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Superintendencia de Competencia
Competencia

Claro – Digicel: Primer denegatoria en el control de concentraciones salvadoreño

Autoras: Carmen Elisa Ortiz de Ciolac, coordinadora de Concentraciones Económicas, y Marlene Tobar de Torres, intendente Económico, ambas de la Superintendencia de Competencia.

La Constitución salvadoreña ordena al Estado promover el desarrollo económico y social mediante la racional utilización de los recursos y la protección de la iniciativa privada, siempre y cuando se aseguren beneficios al mayor número de habitantes del país. En concordancia, la Ley de Competencia (LC) atribuye al Consejo Directivo de la Superintendencia de Competencia (CDSC) la facultad de analizar algunas operaciones de concentración económica pudiendo autorizarlas, denegarlas o condicionarlas. La resolución, favorable o no para estas iniciativas privadas, dependerá de si la operación limita significativamente la competencia y, con ello, perjudica a los consumidores.
A la fecha, la Superintendencia de Competencia analizó a fondo 16 solicitudes de autorización de concentración económica de las cuales solamente ha sido denegada la concentración entre Claro y Digicel.
El 28 de marzo de 2012, América Móvil y Amov IV, propietarias de CTE y CTE Telecom Personal (Claro), solicitaron al CDSC autorización para comprar la totalidad de acciones de Digicel, S. A. de C. V. (Digicel). Esta solicitud finalizó con la primera denegatoria de la historia en el control de concentraciones salvadoreño. Esta decisión marca un importante precedente que amerita ser expuesto en detalle.
Para evaluar el posible impacto de una concentración económica se consideran, entre otros aspectos, la posibilidad de crear o reforzar una posición dominante o de facilitar acuerdos colusorios, las barreras a la entrada de los mercados y la rivalidad empresarial. Si una concentración económica conlleva potenciales daños significativos a la competencia, no podrá ser denegada siempre y cuando, los involucrados demuestren que habrá beneficios significativos al consumidor (eficiencias) que contrarresten los daños.
El análisis del caso partió del hecho que los mercados minoristas de telefonía fija y móvil presentaban niveles de concentración elevados y a raíz de la transacción los indicadores revelarían posibles efectos anticompetitivos como aumentos en el poder de mercado.
Entre las barreras a la entrada se encontraron economías de escala, de alcance y externalidades de red que constituían para los incumbentes ventajas difíciles de replicar por parte de un competidor nuevo. También se consideró que las inversiones necesarias para la construcción y el despliegue de nuevas redes de telecomunicaciones y los gastos en publicidad necesarios para ingresar al mercado, son costos hundidos que constituyen barreras económicas de relevancia. Además, se advirtió que algunas estrategias aplicadas por los incumbentes (tarifas on-net más bajas que tarifas off-net) fortalecían los efectos asociados a las economías de red.

Se abordó el tema del espectro radioeléctrico, recurso esencial y determinante en la capacidad de competir de los agentes económicos en estos mercados. De autorizarse la concentración, Claro dispondría de casi la mitad de todo el espectro que el Estado ha concesionado a los operadores de telefonía móvil y en bandas de frecuencias cuyas características le brindaban ventajas sobre sus competidores actuales y potenciales. Se calificó como barrera la escasez de segmentos apropiados de espectro radioeléctrico continuo y el hecho que las bandas de espectro más bajas estaban prácticamente concesionadas en su totalidad. Bandas de frecuencia más altas requieren de más inversiones para alcanzar similar alcance y penetración que bandas de frecuencias más bajas.

Sobre el rol que ocupan los operadores en el mercado, la revisión de las estrategias comerciales de Digicel, de 2005 a 2012 permitió identificarlo como “maverick”. Este calificativo distingue a los competidores vigorosos y efectivos, con comportamiento independiente, disruptivo, poco predecible y a beneficio de los consumidores. Esto aumentaba las probabilidades de que la operación disminuyera de forma peligrosa la dinámica competitiva del mercado.

Otro elemento fue el hecho que existía un precedente de coordinación entre la mayoría de operadores de telefonía móvil, manteniéndose las características de los mercados propensos a colusión. La eliminación del agente maverick sería un elemento que incrementaría las posibilidades de colusión.

Así, los exámenes de competencia indicaron que la operación podría perjudicar a los consumidores al dificultar la capacidad de competir o de expandirse del resto de operadores. Ello podría devenir en incrementos de precios, reducciones de la calidad o de la oferta de los servicios. En cumplimiento del Art. 34 de la LC, la autoridad evaluó si las eficiencias alegadas por Claro compensarían los perjuicios advertidos.

Una de las principales ganancias en eficiencia argumentadas por Claro era que, según su parecer, el espectro radioeléctrico que poseía Digicel era fragmentado heterogéneo y discontinuo geográficamente, por lo que no contaba con la capacidad técnica para evolucionar de la tecnología 2G a tecnologías superiores. También argumentó que los usuarios de Digicel incrementarían su bienestar al incorporarse a la tecnología 3G de Claro.

Durante el análisis de la operación, Digicel, por su parte, obtuvo la concesión por 20 años de 9 pares de frecuencias para expandir la capacidad en enlaces de transmisión y recepción y optimizar el plan interno de su red. Con la concesión otorgada por SIGET, Digicel complementó sus franjas de espectro y sus bandas se volvieron continuas y de similar amplitud a la de sus competidores. Este hecho eliminó las limitaciones técnicas que Claro alegaba sobre Digicel como impedimento para mejorar sus servicios.

Al final, sobre la base de los requisitos que exige el Art. 34 LC para las eficiencias y de las normas del derecho común referentes al medio probatorio y al hecho que se pretende probar, se concluyó que los montos de los ahorros ofrecidos por Claro eran inconsistentes, que ninguna de las eficiencias cumplía con ser verificables, específicas a la concentración, trasladables en forma de beneficios directos a los consumidores e incluso que algunas no eran ni útiles ni pertinentes para probar que significativamente compensaban el daño a la competencia en perjuicio de los consumidores. En consecuencia, no podían ser tomadas en cuenta.

Sobre la insistencia de Claro sobre la mayor necesidad de espectro radioeléctrico se concluyó que esta era infundada ya que tanto Claro como Digicel estaban técnicamente aptos para prestar de forma independiente los mismos o mejores servicios que los ofrecidos como producto de la concentración. Estos solo debían utilizar más eficientemente el espectro que poseían e invertir en tecnologías más eficientes. Por ende, la concentración causaba ineficiencia en el uso de ese recurso.

La autoridad de competencia salvadoreña, en observancia a los postulados constitucionales referentes al deber del Estado de asegurar beneficios al mayor número de habitantes del país y de promover el desarrollo económico y social mediante la racional utilización de los recursos, protegió la competencia denegando la solicitud de concentración de Claro y Digicel ya que esta la limitaría significativamente en ausencia de eficiencias que compensaran ese daño a los consumidores.

– Los comentarios en este artículo expresan la opinión del autor –

Marlene Tobar es licenciada en Economía por la Universidad Centroamericana José Simeón Cañas. Posee un post grado en Macroeconomía aplicada por la Pontificia Universidad Católica de Chile. Cuenta con experiencia en sustentación económica en casos de carteles y abusos de posición dominante (2006-2011) dentro de la Superintendencia de Competencia. Actualmente es Economista Jefe del área de Estudios de Competencia, Concentraciones Económicas y Opiniones, fungiendo como Intendente Económico.

Carmen Ortiz es licenciada en Ciencias Jurídicas por la Universidad Dr. José Matías Delgado. Es abogado y notario. Cuenta con una maestría en Derecho y Políticas Internacionales de Competencia y Concentraciones Económicas, cursada en la Universidad de Glasgow, Escocia, Reino Unido. Fungió como colaborador jurídico del área de Concentraciones Económicas en el período de 2010-2011; y desde el año 2012 es la coordinadora de esta área dentro de la Superintendencia de Competencia.

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