The application of competttion law to vietnams state monopolies a comparative perspective

THE APPLICATION OF COMPETITION LAW TO VIETNAM’S STATE MONOPOLIES: A COMPARATIVE PERSPECTIVE Submitted by TRAN THANG LONG LL.B, LL.M (Hochiminh City Law University) A thesis submitted in total fulfilment of the requirements for the degree of Doctor of Philosophy School of Law Faculty of Law and Management La Trobe University Bundoora, Victoria 3086 Australia May 2011 TABLE OF CONTENTS TABLE OF CONTENTS i ABBREVIATIONS vii ABSTRACT ix STATEMENT OF AUTHORSHIP x ACKNOWLEDGEMENTS xi Chapter 1: INTRODUCTION 1.1 Background 1.2 Monopolistic market structure in Vietnam .2 1.3 Problems .4 1.4 Research question .5 1.5 Methodology 1.6 Scope of the thesis 1.7 Thesis outline .8 1.8 Significance 12 Chapter 2: THE CONCEPT OF STATE MONOPOLY AND ITS FEATURES IN THE CONTEXT OF COMPETITION LAW 13 2.1 Introduction 13 2.1.1 Monopoly 14 2.1.2 The concept of ‟state monopoly‟ 17 2.1.3 A state monopoly must be a „state-owned enterprise‟ or „public undertaking‟ 18 2.1.4 A state monopoly must be under „state control‟ 25 2.1.5 A state monopoly is an entity that enjoys exclusive and special rights 29 2.1.6 A state monopoly must possess market power or the dominance of a substantial part of the market 33 2.1.7 „State monopoly‟ compared to other relevant terms 38 2.2 The concept of ‘state monopoly’ in Vietnam .41 i 2.2.1 The concept of „state monopoly‟ in Vietnam before and after the Doi Moi (Renewal) 41 2.2.2 Definition and features of a state monopoly in Vietnam 43 Chapter 3: STATE MONOPOLY IN VIETNAM: THEORETICAL FOUNDATION, DEVELOPMENT AND DEBATES 55 3.1 Theoretical approach to the development of state monopolies 55 3.1.1 The concept of the „leading role‟ of the state economic sector 55 3.1.2 State sector reform 57 3.1.3 The demand for state monopolies in Vietnam 58 3.2 Historical development of state monopolies in Vietnam 60 3.2.1 Union of state-run enterprises (Xi nghiep Quoc doanh) 60 3.2.2 State general corporations (GCs) – the second stage towards the formation of state monopolies 64 3.2.3 The formation of state economic groups (EGs) – The third stage in forming state monopolies 70 3.3 Debates and concerns .74 3.3.1 General corporations and concerns regarding their monopoly situation 74 3.3.2 Concerns regarding the formation of EGs and impacts on the monopoly situation 77 3.4 The State monopoly situation in Vietnam – some selected examples 82 3.4.1 The case of Vietnam Electricity (EVN) 83 3.4.2 Monopoly in the telecommunication sector – cases involving Vietnam National Posts and Telecommunication (VNPT) 88 3.4.3 State monopoly in the aviation sector – cases involving Vietnam Airlines and its subsidiaries 94 3.4.4 Observations 101 Chapter 4: OVERVIEW OF ANTI-MONOPOLY PROVISIONS IN VIETNAM’S COMPETITION LAW 2004 103 4.1 The development of the Competition Law 2004 in Vietnam 103 4.1.1 Preconditions for the competition law 103 4.1.2 Competition legislation before the enactment of the Competition Law 2004 123 4.2 Objectives, coverage and structure of the Law 127 ii 4.2.1 Objectives of the Law 127 4.2.2 The coverage of the Law 135 4.2.3 The addressees of the Law 137 4.2.4 Structure of the Law 141 4.3 Anti-monopoly provisions in the Competition Law 2004 142 4.3.1 Overview 142 4.3.2 Basic concepts 144 4.3.3 Anti-competitive practices 146 4.3.4 The state competitive bodies in charge of anti-monopoly matters 153 Chapter 5: FUNDAMENTALS FOR THE APPLICATION OF COMPETITION RULES TO STATE MONOPOLIES 156 5.1 Theoretical underpinnings of anti-competitive behaviours .156 5.1.1 Anti-competitive behaviours from an economics approach 156 5.1.2 Anti-competitive behaviours by state monopolies 164 5.2 Fundamental principles applying to anti-competitive behaviours of state monopolies 170 5.2.1 Approaches of the application of competition rules to state monopolies 170 5.2.2 Principles of competition law applied to state monopolies 199 5.3 Implications for the application of competition law to state monopolies 206 5.3.1 Public choice relating to the application of competition law 206 5.3.2 Public interest and the application of competition rules to state monopolies 211 Chapter 6: THE APPLICATION OF COMPETITION RULES TO STATE MONOPOLIES’ ANTI-COMPETITIVE AGREEMENTS 221 6.1 Anti-competitive agreements under the EU competition law 222 6.1.1 Basic concepts 222 6.1.2 Specific forms of anti-competitive agreements – Horizontal and Vertical Agreements 231 6.1.3 Principles for assessing an anti-competitive agreements 236 6.1.4 Exemptions under Article 101(3) TFEU 237 6.2 Anti-competitive agreements conducted by state monopolies 240 iii 6.2.1 Price fixing agreements 240 6.2.2 Market division agreements 245 6.2.3 Bid rigging 247 6.2.4 Refusal to deal agreement 248 6.3 The application of competition law to anti-competitive agreements of state monopolies in Vietnam .250 6.3.1 Anti-competitive agreements of state monopolies in Vietnam: some background 250 6.3.2 The application of competition law to anti-competitive agreements conducted by state monopolies in Vietnam 254 Chapter 7: THE APPLICATION OF COMPETITION RULES TO THE ABUSE OF DOMINANT POSITIONS BY STATE MONOPOLIES 267 7.1 The abuse of dominant position under EU competition law 267 7.1.1 The concept of market dominance 268 7.1.2 The concept of abuse of market dominance 270 7.1.3 Certain abusive conducts under Article 102 TFEU 272 7.2 The abuse of dominance by state monopoly firms 284 7.2.1 Exploitative behaviours 284 7.2.2 Exclusive behaviours 290 7.3 The application of Vietnam’s competition law to state monopolies’ abusive behaviours 300 7.3.1 Concept of abuse of dominant and monopoly position 300 7.3.2 Abusive behaviours of market dominance 302 7.3.3 The application of competition rules to „state monopolies‟ abusive behaviours 308 Chapter 8: THE CONTROL OF ECONOMIC CONCENTRATION OF STATE MONOPOLIES UNDER COMPETITION LAW 319 8.1 Basic issues regarding economic concentration under competition law 319 8.1.1 Pro-competitive effects of mergers 320 8.1.2 Adverse impacts of mergers and the need for merger control 322 8.2 Fundamental issues of merger control under EU competition law 327 iv 8.2.1 A brief overview of the development of merger control regulation in the EU327 8.2.2 The concept of concentration 328 8.2.3 The Community Dimension: The thresholds for the control of concentration 333 8.2.4 The merger control procedure under the ECMR 336 8.3 Control of concentration regarding state monopolies in Vietnam 338 8.3.1 Concentration involving state firms 338 8.3.3 Concentration to which state monopolies are parties 342 8.4 Control of concentration under Vietnam’s Competition Law 344 8.4.1 The concept of „control of concentration‟ in Vietnam 344 8.4.2 Key elements in Vietnam‟s competition law with regard to concentration control 350 Chapter 9: THE ENFORCEMENT OF COMPETITION LAW WITH REGARD TO STATE MONOPOLIES 363 9.1 An overview of competition law enforcement mechanisms 363 9.1.1 Competition authority 363 9.1.2 Investigation and competition proceedings 369 9.1.3 Competition sanctions (penalties) 374 9.2 The enforcement of competition law for state monopolies .379 9.2.1 The existence of a close relationship between state monopolies and their sectoral regulators 379 9.2.2 The independence of acompetition authority 384 9.3 Competition law enforcement mechanism in Vietnam .386 9.3.1 Competition law enforcement authorities 387 9.3.2 The enforcement of the competition law mechanism 393 9.3.3 Procedures for handling anti-competitive cases 399 Chapter 10: CONCLUSION 407 10.1 Addressed issues and final significant findings of the thesis 407 10.1.1 „State monopoly‟ concept and surrounding issues 407 10.1.2 The application of competition law to anti-competitive behaviours of state monopolies 410 10.2 A summary of directions for future reform and research 418 v 10.2.1 Vietnam Competition Authorities should be reformed to become more independent and accountable 419 10.2.2 There should be a number of critical modifications and complementation with regard to current anti-monopoly provisions 421 10.2.3 Non „law matter‟ directions for state monopoly reform 424 APPENDIX 426 BIBLIOGRAPHY 430 vi ABBREVIATIONS ACCC Australian Competition and Consumer Commission ADB Asian Development Bank CCA Competition and Consumer Act 2010 (Cth) of Australia CIEM Central Institute for Economic Management of Vietnam CPA Competition Principles Agreement of the Commonwealth of Australia CPV Communist Party of Vietnam CUTS Consumer Unity & Trust Society CUTS-CIER CUTS Centre for Competition, Investment and Economic Regulation DOJ Department of Justice of the United States of America EC European Community ECJ European Court of Justice ECMR EC Merger Control EG Economic Group EU European Union EVN Electricity of Vietnam FTC Federal Trade Commission of the United States of America GBEs Government Business Enterprises GC General Corporation ICN International Competition Network IMF International Monetary Fund JPA Jetstar Pacific Airlines M&As Mergers and Acquisitions MOIT Ministry of Industry and Trade of Vietnam NCP National Competition Policy OECD Organisation for Economic Co-operation and Development PA Pacific Airlines PE Public Enterprise SCP Structure – Conduct – Performance SIDA Swedish International Development Cooperation Agency SOEs State-Owned Enterprises SPT Saigon Postel Corporation vii TEC Treaty Establising the European Community TFEU Treaty on the Functioning of the European Union TNC Transnational Corporations TPA Trade Practices Act 1974 of the Commonwealth of Australia UN United Nations UNCTAD United Nations Conference on Trade and Development UNDP United Nations Development Programme US United States USAID United States Agency for International Development USPS United States Postal Service USVTC US-Vietnam Trade Council VCAD Vietnam Competiton Administration Department VCC Vietnam Competition Council VINAPCO Vietnam Aviation Petrol Company VINASHIN Vietnam Shipbuilding Industry Group VNA Vietnam Airlines VNPT Vietnam Post and Telecommunications Group WB World Bank WTO World Trade Organisation viii ABSTRACT Unlike other countries, monopolistic entities in Vietnam - mostly state firms - were established by administrative decisions They are criticised for having detrimental effects on competition and undermining a healthy environment for doing business Although it is stipulated that all anti-competitive behaviour must be fairly regulated, the application of competition rules to state monopolies is problematic This is reflected in the poor enforcement of competition law and the limited intervention of the competition authority in cases involving state monopolies The thesis asks how competition law can be applied to anti-competitive behaviour committed by state monopolies It offers suggestions as to what should be done in terms of law and enforcement mechanisms, so that the competition law can effectively address anti-competitive behaviour of state monopolies in Vietnam This thesis concludes that state monopolies exist as an inevitable trend to support the political determination of Vietnam‟s Communist Party This, however, facilitates the ability of state monopolies to engage in monopolistic behaviour and creates obstacles for the application of competition law in Vietnam There are shortcomings in the Law and the law should be modified as outlined in this thesis Finally, this thesis outlines directions for future reform regarding the application of competition law to state monopolies In particular, Vietnam‟s competition authorities should be reformed to become more independent and accountable There should be a number of modifications with regard to current anti-monopoly provisions Finally, consideration of „non law-matter‟ issues will be another factor contributing to the effective application of competition law to state monopolies.1 This thesis has been prepared in conformity with the La Trobe University Handbook for Candidates and Supervisors for Masters Degrees by Reseach and 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85 F 271 (6th Cir 1898), modified and affirmed 175 US 211 (1899) United States v American Tobacco Co, 328 US 781 (1946) United States v City of Stilwell, Oklahoma and Stilwell Area Development Authority (No CIV 96-196-B (Okla., 1996) United States v E L du Pont de Neumours and Co 351 US 377 (1956) 488 United States v Grinnell Corp 384 US 563 (1966) United States v Philadelphia National Bank 374 US 321(1963) Verizon Communications Inc v Law Offices of Curtis V Trinko, 540 US 398 (2004) III Australia ACCC v Leahy Petroleum Pty Ltd (2004) 141 FCR 183 Boral Besser Masonry Ltd (now Boral Masonry Ltd) v ACCC [2003] HCA Commonwealth v Mewett (1997) 146 ALR 299 Federal Commissioner of Taxation v Lutovi Investment Pty Ltd (1978) 140 CLR 434 Melway Publishing Pty Ltd v Robert Hicks Pty Ltd [2001] HCA 13 Queensland Wire Industries Pty Ltd v Broken Hill Pty Co Ltd [1989] 167 CLR 177 Re 7-Eleven Stores Pty Ltd ATPR 41-357 Re ACI Operations Pty Ltd (1991) ATPR (Com) 50-108 Re: Eastern Express Pty Ltd (1992) 106 ALR 297 Re: Residential Tenancies Tribunal of New South Wales and Henderson and Another; Ex Parte The Defence Housing Authority (1997) 190 CLR 410 Rural Press Ltd v ACCC (2003) 216 CLR 53 State Authorities Superannuation Board v Commissioner of State Taxation for the State of Western Australia (1996) ALR 129 Universal Music Australia Pty Ltd v ACCC (2003) 121 FCR 529 Universal Music Australia Pty Ltd v ACCC [2001] FCA 1800 Victorian Newsagency (1994) ATPR 41–357 Visy Paper Pty Ltd v ACCC (2003) 216 CLR 119 489 C LEGISLATION I Vietnamese Legislation and Communist Party Documents Vietnam’s Communist Party Central Party Committee of Communist Party of Vietnam, Resolution of the Third Plenum of the Ninth Central Party Committee (Resolution No 05-NQ-TW (24/9/01) on Continuing to Restructure, Reform, Develop and Improve the Efficiency of State Enterprises Communist Party of Vietnam, Resolution of the Fourth Plenum of the Eighth CPV Party Congress (December 1997) Communist Party of Vietnam, Strategy for Socio-economic Development 2001 – 2010 (presented by the Central Committee, 8th Tenure, to the IX National Congress, 4/2001) Communist Party of Vietnam, Strategy for the Socio-economic Stabilisation and Development to the year 2000 of the CPV Vietnamese Communist Party, Documents of the 8th Party Congress (National Political Publishing House, 1996) Legislation Commercial Law 1997 Company Law 1990 Competition Law 2004 Constitution 1992 Cooperatives Law 2003 Decision No 11/QĐ-HĐXL date 14 April 2009 Decision No 155/2004/QĐ-TTg dated 24 August 2004 490 Decision No 345/2005/TTg dated 26 December 2/2005 Decision No 38/2007/QĐ-TTg dated March 2007 Decision No 58/2002/QD-TTg dated 26 April 2002 Decision No 58/2005/TTg dated 23 March 2005 Decision No.143/HDBT dated 10 May 1990 Decision No.217/HDBT dated 14 November 1987 Decision No.91/TTg dated 07 March 1994 Decisions No 90/TTg dated 07 March 1994 Decree No 103/199/ND-CP dated 10 September 1999 Decree No 116/2005/ND-CP dated 15 September 2005 Decree No 120/2005/ ND-CP dated 20 September 2005 Decree No 180/2004/ND-CP dated on 28 October 2004 Decree No 26/2006/QD-TTG dated 26 January 2006 Decree No 45/1998/ND-CP dated 01 July 1998 Decree No 49/2002/ND-CP dated 24 April 2002 Decree No 50/HDBT dated 22 March 1988 Decree No 58/2005/QD-BNN dated 03 October 2005 Decree No 88/1999/ND-CP dated 01 September 1999 Decree No 90/2001/NĐ-CP dated 23 November 2001 Decree No.05-2006-ND-CP dated 09 January 2006 Decree No.06-2006-ND-CP dated January 2006 Decree No.153/2004/ND-CP dated 09 August 2004 491 Decree No.39/CP dated 27 June 1995 Decree No.98/HDBT dated 02 June 1988 Enterprises Law 2005 Law on Cooperatives 1997 Law on Credit Institution 2004 Law on Foreign Investment in Vietnam 1987 (as amended) Law on Foreign Investment in Vietnam 1996 (as amended) Law on Investment 2005 Law on Natural Resources and Minerals 2005 (as amended) Law on Prices 2002 Law on Promotion of Domestic Investment 1994 Law on Promotion of Domestic Investment of 1998 Law on Tendering 2005 Law on the Protection of Environment 2005 Law on the Right to Form Associations 1957 Laws on Foreign Investment in Vietnam 1987 Ordinance No 38/2001/PL-UBTVQH dated 28 August 2001 Ordinance No.40-2002-PL-UBTVQH 10 dated 26 April 2002 Ordinance No.43/2002/PL-UBTVQH10 dated 25 May 2002 Securities Law 2006 State Enterprises Law 1995 State Enterprises Law 2003 492 II Legislation and Regulation of other Jurisdictions European Union Commission Consolidated Jurisdictional Notice under Council Regulation (EC) No 139/2004 on the Control of Concentrations between Undertakings [2008] OJ C 95/01 Commission Directive (EEC) 90/388 on Competition in the markets for telecommunication services [1990] OJ L192/10 Commission Directive 2000/52/EC amending Directive 80/723/EEC on the transparency of financial relations between Member States and public undertakings [2000] OJ L 193/75 Commission Guidelines on the Applicability of Article 81 of the EC Treaty to Horizontal Cooperation Agreements [2001] OJ C 3/02 Commission Guidelines on the Application of Article 81(3) of the Treaty of 22 April 2004 [2004] OJ C 101/97 Commission Memorandum on the Concentration of Enterprises in the Common Market 1970 [1970] COM (70) 100 Commission Notice Guidelines on the effect on trade concept contained in Articles 81 and 82 of the Treaty [2004] OJ C 101/81 Commission Notice on Agreements of Minor Importance which Do not Appreciably Restrict competition under Article 81(1) of the Treaty establishing the European Community [2001] OJ C 386/07 Commission Notice on Calculation of Turnover [1998] OJ C 66 Commission Notice on Guidelines on Vertical Restraints of 13 October 2000 [2000] OJ C 291 Commission Notice on Portal Services [1998] OJ C 39/2 interpreting Directive 97/67/EC on Portal Services [1998] OJ L 15/14 493 Commission Notice on the Application of the Competition Rules in the Postal Sector [1998] OJ C 39/2 Commission Notice on the concept of concentration under Council Regulation (EEC) No 4064/89 on the control of concentrations between undertakings [1998] OJ C 66 Commission Notice on the Concept of Full function Joint Ventures [1998] OJ C 66 Commission Notice on the Definition of Relevant Market for the Purposes of Community Competition Law [1997] OJ C 372 Commission Regulation (EC) No 2790/1999 of 22 December 1999 on the Application of Article 81(3) of the Treaty to Categories of Vertical Agreements and Concerted Practices [1999] OJ L 336 Commission Regulation No 447/98 on the Notifications, Time Limits and Hearings [1998] OJ L61/1 Commission Telecommunications Guidelines [1991] OJ C 233/2 Commission’s Notice on Agreements of Minor Importance in 1970 OJ C 64 Communication on Services of General Interests regarding non-application of Article 90 (Article 86 new) COM (96) 443 Directive 93/38/EEC of 14 June 1993 coordinating the procurement procedures of entities operating in the water, energy, transport and telecommunications sectors [1993] L1999/84 EEC Council Regulation No 17 of February 1962: First Regulation implementing Articles 81 and 82 of the Treaty [1962] OJ L 35 European Coal and Steel Community Treaty (ECSC)1951 European Convention on Human Rights (ECHR) 1950 Regulation 139/2004/EC on the Control of Concentrations between Undertakings (the EC Merger Regulation) [2004] OJ L24/1 Regulation No 1/2003/EC of 16th December 2002 on the implementation of the rules on 494 competition laid down in Articles 81 and 82 of the EC Treaty, OJ 2003 L1/1 (2004) Treaty on the Functioning of the European Union 2009 United States Clayton Antitrust Act 1914 Robinson-Patman Act 1936 Federal Trade Commission and the U.S Department of Justice, The Antitrust Guidelines for Collaborations among Competitors 2000 Sherman Antitrust Act 1890 The US Antitrust Criminal Penalty Enhancement and Reform Act 2004 Antitrust Procedures and Penalties Act 1974 US Code - Title 39: Postal Service US Department of Justice and Federal Trade Commission, Horizontal Merger Guidelines 1997 US Department of Justice, Merger Guidelines 1968 Australia ACCC, Guide to Authorisation (2007) ACCC, Guide to Authorisations and Notifications (1995) ACCC, Merger Guidelines (1999) Competition and Consumer Act 2010 (Cth) Competition Policy Reform Act 1995 (Cth) Competition Policy Reform Act 1995 (VIC) Competition Policy Reform Act 1995(NSW) 495 Competition Policy Reform Act 1996 (NT) Competition Policy Reform Act 1996 (QLD) Competition Policy Reform Act 1996 (SA) Competition Policy Reform Act 1996 (TAS) Competition Policy Reform Act 1996 (WA) Competition Principles Agreement (CPA) Consumer Affairs and Fair Trading Acts 2011 (NT) Fair Trading Act 1999 (VIC) Fair Trading Acts 1987 (NSW) Fair Trading Acts 1987 (SA) Fair Trading Acts 1987 (WA) Fair Trading Acts 1989 (Qld) Fair Trading Acts 1990 (TAS) Fair Trading Acts 1992 (ACT) Trade Practices Act 1974 (Cth) Trade Practices Amendment (Cartel Conduct and Other Measures) Act 2009 Other countries Canada Competition Acts 1986 Charter of Rights and Freedoms 1982 China Anti-monopoly Law of the People’s Republic of China 2007 496 Czech Republic Competition Act 1991 Germany Law against Restraints of Competition (ARC) 1958 Hungary Competition Act 1996 Italia Competition and Fair Trading Act 1990 Korea Monopoly Regulation and Fair Trade Act (MRFTA) 1980 Mexico Federal Law on Economic Competition of 1992 New Zealand Commerce Amendment Bill to the Commercial Act Corporations 1986 Pakistan Ordinance on Monopolies and Restrictive Trade Practices (Control and Prevention) 1970 South Africa Competition Act 1998 Sweden Competition Acts of 1993 United Kingdom Enterprise Act 2002 497 Competition Act 1998 D Websites Central Institute for Economic Management (CIEM) Collection of EU Case law Australia‟s Competition Tribunal www.ciem.org.vn eur-lex.europa.eu/en/index.htm http://www.competitiontribunal.gov.au/about.html European Commission, Competition section http://ec.europa.eu/competition/index_en.html EU-Vietnam Multilateral Trade Assistance Project (MUTRAP) Global Competition Forum International Competition Network (ICN) www.mutrap.org.vn www.globalcompetitionforum.org/index.htm www.internationalcompetitionnetwork.org International Monetary Fund (IMF) www.imf.org Ministry of Finance of Vietnam (MOF) www.mof.gov.vn Ministry of Industry and Trade of Vietnam (MOIT) www.moit.gov.vn Ministry of Information and Communications of Vietnam (MIC) www.mic.gov.vn Ministry of Planning and Investment of Vietnam (MPI) www.mpi.gov.vn Ministry of Transportation of Vietnam (MT) www.mt.gov.vn Organisation for Economic Cooperation and Development (OECD) www.oecd.org Social Sciences Research Network (SSRN) www.ssrn.com UNDP Vietnam United Nations Conference on Trade and Development (UNCTAD) United Nations Development Programme (UNDP) Vietnam Air Petrol Company (VINAPCO) Vietnam Business Forum www.undp.org.vn www.unctad.org www.undp.org www.vinapco.com.vn vccinews.com 498 Vietnam Chamber of Commerce and Industry www.vcci.com.vn Vietnam Competition Administration Department (VCAD) www.vcad.gov.vn Vietnam Competition Council (VCC) Vietnam Electricity Group (EVN) Vietnam Posts and Telecommunications (VNPT) Vietnamese Government www.hoidongcanhtranh.vn www.evn.com.vn www.vnpt.com.vn www.vietnam.gov.vn Viettel Corporation www.viettel.com.vn World Bank www.worldbank.org 499