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Anti-piracy enforcements and innovation quality

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Abstract This paper analyzes the effectiveness of public enforcement in combating piracy and promoting innovation. Our analysis emphasizes that the design of enforcement policy must take into account not only the intensity of enforcement but also its form and structural constraints. We show that under a social welfare–maximizing regime, optimal enforcement always eliminates piracy but cannot fully prevent a decline in innovation quality as piracy rises. When this decline significantly reduces welfare, the government intensifies enforcement to block piracy and restore monopoly outcomes. However, when enforcement is constrained by a proportional fine structure, the government optimally tolerates some piracy, with no monitoring as the best response. Strengthening fines reduces piracy, but does not eliminate it, until a threshold is reached where the optimal enforcement restores the monopoly outcome, often at a lower piracy level than under welfare maximization. We also find that private enforcement yields outcomes identical to public enforcement when the government pursues social welfare maximizing objective.

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Disclosure of documents enhances the effectiveness of private enforcement but must not deter from making leniency applications. As established by the ECJ in DonauChemie absolute protection for certain documents is incompatible with the primary law principle of effectiveness. Thus the per se protection of corporate leniency statements and settlement statements must at least be reduced to a protection in principle that leaves room for a different decision in exceptional cases. The best solution, however, would be to privilege cartelists who receive immunity from fines by giving them the right to full contribution from their co-infringers. This would mean: Leniency applicants would not have to fear private enforcement, because they can recover any damages paid to victims from their co-infringers. Thus all documents could, subject to a court order in each individual case, be disclosed without deterring cartelists from filing leniency applications. The tension between public and private enforcement would be removed and both ways of enforcement would be strengthened: Public enforcement is strengthened because leniency applicants are not deterred from leniency applications but are rather given an additional incentive, namely immunity from civil liability. Private enforcement is strengthened because victims receive information necessary to claim damages and because the privileges granted to leniency applicants are not granted at the victims’ expense but at the expense of the co-infringers.

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Directive 2014/104/EU contains detailed provisions related to the disclosure of evidence in actions for damages before national courts that seek to strike a balance between a claimant’s right to access evidence in support of its private damages claim and the protection of leniency programmes, which are some of the main tools of public antitrust enforcement. Articles 5 to 8 of the Directive create a “microsystem” of the law of the evidences, which is highly specialised and based on the central role of the judge and on the principle that private enforcement must not compromise public enforcement. The Directive tackles the information asymmetry that characterises competition law litigation by acknowledging the right for a claimant “to obtain the disclosure of evidence relevant to their claim, without it being necessary for them to specify individual items of evidence”. However, the obtainment of the disclosure of evidence is circumscribed by a number of conditions and exceptions. The Directive creates three lists of documents that are characterised by a different level of protection: the black list, the grey list and the white list. After giving an overview of all these provisions, the article will focus on the disclosure of leniency statements and settlement submissions, by analysing the case law of the ECJ before and after the entry into force of the Directive. It will be found out that while the Court has always been cautious, by affirming that it is necessary to weigh up, on a case-by-case basis, the respective interests in favour of disclosure of such documents and those in favour of their protection, the European Legislator preferred to unconditionally protect the efficiency of leniency and settlement programmes to the detriment of parties that suffered a harm, which have to find any possible way to support their damage claim in a context in which the information asymmetry and the difficulty of the factual and economic analysis are evident. It seems that, with Article 6(6), the European Legislator did not succeed in its goal of making it easier for victims of antitrust violations to claim compensation from the offender, which is the general aim of the Directive. In fact, not having the possibility to have access to leniency statements or settlement submissions in stand-alone actions, it is highly difficult to prove that they suffered harm. Therefore, victims can only wait until the competition authority adopts a final infringement decision in order to start a probably successful follow-on action. Overall, all provisions on disclosure of documents contained in the Directive contribute to make a big step forward in the private enforcement sector, except for the provisions of Article 6(6), which could have probably been less rigid. In fact, while the rule on the right to obtain the disclosure of evidence, together with the provisions on disclosure of documents contained in the grey list and in the white list, strike a fair balance between public and private enforcement and facilitate victims of antitrust violations in bringing actions for damages, the same thing cannot be affirmed for provisions on disclosure of documents contained in the black list.

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Ascertaining which enforcement mechanisms work to protect investors has been both a focus of recent work in academic finance and an issue for policy-making at international development agencies. According to recent academic work, private enforcement of investor protection via both disclosure and private liability rules goes hand in hand with financial market development, but public enforcement fails to correlate with financial development and, hence, is unlikely to facilitate it. Our results confirm the disclosure result but reverse the results on both liability standards and public enforcement. We use securities regulators' resources to proxy for regulatory intensity of the securities regulator. When we do, financial depth regularly, significantly, and robustly correlates with stronger public enforcement. In horse races between these resource-based measures of public enforcement intensity and the most common measures of private enforcement, public enforcement is overall as important as disclosure in explaining financial market outcomes around the world and more important than private liability rules. Hence, policymakers who reject public enforcement as useful for financial market development are ignoring the best currently-available evidence.

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