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Announcement No.77 [2017] of the Ministry of Commerce—Announcement on Decisions from Anti-monopoly Review of the Concentration of Undertakings on Conditional Approval of the Acquisition of Equity of Hamburg Südamerikanische Dampfschifffahrts –Gesellschaft KG by Maersk Line A/S [Effective]
商务部公告2017年第77号――关于附加限制性条件批准马士基航运公司收购汉堡南美船务集团股权案经营者集中反垄断审查决定的公告 [现行有效]
【法宝引证码】

Announcement of the Ministry of Commerce 
( No.77 [2017] ) 

商务部公告

Announcement on Decisions from Anti-monopoly Review of the Concentration of Undertakings on Conditional Approval of the Acquisition of Equity of Hamburg Südamerikanische Dampfschifffahrts –Gesellschaft KG by Maersk Line A/S (2017年第77号)

The Ministry of Commerce of the People's Republic of China (hereinafter referred to as the "MOFCOM") received the anti-monopoly declaration of the concentration of undertakings on the case of acquisition of the equity of Hamburg Südamerikanische Dampfschifffahrts –Gesellschaft KG(hereinafter referred to as "Hamburg Südamerikanische") by Maersk Line A/S (hereinafter referred to as "Maersk Line").Upon review, the MOFCOM decided to approve the concentration of undertakings with additional restrictive conditions. In accordance with Article 30 of the Anti-monopoly Law of the People's Republic of China (hereinafter referred to as the "Anti-monopoly Law"), relevant matters are hereby announced as follows: 关于附加限制性条件批准马士基航运公司收购汉堡南美船务集团股权案经营者集中反垄断审查决定的公告
I. Case-filing and review procedures 中华人民共和国商务部(以下简称商务部)收到马士基航运公司(Maersk Line A/S,以下简称马士基航运)收购汉堡南美船务集团(Hamburg Südamerikanische Dampfschifffahrts -Gesellschaft KG,以下简称汉堡南美)股权案的经营者集中申报。经审查,商务部决定附加限制性条件批准此项经营者集中。根据《中华人民共和国反垄断法》(以下简称《反垄断法》)第三十条规定,现公告如下:
On March 29, 2017, the MOFCOM received the anti-monopoly declaration for the concentration of undertakings concerning the Case. Upon review, the MOFCOM considered that the documents for declaration were incomplete, and required the declarer to supplement. On April 27, after further supplementation, the MOFCOM confirmed that the documents for declaration complied with Article 23 of the Anti-monopoly Law, and therefore the anti-monopoly declaration for the concentration of undertakings was admitted to be filed, and the preliminary investigation was launched. On May 26, the MOFCOM decided to further review this concentration of undertakings. On August 23, the MOFCOM decided to further review this concentration of undertakings as agreed by the declarer. At the expiration of the extension, the declarer applies for the withdrawal of the case and receives the approval of the MOFCOM. On October 24, the MOFCOM filed the re-declaration of the declarer for review. After review, the MOFCOM believes that the concentration of the operators may exclude and restrict the competition effect of the general container transport market and the refrigerated container transport market of the Far East - South America West Coast route, the Far East - South America East Coast route. At present, the case is under preliminary review, and the deadline is November 22. In the course of the review, the MOFCOM solicited opinions from relevant government departments, trade associations and enterprises, knew industry characteristics, relevant market definition, market participants, market structure, prospects and other aspects, and reviewed the authenticity, completeness and accuracy of the documents and materials submitted by the declarer. 
II. General information of the Case   一、立案和审查程序
The acquirer, Maersk Line was first established in Denmark in 2013, and was originally traced back to 1928. The ultimate controller is A.P. Moller-Maersk A/S. Maersk Line is the largest container liner carrier in the world. Maersk Line and its associated enterprises are engaged in container liner transportation, logistics and container terminal operation, oil exploitation, tanker transportation and other business in the world. 2017年3月29日,商务部收到本案的经营者集中反垄断申报。经审核,商务部认为该申报文件、资料不完备,要求申报方予以补充。4月27日,商务部确认经补充的申报文件、资料符合《反垄断法》二十三条规定,对此项经营者集中申报予以立案并开始初步审查。5月26日,商务部决定对此项经营者集中实施进一步审查。8月23日,经申报方同意,商务部决定延长进一步审查期限。进一步审查延长期届满时,申报方申请撤回案件并得到商务部同意。10月24日,商务部对申报方的重新申报予以立案审查。经审查,商务部认为此项经营者集中可能对远东-南美西海岸航线、远东-南美东海岸航线的普通集装箱运输市场和冷藏集装箱运输市场产生排除、限制竞争效果。目前,该案处于初步审查阶段,截止日期为11月22日。审查过程中,商务部征求了相关政府部门、行业协会和企业的意见,多次召开座谈会,了解行业特征、相关市场界定、市场参与者、市场结构、未来发展前景等方面的信息,并对申报方提交的文件、资料的真实性、完整性和准确性进行了审核。
The acquiree, Hamburg Südamerikanische was registered in Germany in 1950, and the ultimate controller is Dr. August Oetker KG. Hamburg Südamerikanische is the ninth largest container liner carrier in the world and is engaged in container liner transportation and bulk cargo transportation business around the globe. 
On March 14, 2017, Maersk Line and Dr. August Oetker KG signed an agreement, according to which, Maersk Line will buy 100% stake in Hamburg Südamerikanische. After the completion of the transaction, Hamburg Südamerikanische will become a business unit within Maersk Line that will operate in name of Hamburg Südamerikanische.   二、案件基本情况
III. Relevant markets 收购方马士基航运于2013年在丹麦注册成立,最早可追溯到1928年,最终控制人是A.P.穆勒-马士基有限公司(A.P. Moller - Maersk A/S)。马士基航运是全球最大的集装箱班轮运输公司,马士基航运及其关联企业在全球范围内从事集装箱班轮运输、物流及集装箱码头运营、石油开采及油轮运输等业务。
According to the Anti-monopoly Law, the Guidelines of the Anti-monopoly Committee of the State Council on Defining the Relevant Markets and other provisions, the MOFCOM defines the relevant commodity markets and related regional markets in this case. 被收购方汉堡南美于1950年在德国注册成立,最终控制人是奥古斯特·欧特克公司(Dr. August Oetker KG)。汉堡南美是全球第九大集装箱班轮运输公司,在全球范围内从事集装箱班轮运输与散货运输业务。
(I) Relevant commodity markets. 2017年3月14日,马士基航运和奥古斯特·欧特克公司签订《买卖协议》,马士基航运将收购汉堡南美100%的股权。交易完成后,汉堡南美将成为马士基航运内部的一个业务部门,该业务部门将以汉堡南美品牌运营。
After the examination, Maersk Line and Hamburg Südamerikanische have transverse overlap in the general container liner transportation, the refrigerated container liner transportation and tanker transportation markets; Maersk Line related enterprises are engaged in container production and sales operations and maritime cargo transport agency services in China, which has longitudinal association with the container liner transportation service. The related commodity markets of this case are those of the general container liner transportation, the refrigerated container liner transportation, tanker transportation, container, maritime cargo transport agency services. 
1. The general container liner transportation and refrigerated container liner transportation markets.   三、相关市场
Container liner transportation service refers to the provision of standard and repeated container freight transportation service for non-fixed owners in accordance with the prescribed operating rules according to the predetermined sailing schedule by container liner companies among the affiliated ports of the fixed routes. Container liner transportation services will be subject to freight the freight rates of the standard container (TEU or FFE) and there is no substitutability with non-liner transportation. There is no substitutability between container transportation and dry and bulk cargo transportation and tanker transportation. 商务部根据《反垄断法》、《国务院反垄断委员会关于界定相关市场的指南》等规定,界定了本案的相关商品市场和相关地域市场。
From the point of view of service content, characteristics and price, container liner transportation services can be further subdivided into general and refrigerated ones. General container is used to transport goods without special temperature requirements. Refrigerated containers are mainly used to transport goods that need to be stored in cold storage environment. The refrigerated container can maintain the temperature of -30℃ to 20℃ during the transportation by connecting the power receptacle of the vessels. From the point of view of demand, shippers can only choose refrigerated containers to transport goods that should be stored at low temperature (such as meat, fruits, vegetables, seafood, etc.) during transportation. The transportation price of refrigerated containers is usually more than one time as much as that of ordinary containers. From the point of view of supply, refrigerated containers need to have a temperature insulation layer and power receptacle connecting the vessels. Each vessel will be equipped with a limited number of power receptacle since more power receptacles will greatly improve the cost. In order to keep the environment of low temperature and cold storage during transportation, refrigerated container transportation also has higher requirements for temperature control technology, and it is required to keep minimal temperature change during long distance transportation. 
Therefore, the general container liner transportation and refrigerated container liner transportation services are respectively defined as different commodity markets. (一)相关商品市场
2. Tanker transportation service market. 经审查,马士基航运和汉堡南美在普通集装箱班轮运输服务市场、冷藏集装箱班轮运输服务市场和油轮运输服务市场存在横向重叠;马士基航运关联企业在中国从事集装箱生产和销售业务、海运货物运输代理服务,与集装箱班轮运输服务存在纵向关联。本案相关商品市场界定为普通集装箱班轮运输服务市场、冷藏集装箱班轮运输服务市场、油轮运输服务市场、集装箱市场、海运货物运输代理服务市场。
Both parties to the concentration operate liquid bulk tankers (hereinafter referred to as "tanker") providing transportation services for oil products. Tankers are equipped with oil tanks, pumps and loading and unloading equipment and other specific facilities, which can transport crude oil, gasoline and other liquid products. Tanker transportation service is irregular and operators look for business in the relevant areas, or undertake goods among different ports according to the situation of goods and customers' demand. From the point of view of service content, characteristics and price, tanker transportation services are defined as relevant commodity market. 
3. Container market. 1.普通集装箱班轮运输服务市场和冷藏集装箱班轮运输服务市场。
Maersk Line associated enterprises produce and sell containers in China. Container is the upstream product of container liner transportation enterprises. The anti-monopoly investigation showed that general container and refrigerated container share the same customer base. Although manufacturing technologies are different, the vast majority of container manufacturer produces at the same time general container and refrigerated container. The container liner transportation companies also purchase ordinary container and refrigerated containers of strong supply substitutability. Containers are defined as relevant commodity market. 集装箱班轮运输服务是指集装箱班轮公司按照事先制定的船期表,在固定航线的挂靠港口之间,按照规定的操作规则为非固定货主提供规范和反复的集装箱货物运输服务。集装箱班轮运输服务按照单位标准箱(TEU或FFE)运价来计收运费,与非班轮运输没有替代性。集装箱运输与干散货运输、油轮运输也没有替代性。
4. Marine freight transportation agency service market. 从服务的内容、特性、价格等角度分析,集装箱班轮运输可以按照普通和冷藏进一步细分。普通集装箱用于运输没有特别温度要求的货物,冷藏集装箱主要用于运输需要在低温冷藏环境中贮存的货物。冷藏集装箱通过连接船舶的电力插座,在运输过程中能够维持-30℃至20℃的温度。从需求角度看,对于需要在运输过程中维持低温冷藏环境的货物(如肉类、水果蔬菜、海鲜等),货主只能选择冷藏集装箱运输。运输价格上,冷藏集装箱运输的价格通常高出普通集装箱一倍以上。从供给角度看,冷藏集装箱需要有隔温层并连接船舶的电力插座,每条船舶配备的电力插座数量有限,增加插座会大幅提高成本。为在运输过程中保持低温冷藏的环境条件,冷藏集装箱运输对温度控制技术也有较高要求,货物在长距离运输时需要保持极小的温度变化。因此,将普通集装箱班轮运输服务和冷藏集装箱班轮运输服务分别界定为不同的相关商品市场。
Maersk Line associated enterprises are engaged in marine freight transportation agency services in China. The freight transportation agency service is to organize the transportation of goods, customs clearance, warehousing and ground services according to the needs of customers and on behalf thereof. Marine freight transportation agency service is different from land and air freight transportation agency service, constituting related commodity market. 
(II) Relevant geographic market. 2.油轮运输服务市场。
1. The general container liner transportation and refrigerated container liner transportation markets. 集中双方均运营为油类产品提供运输服务的液体散装油轮(以下简称油轮)。油轮配备油罐、水泵和装卸设备等特定设施,能够运输原油、汽油等液体产品。油轮运输服务具有不定期的特点,运营商在相关区域内寻找业务,或者根据货物情况及客户需求往返于不同港口之间承接货物。从服务的内容、特性、价格等角度分析,油轮运输服务界定为单独的相关商品市场。
Trade routes are the basic elements of container liner transportation in the investigation of related regional markets. In this case, general and refrigerated container liner transportation air routes having overlap and covering ports in China include Far East - Northern Europe, Far East - Indian Subcontinent, Far East - Middle East, Far East - Oceania, Far East - South Africa, Far East - the east coast of North America, Far East - west coast of North America, Far East - South America East Coast, Far East - South America West Coast, Far East - Mediterranean and Far East - Central America and Caribbean, 11 in total). Each air routes can be further subdivided according to two courses. 
2. Tanker transportation service market. 3.集装箱市场。
According to the practice of the industry, tanker operators can deploy vessels globally, providing flexible tanker transportation services, without regular routes. The relevant regional market of tanker transportation service is the global market. 马士基航运关联企业在中国生产并销售集装箱。集装箱是集装箱班轮运输企业的上游产品。反垄断调查表明,普通集装箱和冷藏集装箱的客户群相同,尽管制造技术存在差异,但绝大多数集装箱制造商同时生产普通集装箱和冷藏集装箱,集装箱班轮运输企业也均同时采购普通集装箱和冷藏集装箱,二者供给替代性较强。集装箱界定为单独的相关商品市场。
3. Container market. 
Container vendors compete globally to sell to customers worldwide. At the same time, the transportation cost of container products is low to some extent and there is no substantial barrier to import and export. The related regional market of container is the global market. 4.海运货物运输代理服务市场。
4. Marine freight transportation agency service market. 马士基航运关联企业在中国从事海运货物运输代理服务。货物运输代理服务是根据客户需要并代表客户组织货物的运输、海关清关、仓储及地面服务等活动。海运货物运输代理服务区别于陆运、航空货物运输代理服务,构成单独相关商品市场。
As the demander usually chooses the goods agency service throughout the country, the marine freight transportation agency service providers also provides service and compete at home. The relevant regional market of the marine freight transportation agency service is defined as China. 
IV. Competitive analysis (二)相关地域市场。
The MOFCOM deeply analyzed the impacts of the concentration of undertakings on market competition in terms of the market share and market control force of the undertakings participating in concentration on the relevant market, the market concentration level, the complexity of access to the market concerned, impact on consumers and other operators and other factors as required in Article 27 of the Anti-monopoly Law. 
The anti-monopoly investigation shows that, with respect to the above 11 general container liner transportation and the refrigerated container liner transportation services of lateral overlap, in addition to the Far East - South America West Coast and Far East - South America East Coast, with respect to other nine routes (Far East - Northern Europe, Far East - Indian Subcontinent, Far East - Middle East, Far East - Oceania, Far East - South Africa, Far East - the east coast of North America, Far East - west coast of North America, Far East - Mediterranean, Far East - Central America and Caribbean), the market share increments as a result of concentration and the market share subject to merger is small, which is difficult to produce the effect of eliminating or restricting competition on the market. In the global tanker transportation service market, the total market share of Maersk Line associated enterprises and Hamburg Südamerikanische is [0-5]%, and there are many competitors in the market. This concentration is difficult to eliminate and limit the competition in this market. With respect to the global container market and Chinese marine freight agency service market that have vertical relationship with the container liner transportation service, the market share of Maersk Line associated enterprises is [5-10]% and [0-5]% respectively, and there are many competitors in the market. Hamburg Südamerikanische has no relevant business. Both sides do not have the ability to carry out the vertical blockade. Therefore, it is difficult to exclude and restrict the competition effect in the vertical related market. 1.普通集装箱班轮运输服务市场和冷藏集装箱班轮运输服务市场。
Anti-monopoly investigation shows that the concentration may exclude and restrict the competition effect of the general and refrigerated container transport market of the Far East - South America West Coast route and the Far East - South America East Coast routes. Far East includes three countries of Eastern Asia (China, Japan and South Korea); South America West Coast refers to four countries of the west coast of South America (Peru, Chile, Ecuador and Columbia), and South America East Coast includes three countries along the east coast of South America (Brazil, Uruguay and Argentina).
......
 在考察相关地域市场时,贸易航线是集装箱班轮运输的基本要素。本案中,集中双方存在重叠并覆盖中国港口的普通和冷藏集装箱班轮运输航线包括:远东-北欧、远东-印度次大陆、远东-中东、远东-大洋洲、远东-南非、远东-北美东海岸、远东-北美西海岸、远东-南美东海岸、远东-南美西海岸、远东-地中海、远东-中美和加勒比海共11条航线,每条航线可根据往返两个航向进一步细分。
......

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