In some jurisdictions, market investigations could see a shift in the nature of competition authorities, allowing remedial action absent competition law breaches. That said, many of the considerations in the section above on the limitations of market studies will also apply to market investigations. For example, despite their remedial powers, market investigations may not be suitable substitutes for enforcement action in many situations. Without the ability to impose penalties, market investigations may not be able to generate a sufficient level of deterrence, notwithstanding the potentially large costs of remedies that could be imposed. Further, as noted above, if the underlying competition issues are driven by issues with existing regulations, the additional powers are unlikely to lead to different outcomes compared to market studies.
Market investigations, by their nature, are typically long and costly exercises for competition authorities. Appeals are likely when significant remedies are imposed, likely furthering cost implications. While costs can be high, perhaps one of the largest issues is the length of time required for actual changes to be made. Given the fact that costs may be incurred on parties absent evidence of wrongdoing, robust checks and balances are required to ensure due process (European Commission, 2020[14]). This means however that market investigation tools may not be the solution for pressing or urgent issues.
Market investigations also have the potential to impose significant costs for firms participating in them, much as with market studies. In addition, however, there could be significant costs if remedies are implemented and this could affect firms independently of any illegal activity. While the relationship between competition and innovation can be complicated (OECD, 2023[17]), legal uncertainty can reduce firm investment incentives. This could be the case for example if the prospect of having to divest assets in the event of a market investigation became a reality. While the existence of market investigation powers could create this possibility and therefore lead to increased legal uncertainty, as divestments appear rare, it is not clear that in themselves this would lead to a significant increase in legal uncertainty just because an authority was granted the power.
Remedies may pose potentially complex and complicated trade-offs with policy areas other than competition, requiring judgements which competition authorities may not be best placed to make. It is worth noting that, while there are risks of political interference in market investigations, this may not always be inherently negative. While there are risks of short-termism and distortions based on lobbying, decision making should generally follow the outcome of democratic political processes. In this sense, market investigations do not truly create new possibilities, just allocate powers differently and, some will argue, inappropriately. There may also be interesting policy trade-offs when remedies interact with regulations or are within the remit of other regulators, and may require additional protocols and co-operation mechanisms.13 This weakens the potential remedial power of market investigations. Further, such powers have the potential to put strain on authorities’ political independence, as government may see such powers as an opportunity to enact changes at arm’s length.
Another limitation of the process is that the nature of a market investigation can create dynamics where remedies are to some extent “one-shot”, as typically the power to impose remedies is tied to the legal instrument. In practice this usually means that they are imposed at the end of the study. This may limit the ability to make remedies robust to changing circumstances. There may also be challenges in devising complex remedies within defined timeframes. Depending on the instruments available, there may be some ability to reduce this risk by allowing clauses in orders or, as longstanding practice, prefer remedies with definitive timeframes, such as structural remedies. On the other hand, remedies that do endure over time may require significant resources from authorities to monitor or adapt (Fletcher, 2021[16]).
More generally, there is debate on the scale of the gap between practices covered by traditional enforcement and other competition issues (Colangelo, 2024[18]). This gap is further brought into question in the context of ex-ante competition regulation, that has been adopted and is being considered in some jurisdictions in relation to digital markets (OECD, 2021[19]). The smaller the gap, the lower the potential benefits of market investigations would be.
Given the significance of imposing remedies that may entail substantial costs on businesses independently of a finding that their conduct has breached the law, as discussed above, due process and robust procedures are required to ensure affected parties are able to provide evidence to contradict findings and propose alternative solutions (Fletcher, 2021[16]).