and (iv) there is no difference between unpacked and packed bread in the eyes of the consumer, and the demand can shift between them. Unmaş suggested that the Board does not accept its argument on a broader market definition, the relevant product market should be defined as “the bread sales in organized and traditional fast moving consumer goods points” in the narrowest sense. Unmaş also submitted an economic analysis report to support its arguments on the definition of the relevant product market. This report mainly provided that unpacked bread and packed bread are substitutes for each other in terms of demand and supply and further argued that the volume-based sales data would reflect market conditions better than the valuebased data and the should be considered in terms of the assessments of the market power.