Author: Luis Blanquez
“The legislature hereby finds and declares that there is great concern for the growing accumulation of power in the hands of large corporations. While technological advances have improved society, these companies possess great and increasing power over all aspects of our lives. Over one hundred years ago, the state and federal governments identified these same problems as big businesses blossomed after decades of industrialization. Seeing those problems, the state and federal governments enacted transformative legislation to combat cartels, monopolies, and other anti-competitive business practices. It is time to update, expand and clarify our laws to ensure that these large corporations are subject to strict and appropriate oversight by the state.”
Self-explanatory, isn’t it? This is just an extract from the draft Act. Indeed, while the antitrust world is watching the U.S. Senate due to the vast reforms going on, and the FTC continues to repeal unilaterally the Hart-Scott-Rodino (“HSR”) merger review process, something is also currently cooking in New York: The New York 21st Century Antitrust Act.
In June 2021 New York’s proposed 21st Century Antitrust Act (Senate Bill S933A) passed the State Senate. The remaining steps before that bill becomes law are passage by the Assembly and the signature of the Governor, both of which are expected at some point next year. When that happens, the proposed law will radically amend the long-standing Donnelly Antitrust Act. This is potentially a much bigger deal than it may seem. Not just for the state of New York, but also for the future of U.S. antitrust law more generally. Why? Basically, because if the Act becomes law, it will import the well-known and more far-reaching “abuse of dominance” standard from the European Union ––targeting companies with market shares as low as 30% in NY; and will establish––for the first time––a state premerger notification system in the U.S.
General Scope but with a Specific Focus on Big Tech and Importing the Abuse of Dominant Position Standard
The Donnelly Act applies to any conduct that restrains any business, trade or commerce or in the furnishing of any service in New York. N.Y. Gen. Bus. Law § 340. The New Antitrust Act has the same scope but introduces two important wrinkles.
First, even though it generally applies to all sectors and industries, it expressly addresses and calls out anticompetitive behavior in the Big Tech industry. This is clearly in line with all the recent proposed antitrust bills and monopolization cases at federal level.
Second, it also imports the well-known and more far- reaching “abuse of dominant position” standard from Article 102 the Treaty of Functioning of the European Union. Until now, under the current standards applied by courts under Section 2 of the Sherman Act, Big Tech has been able successfully to challenge or defeat many of the unilateral action complaints filed in federal court. The New Antitrust Act explicitly acknowledges this: “effective enforcement against unilateral anti-competitive conduct has been impeded by courts, for example, applying narrow definitions of monopolies and monopolization, limiting the scope of unilateral conduct covered by the federal anti-trust laws, and unreasonably heightening the legal standards that plaintiffs must over-come to establish violations of those laws.” A good example of such limitations are refusal to deal cases in the U.S. But, if passed, this is going to change next year. NY’s Attorney General is going to have not only the authority to enforce the New Antitrust Act, but also the powers to define what constitutes––under New York Antitrust law––an abuse of a dominant position. As a European antitrust attorney who currently practices antitrust law in the U.S., this is indeed very interesting news.
While NY’s Attorney General will need to provide further guidance, for now the New Antitrust Bill states that a dominant position may be established by direct or indirect evidence.
Direct evidence may include, for example, the unilateral power of a monopolist to set prices, terms, conditions, or standards; unilateral power to dictate non-price contractual terms without compensation; or other evidence that an entity is not constrained by meaningful competitive pressures, such as the ability to degrade quality without suffering reduction in profitability. Under the Act, if the direct evidence is sufficient to show a dominant position, conduct that abuses that dominant position is unlawful without regard to a defined relevant market (or the conduct’s effects in that market). This seems to be––for the first time–– in line with a “per se” analysis under Section 1 of the Sherman Act. How the NY Attorney General is going to determine the existence of a dominant position, without even first defining the relevant antitrust market(s) concerned, remains to be seen.
A dominant position may also be established by indirect evidence. For instance, the Act incudes a presumption of a dominant position when a seller enjoys a market share of 40% or greater and 30% or greater for a buyer. This is a significantly lower threshold than the one currently used in federal cases brought under the Sherman Act. But the determination of a dominant position requires a much more detailed analysis of barriers to entry, potential competition, and purchasing power downstream, among many others. That’s without even considering the special circumstances of all the digital and technological markets where Big Tech companies are present. Once again, we will have to wait until we see further guidance from NY’s Attorney General under the newly acquired rulemaking powers to flesh out the definition of dominant position.
As for the existence of an abuse, the Act enumerates a non-exhaustive list of anticompetitive behavior: conduct that tends to foreclose or limit the ability or incentive of actual or potential competitors to compete, such as leveraging a dominant position in one market to limit competition in a separate market, or refusing to deal with another person with the effect of unnecessarily excluding or handicapping actual or potential competitors. With the new abuse of dominance standard in play, it will be interesting to watch how these theories of harm develop in NY, and how much tension they create with existing federal antitrust case law.
The Act, in a very cryptic one-line paragraph, excludes any procompetitive effects as a defense to offset or cure competitive harm. This seems to create a “per se” liability to any abuse of a dominant position, which would be problematic both under U.S. federal law and EU Competition law.
Under EU Competition law, not every exclusionary effect is necessarily detrimental to competition. Competition on the merits may result in the elimination of less efficient competitors from the market. See for instance C-209/10 Post Danmark I, or C-413/14 Intel. Indeed, aside from very few “by nature” abuses which are considered presumptively unlawful (and even under these the European Commission must still carry out a competition analysis if the dominant firm provides evidence on the contrary), a full-blown effects analysis is always required. See T-201/04 Microsoft.
Not only that, even if a specific conduct is found to constitute an abuse of a dominant position and restricts competition, a person can always attempt to show that its conduct is objectively justified. This applies to any alleged abuse, including “by nature” abuses. More information on treatment of exclusionary conduct in the EU may be found in: Guidance on the Commission’s Enforcement Priorities in Applying Article 82 EC Treaty to Abusive Exclusionary Conduct by Dominant Undertakings.
First State Premerger Notification System in the U.S.
The new Act also will establish a separate premerger notification system in New York where buyers––regardless of where they are incorporated––will have to notify the NY Attorney General sixty days before the closing of any transaction where any of the parties involved exceed the applicable reporting thresholds, set at assets or annual net sales in New York exceeding $9.2 million, which is currently 2.5% of the current federal HSR threshold. The sixty-day notification is double the thirty-day period applicable under the HSR Act.
Failure to notify a transaction might also result in a penalty of $10,000 for each day. For transactions triggering HSR filings, the parties must also provide a copy to the NY’s AG.
We will also keep an eye on any future guidance from the NY’s Attorney General on this area. There are again too many moving pieces here, and the new rules will be important to understand the final filing procedure in NY and its compatibility with the HSR Act.
Other Key Developments
For individuals, the New Act increases the maximum fine from $100,000 to $1 million, and the maximum imprisonment term from 4 years to 15 years. For corporations, the New Act increases the maximum fine from $1 million to $100 million.
The Act permits, for the first time, private class actions and the recovery of treble damages for antitrust violations in NY. NY’s Attorney General will be able to sue on behalf of private citizens within five years of a violation of the Act, as opposed to three years under the current Donnelly Act; and private litigants will be able to collect fees and costs for expert witnesses and consultants, so long as they are successful in their lawsuit.