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COMPETITION COMMISSION OF INDIA

CARTELS
UNDER THE COMPETITION ACT, 2002

DEFINITION OF CARTEL

The Competition Act, 2002 (the Act) prohibits any agreement which
causes, or is likely to cause, appreciable adverse effect on competition in
markets in India. Any such agreement is void.
1
Cartels are agreements between enterprises (including association of
enterprises) not to compete on price, product (including goods and
services) or customers. The objective of a cartel is to raise price above
competitive levels, resulting in injury to consumers and to the economy.
For the consumers, cartelization results in higher prices, poor quality and
less or no choice.

A cartel is said to exist when two or more enterprises enter into an

explicit or implicit agreement to fix prices, to limit production and supply,
to allocate market share or sales quotas, or to engage in collusive bidding
or bid-rigging in one or more markets.

1
Enterprise is defined in section 2 (h) of the Act as under :
“Enterprise means a person or a department of the Government, who or which is, or
has been, engaged in any activity, relating to the production, storage, supply,
distribution, acquisition or control of articles or goods, or the provision of services, of
any kind, or in investment, or in the business of acquiring, holding, underwriting or
dealing with shares, debentures or other securities of any other body corporate,
either directly or through one or more of its units or divisions or subsidiaries, whether
such unit or division or subsidiary is located at the same place where the enterprise is
located or at a different place or at different places, but does not include any activity of
the Government relatable to the sovereign functions of the Government including all
activities carried on by the departments of the Central Government dealing with
atomic energy, currency, defence and space”.

(1)
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Cartel is defined in section 2 (c) of the Act as under:

"Cartel" includes an association of producers, sellers,

distributors, traders or service providers who, by
agreement amongst themselves, limit, control or attempt
to control the production, distribution, sale or price of, or,
trade in goods or provision of services;

An important dimension in the definition of a cartel is that it requires

an agreement between competing enterprises, not to compete, or to
restrict competition.

INTERNATIONAL CARTELS

An international cartel is said to exist, when not all of the enterprises in

a cartel are based in the same country or when the cartel affects markets
of more than one country.

IMPORT CARTELS

Import cartels comprise enterprises (including association of

enterprises) that get together for the purpose of imports into the country.

EXPORT CARTELS

An export cartel is made up of enterprises based in one country with

an agreement to cartelize markets in other countries.

In the Competition Act, cartels meant exclusively for exports have

been excluded from the provisions relating to anti-competitive
agreements.

(2)
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Section 3 (5): Nothing contained in this section shall restrict –

(ii) the right of any person to export goods from India to the extent
to which the agreement relates exclusively to the production,
supply, distribution or control of goods or provision of services for
such export.

CARTELS – PRESUMED INJURIOUS

Agreements between enterprises engaged in identical or similar trade

of goods or provision of services (commonly known as horizontal
agreements), including cartels, of four types specified in the Act are
presumed to have appreciable adverse effect on competition and,
therefore, are anti-competitive and void.

Section 3 (3) “Any agreement entered into between enterprises

or associations of enterprises or persons or associations of
persons or between any person and enterprise or practice
carried on, or decision taken by, any association of enterprises
or association of persons, including cartels, engaged in
identical or similar trade of goods or provision of
services, which—
(a) directly or indirectly determines purchase or sale prices;
(b) limits or controls production, supply, markets, technical
development, investment or provision of services;
(c) shares the market or source of production or provision
of services by way of allocation of geographical area of
market, or type of goods or services, or number of
customers in the market or any other similar way;
(d) directly or indirectly results in bid rigging or collusive
bidding,
shall be presumed to have an appreciable adverse effect on
competition:"

(3)
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However, horizontal agreements of the above four types entered

into by way of joint ventures are not presumed to have appreciable
adverse effect on competition and are excluded from the above provisions
of Section 3(3) of the Act if they increase efficiency in production, supply,
distribution, storage, acquisition or control of goods or provision of
services.

Proviso to Section 3(3)

Provided that nothing contained in this sub-section shall apply to

any agreement entered into by way of joint ventures if such
agreement increases efficiency in production, supply, distribution,
storage, acquisition or control of goods or provision of services.

Appreciable adverse effect on competition of other types of

agreements i.e. other than those covered by Section 3(3), including tie-
in arrangement, exclusive supply arrangement, exclusive distribution
agreement, refusal to deal and resale price maintenance, commonly
known as 'vertical agreements', would not be presumed to have
appreciable adverse effect on competition, and would be evaluated by
the Commission based on facts (using the 'rule of reason' approach).

COMMON CHARACTERISTICS OF CARTELS

Usually cartels function in secrecy. The members of a cartel, by and
large, seek to camouflage their activities to avoid detection by the
Commission.

Perpetuation of cartels is ensured through retaliation threats. If any

member cheats, the cartel members retaliate through temporary price
cuts to take business away or can isolate the cheating member. Another
method, known as compensation scheme, is resorted to in order to
discourage cheating. Under this scheme, if the member of a cartel was

(4)
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found to have sold more than its allocated share, it would have to
compensate the other members.

CONDITIONS CONDUCIVE TO FORMATION OF CARTELS

If there is effective competition in the market, cartels would find it

difficult to be formed and sustained. Some of the conditions that are
conducive to cartelization are :

• high concentration - few competitors

• high entry and exit barriers
• homogeneity of the products (similar products)
• similar production costs
• excess capacity
• high dependence of the consumers on the product
• history of collusion

EXTRA-TERRITORIAL REACH

Anti-competitive activities, including cartels, taking place outside

India but having effect on competition in India would fall within the
ambit of the Act and can be inquired into by the Commission. The Act
thus has extra territorial reach (Section 32).

ANTI-CARTEL ENFORCEMENT

The Commission is empowered to inquire into any cartel, and to

impose on each member of the cartel, a penalty equivalent to three
times of the amount of profits made out of such agreement by the cartel
or ten per cent of average of the turnover of the cartel in the preceding
three financial years, whichever is higher. In case an enterprise is a

(5)
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'company' its directors/officials who are guilty are liable to be proceeded

against and punished.

In addition, the Commission has the power to pass inter alia any
or all of the following orders (section 27):

(i) direct the parties to a cartel agreement to discontinue and

not to re-enter such agreement;
(ii) award compensation on an application to any person for any
loss or damage caused as a result of cartel;
(iii) direct the enterprises concerned to abide by such other
orders as the Commission may pass and comply with the
directions, including payment of costs, if any; and
(iv) pass any other order as it may deem fit.

INTERIM RELIEF

During the pendency of an inquiry, the Commission may, by order,

grant a temporary injunction restraining all members or any member of
the alleged cartel from carrying on such act until the conclusion of such
inquiry or until further orders, without giving notice to the parties, where it
deems necessary.

LENIENCY SCHEME

The Act empowers the Commission to grant leniency by levying a

lesser penalty on a member of the cartel who provides full, true and vital
information regarding the cartel. The scheme is designed to induce
members to help in detection of cartels. This scheme is grounded on the
premise that successful prosecution of cartels requires evidence supplied
by a member of the cartel.

(6)
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Section 46 reads as follows:

“The Commission may, if it is satisfied that any producer, seller,

distributor, trader or service provider included in any cartel, which is
alleged to have violated section 3, has made a full and true disclosure in
respect of the alleged violations and such disclosure is vital, impose upon
such producer, seller, distributor, trader or service provider a lesser
penalty as it may deem fit, than leviable under this Act or under the rules
or the regulations:

Provided that lesser penalty shall not be imposed by the Commission in

cases where proceedings for the violation of any of the provisions of this
Act or the rules or the regulations have been instituted or any
investigation has been directed to be made under section 26 before
making of such disclosure:

Provided further that lesser penalty shall be imposed by the Commission

only in respect of a producer, seller, distributor, trader or service provider
included in the cartel, who first made the full, true and vital disclosures
under this section:

Provided also that the Commission may, if it is satisfied that

such producer, seller, distributor, trader or service provider
included in the cartel had in the course of proceedings:-

(a) not complied with the condition on which the lesser

penalty was imposed by the Commission; or
(b) had given false evidence; or
(c) the disclosure made is not vital,

and thereupon such producer, seller, distributor, trader or service

provider may be tried for the offence with respect to which the lesser
penalty was imposed and shall also be liable to the imposition of penalty
to which such person has been liable, had lesser penalty not been
imposed.
(7)
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CARTEL INVESTIGATION

The Commission, on being convinced that there exists a prima

facie case of 'cartel', shall direct the Director General to cause an
investigation and furnish a report. The Director General, for the purpose
of carrying out investigation, is vested with powers of civil court besides
powers to conduct 'search and seizure'.

(8)