Introduction
Law no. 347/2015 (“Law no. 347/2015”) for the approval of the Government Emergency Ordinance no. 31/2015 (“GEO no. 31/2015”) for amending and supplementing the Competition Law no. 21/1996 (“Competition Law”) and for supplementing art. 1 of Government Emergency Ordinance no. 83/2014 regarding the salary of the personnel paid from public funds in the year 2015, as well as other measures in the field of public expenses was published in the Official Journal at the end of 2015 and entered into force on 1 January 2016.
While approving GEO no. 31/2015, Law no. 347/2015 also revises provisions of Competition Law introduced or amended through GEO no. 31/2015.
According to the President of the Romanian Competition Council (“RCC”), Law no. 347/2015 represents the final review of the competition legal framework, ultimately aligning the domestic legislation with EU provisions.
The most significant amendments made by Law no. 347/2015 are summarized below.
The narrowing down of the scope of the documents covered by legal privilege
Law no. 347/2015 amended the procedure for the seizure of evidence during dawn raids. Thus, the interdiction imposed on the RCC inspectors to seize or use as evidence preparatory documents created by the investigated undertaking or association of undertakings for the exclusive purpose of exercising its right of defence (as part of the legal privilege) has been excluded.
As such, the current version of Competition Law maintains the benefit of the legal privilege only for those communications carried out between an undertaking and its lawyer exclusively made within and for the purpose of exercising the undertaking’s defence right, following the opening of the procedure or previously, subject to the condition that such communications are related to the object of the procedure.
This means that under the Competition Law the RCC inspectors will be able to seize the documents/information prepared by an undertaking for the purpose of obtaining legal advice.
This exclusion is in contrast with the provisions of the Commission’s Best Practices in proceedings concerning articles 101 and 101 TFEU, as well as the established European case-law that grants legal privilege to preparatory documents drafted for the exclusive purpose of obtaining legal advice and exercise the defence right, although such documents have not been effectively transmitted or drafted with the purpose of being physically transmitted to a lawyer.
Introduction of the interview procedure
Competition inspectors are vested with additional prerogatives that allow them to interview any individual or legal entity that consents to it. To this end, the RCC sends written request, indicating the legal ground, scope, date and the place where the interview is to be held, as well as the sanctions set forth under the Competition Law.
The interview may be performed by any means, including electronically, and will be audio-video recorded. The interview shall be also mentioned within minutes signed by all participants. However, the current text does not include a provision whereby the participants are granted with a copy of such minutes for further reference.
The interview contemplated to be taken by RCC inspectors should observe the right to nonincrimination even if this principle is not specifically stipulated under the Competition Law.
The interview appears to be different both from the statement and request for information, as follows:
- unlike the statement, the interview cannot be withdrawn;
- parties have to agree on being interviewed, whereas it is mandatory to answer a request for information;
- in contrast to the statement, the interview is structured and undertakings are specifically questioned on different issues by the RCC.
A sanction may be applied to the undertaking involved for the provision of inexact or misleading information during the interview without prejudice to the quality of the interviewee i.e. an individual or the legal representative of the undertaking. The fine that can be applied ranges between 0.1% to 1% of the total turnover in the financial year preceding the sanctioning of the contravention.
Amendments regarding the acknowledgment of a breach of competition rules
- Possibility to apply for acknowledgment prior to the release of the investigation report
The acknowledgement is still available for all types of competition law breaches i.e. anticompetitive practices, abuse of dominant position, merger related breaches, failure to perform an obligation, condition or measure imposed through a decision.
The express acknowledgment of the breach must occur before the hearings. This is a change from the current regulation that allowed undertakings to acknowledge the potential infringement during the course of the oral hearings at the latest.
Law no. 347/2015 allows the undertakings to submit a proposal for acknowledgement prior to the communication of the investigation report (which is similar to the Statement of Objections issued by the European Commission). This opens the possibility of a simplified procedure whereby the RCC will issue a simplified investigation report. Such approach is expected to be beneficial both to the RCC and undertakings and remains to be seen if this simplified procedure will be a frequent measure in competition investigations.
The amended acknowledgment procedure is very similar to the settlement procedure existing at the EU level. As such, the undertakings concerned will carryout rounds of discussions with the RCC regarding the conditions of the acknowledgment and the acknowledgment proposal will include the maximum amount of fine the undertaking is willing to pay.
In case the RCC does not accept the terms of the undertaking’s request submitted with a view to the reduction, such reduction shall not be granted. However, the acknowledgement shall not be used as evidence against the undertaking.
- Minimum fine of 0.2% to be applied and envisaged differentiated reductions in case of acknowledgement prior or after the release of the investigation report
The possibility to decrease the fine by a percentage ranging between 10% and 30% of the base level, including when the level of the fine is established at the minimum level provided by the law, is subject to a limitation consisting in a minimum fine to be applied. More specifically, the imposed fine cannot be lower than 0.2% of the turnover obtained in the previous fiscal year.
However, based on the Guidelines regarding the individualization of fines for the contraventions set forth under art. 53 of the Competition Law (“Guidelines”) submitted by the RCC for public consultation on 16 December 2015, it appears that the maximum reduction amount i.e. 30% may be applied only when the undertakings submit an acknowledgment proposal prior to the communication of the investigation report. If the proposal is submitted following the communication of such report, the maximum reduction applied will be of 15%. These Guidelines are however put up for public consultation and it is not clear whether the final version will include this differentiation of treatment.
In cases where leniency is granted without the undertaking being exempt from pecuniary liability, the reduction based on the acknowledgment can be cumulated with the one based on the leniency procedure without exceeding 60% of the level of the fine.
- Loss of the reduction benefit if the undertaking challenges the decision in court
The request for the annulment of the RCC decision in court in relation to the issues comprised by the acknowledgment generates the loss of the reduction benefit, the RCC being entitled to request the court to solve the annulment claim by removing the reduction benefit and imposing the fine accordingly, as such fine would have been determined absent the acknowledgement.
This appears to be a departure from the settlement procedure available at EU level and it remains to be clarified whether the challenge of the RCC decision on general principles of law such as non-discrimination or equal treatment will be available to the undertakings without losing the benefit of the reduction.
Competition whistle-blowers
Law no. 347/2015 introduces a new concept in the Romanian competition legislation, namely competition whistle-blowers (in Romanian: avertizori de concurenta), referring to those individuals that voluntarily provide the RCC with information regarding possible infringements of Competition Law.
The RCC undertakes to protect the whistle-blower’s identity, provided a request is made in this respect. The supply of information by the whistle-blower will not be deemed as a breach of the employee’s confidentiality obligation.
For the practical implementation of these legal provisions, the RCC currently operates an online platform aimed at ensuring communication between the competition authority and the potential competition whistle-blowers.
Inter-institutional cooperation – information exchange
In carrying out its activities provided by the law, the RCC is entitled to use, in accordance with the law, information and documents collected by other public authorities and institutions when carrying out their specific activities. Such text enables the RCC to use documents and evidence collected by authorities / institutions during criminal prosecution or tax controls, thus having access to a wider range of documents and evidence, including those that were destroyed prior to the RCC inspections.
Additionally, the RCC can exchange or use as evidence any factual or legal elements, including confidential information with the European Commission, as well as with any other competition authority in another member state of the EU vested to that end, with the observance of the legal provisions in force. Correlatively, the RCC is entitled to send information as per the above, provided that the competition authority collecting the information uses them only for the application of competition provisions and for the purpose for which they were collected by the RCC. The confidential nature of such information has to be maintained and third parties’ access thereto is allowed subject to the RCC’s prior consent.
Amendments regarding the authorization tax in case of economic concentrations
Law no. 347/2015 increases the maximum threshold of the authorization fee for economic concentrations. As such, the previous figures ranging from EUR 10,000 to EUR 25,000 are currently applicable only in cases where the RCC issues a clearance decision during phase 1 of the assessment i.e. without initiating an investigation in relation to the proposed economic concentration.
Should the RCC have strong doubts in relation to the compatibility of the economic concentration with the competitive environment, it may initiate an investigation and move the assessment in phase 2. If the clearance decision is issued by the RCC in phase 2 (disregard the nature of such decision i.e. whether it is a clearance or a conditional decision subject to commitments), the beneficiaries will pay an authorization fee ranging between EUR 25,001 and EUR 50,000.
This amendment might trigger an increase in conducting phase 2 merger assessments as it is correlated with the legislative amendment allowing the RCC to keep the authorization fees to its own budget rather than passing such fees to the State budget.
By Alina Lacatus, Counsel, DLA Piper
