CELEX: 32019M8773
Language: en
Date: 2019-02-28 00:00:00
Title: Commission Decision of 28/02/2019 declaring a concentration to be compatible with the common market (Case No COMP/M.8773 - LetterOne Holdings S.A. / BASF S.E. / Wintershall DEA) according to Council Regulation (EC) No 139/2004 (Only the English text is authentic)

EUROPEAN COMMISSION
                                                                Brussels, 28.2.2019
                                                                C(2019) 1798 final
In the published version of this decision, some
information has been omitted pursuant to Article                       PUBLIC VERSION
17(2) of Council Regulation (EC) No 139/2004
concerning non-disclosure of business secrets and
other confidential information. The omissions are
shown thus […]. Where possible the information
omitted has been replaced by ranges of figures or a
general description.                                            To the notifying parties
Subject:            Case M.8773 - LETTERONE / BASF / WINTERSHALL DEA
                    Commission decision pursuant to Article 6(1)(b) of Council
                    Regulation No 139/20041 and Article 57 of the Agreement on the
                    European Economic Area2
Dear Sir or Madam,
(1)         On 24 January 2019, the European Commission received notification of a
            proposed concentration pursuant to Article 4 of the Merger Regulation by which
            LetterOne Holdings (“LetterOne”) and BASF S.E. (“BASF”) will acquire within
            the meaning of Article 3(1)(b) and 3(4) of the Merger Regulation joint control of
            Wintershall DEA, by way of purchase of shares in a newly created company
            constituting a joint venture (the “Transaction”).3 LetterOne and BASF are
            collectively referred to as the “Notifying Parties”.
1.        THE PARTIES
(2)       LetterOne is a private investment holding company focusing on investments in
          the energy sector. LetterOne owns DEA Deutsche Erdoel AG, an international
          exploration and production company for oil and gas.
1       OJ L 24, 29.1.2004, p. 1 (the 'Merger Regulation'). With effect from 1 December 2009, the Treaty
        on the Functioning of the European Union ('TFEU') has introduced certain changes, such as the
        replacement of 'Community' by 'Union' and 'common market' by 'internal market'. The terminology
        of the TFEU will be used throughout this decision.
2       OJ L 1, 3.1.1994, p. 3 (the 'EEA Agreement').
3       Publication in the Official Journal of the European Union No C 038, 31.01.2019, p. 20.
Commission européenne, DG COMP MERGER REGISTRY, 1049 Bruxelles, BELGIQUE
Europese Commissie, DG COMP MERGER REGISTRY, 1049 Brussel, BELGIË
Tel: +32 229-91111. Fax: +32 229-64301. E-mail: COMP-MERGER-REGISTRY@ec.europa.eu.
 ---pagebreak--- (3)    BASF is mainly active in the chemical sector, with a portfolio split into
       chemicals, performance products, functional materials and solutions, agricultural
       solutions and oil and gas. BASF owns Wintershall Holding GmbH, which is
       active in the exploration and production of oil and gas inter alia in Europe.
(4)    In Wintershall DEA, LetterOne and BASF will combine Wintershall’s and
       DEA’s businesses in the exploration and production of oil and gas. In addition,
       Wintershall DEA will also, to a limited extent, be active in gas transportation.
2.     THE CONCENTRATION
(5)    The Transaction consists in the formation of a full-function joint venture (the
       “JV”) Wintershall DEA, between BASF in relation to its Wintershall’s business,
       and LetterOne in relation to its DEA Group’s business.4
    2.1.   Joint control
(6)    While LetterOne and BASF will hold respectively 33% and 67% in Wintershall
       DEA, the Transaction consists of the creation of a company jointly controlled by
       the Notifying Parties. The JV will have three corporate bodies:
       (a)      A Management Board, in charge of the day-to-day operations of the JV;
       (b)      A Shareholder’s Meeting, whose approval is necessary for some of the
                strategic decisions, namely the annual budget and relating business plans,
                during the Initial Period (i.e. the period until the earlier of an initial public
                offering5 or the expiry of […] following Closing), and in which
                shareholders exercise their voting rights in proportion with their
                shareholding and take decisions with a simple majority;
       (c)      A Supervisory Board, whose approval is necessary for some of the
                strategic decisions, such as on the annual budget and relating business
                plans as well as the appointment of the members of the management
                board, after the Initial Period. The Supervisory Board consists of […]
                members – […] employee representatives, […] BASF members and […]
                LetterOne members - and takes decisions by […].
(7)    In addition, the JV will have a shareholders’ committee (“SC”), in which the
       strategic decisions, such as the determination of the business plan, the approval or
       amendment of the annual budget and the approval of any investment exceeding
       […], are discussed beforehand. The purpose of the SC is to coordinate the
       interests of the parents, to pre-align their views and resolve any strategic
       decisions on the agenda of the upcoming Shareholder’s Meeting or Supervisory
       Board meeting.
4    For the sake of completeness, we note that in parallel to the Transaction, DEA has divested all its
     natural gas storage business in Germany, as per a transaction that was approved by the
     Bundeskartellamt and completed on 1 January 2019.
5    By the initial public offering (“IPO”), Wintershall DEA will become a publicly listed company on
     the Frankfurt or other stock exchange. […].
                                                      2
 ---pagebreak--- (8)     During the Initial Period, decisions in the SC are taken by […], by lack of which
        the respective resolution is dropped and the matter will not be discussed at the
        level of the respective corporate body. Also, the shareholders have the obligation
        to use their influence to ensure that decisions at the level of the Shareholders’
        Meeting are taken in accordance with the corresponding decision taken in the SC,
        which includes the obligation to uniformly exercise their voting rights in the
        Shareholders’ Meeting. As such, the SC can be considered a legally binding
        pooling agreement within the meaning of paragraph 75 of the Jurisdictional
        Notice, determining the voting behaviour in the JV’s relevant corporate body.
(9)     In view of the above, the Notifying Parties jointly control Wintershall DEA in the
        Initial Period, which is in view of paragraph 34 of the Jurisdictional Notice
        sufficiently long to constitute a lasting change of control.
     2.2.    Full functionality
(10)    Wintershall DEA will be a joint venture performing on a lasting basis all the
        functions of an autonomous economic entity within the meaning of Article 3(4) of
        the Merger Regulation. As it is the entirety of both DEA’s and Wintershall’s
        already existing functioning standalone businesses that will be combined in the
        JV, the JV’s activities will consequently necessarily go beyond one specific
        function for the parent companies, it will have its own presence on the market and
        will possess sufficient resources to operate independently. Furthermore, it will
        have its own management team6 that is free to determine its own commercial
        policy, in addition to independent employees. Also, it will possess all necessary
        regulatory authorisations, permits and licences to conduct its business. Lastly, the
        JV’s existence is not limited in time; the agreement can only be terminated as of
        the twentieth anniversary of Closing.
3.      EU DIMENSION
(11)    The undertakings concerned have a combined aggregate worldwide turnover of
        more than EUR 5 000 million7 (LetterOne: EUR 8 999 million BASF: EUR
        64 475 million). Each of them has an EU-wide turnover in excess of EUR 250
        million (LetterOne: […] BASF: EUR […]), but they do not achieve more than
        two-thirds of their aggregate EU-wide turnover within one and the same Member
        State. The notified operation therefore has an EU dimension pursuant to Article
        1(2) of the Merger Regulation.
6     Concretely, the JV will have a management board in charge of its day-to-day operations, which
      shall consist of five managing directors, including one chairman – the chief executive officer – that
      will be appointed by BASF, and one deputy chairman – the deputy chief executive officer – that
      will be appointed by LetterOne. The other directors will be appointed by BASF and LetterOne by
      consensus.
7     Turnover calculated in accordance with Article 5 of the Merger Regulation and the Commission
      Consolidated Jurisdictional Notice (OJ C 95, 16.4.2008, p. 1).
                                                        3
 ---pagebreak--- 4.   MARKET DEFINITION
(12) The Transaction will give rise to two main horizontal overlaps in relation to (i)
     the exploration of crude oil and natural gas; and (ii) the development, production
     and upstream supply of natural gas (see Sections 4.1 and 4.2 below).
(13) For completeness, the Commission notes that the Transaction also results in
     horizontal overlaps in relation to (i) the development, production and upstream
     supply of crude oil, and (ii) the development, production and sale of natural gas
     liquids (“NGLs”). Neither of these horizontal overlaps however lead to affected
     markets. Therefore, the Commission will not discuss these markets any further in
     this decision.
(14) Furthermore, the Transaction gives rise to the following vertical relationships:
     (a)     the Notifying Parties’ activities in relation to the exploration of oil and
             natural gas (upstream) and their activities in the development, production
             and sale of (i) oil and (ii) natural gas (downstream);
     (b)     BASF’s activities in various oilfield solutions (upstream) and the
             Notifying Parties’ activities in each of (i) the exploration of crude oil and
             natural gas (downstream), (ii) the development, production and sale of
             crude oil (downstream) and (iii) the development, production and sale of
             natural gas (downstream);
     (c)     BASF’s activities for various gas treatment products (upstream), and the
             Notifying Parties’ activities in each of (i) the development, production and
             sale of natural gas (downstream) and (ii) the development, production and
             sale of NGLs (downstream);
     (d)     each of the Notifying Parties’ activities in relation to the production and
             sale of gas treatment products (upstream) and (i) BASF’s activities in the
             development, production and sale of natural gas (upstream) and (ii) DEA’s
             activities in the liquefaction of LNG (downstream);
     (e)     the Notifying Parties’ activities in relation to the development, production
             and sale of natural gas (upstream) and Wintershall’s activities in the
             transport of natural gas (downstream);
     (f)     the Notifying Parties’ activities in the development, production and sale of
             natural gas (upstream) and BASF’s activities in the production and sale of
             natural gas-based products (downstream);
     (g)     the Notifying Parties’ activities in the development, production and sale of
             natural gas (upstream) and (i) BASF’s activities in the production and sale
             of natural gas-based products (upstream), and (ii) Wintershall’s activities
             in the retail supply of natural gas (downstream); and
                                                 4
 ---pagebreak---         (h)      the Notifying Parties’ activities in the development, production and sale of
                 NGLs (upstream) and BASF’s activities in the production and sale of
                 NGL-based products.8
(15)    However, none of these vertical links lead to vertically affected markets.9
        Therefore, the Commission will not discuss these markets any further in this
        decision.
     4.1.    Exploration of crude oil and natural gas
   4.1.1. Product market definition
   The Commission’s decision-making practice
(16)    In previous decisions, the Commission has concluded that the exploration of
        crude oil and natural gas, i.e. the finding of new hydrocarbon reserves, constitutes
        a separate market.10 Furthermore, the Commission has considered that no
        distinction is necessary between the exploration of crude oil on the one hand and
        the exploration of natural gas on the other hand, as the contents of underground
        reservoirs cannot be known at the exploration stage.11
   The Notifying Parties’ view
(17)    The Notifying Parties do not contest the Commission’s decisional practice with
        regard to the product market definition.
   The Commission’s assessment
(18)    The market investigation has not brought to light any indication that would
        contradict the Commission’s decisional practice to define a separate relevant
        product market for the exploration of oil and natural gas.
(19)    In light of the above, the Commission takes the view that the exploration of oil
        and natural gas constitutes a separate relevant product market.
8     For completeness, as DEA divested its gas storage business on 1 January 2019. As such, no vertical
      link arises between the Notifying Parties’ activities in relation to the development, production and
      sale on the one hand, and DEA’s activities in gas storage on the other, or between DEA’s activities
      in gas storage and the Notifying Parties’ activities for the retail supply of natural gas.
9     For the sake of completeness the Commission notes that should the market for the development,
      production and natural gas be defined on the narrowest basis both geographically (national) and
      regarding the relevant product market, the Transaction leads to technically vertically affected
      markets between the worldwide market for exploration of oil and natural gas (upstream) and the
      development, production and sale of L-gas in Germany (downstream). In view of the very limited
      market shares of the Notifying Parties on the upstream market, as well as the declining downstream
      market (see section 5.1.2), the Commission takes the view that input or customer foreclosure is
      unlikely to occur.
10    M.7318, Rosneft / Morgan Stanley Global Oil Merchanting unit, paras. 9-10; M.5629, Normenston /
      Mol / JV, paras. 10-11; M.5585, Centrica / Venture Production, paras. 8-9; M.4934, Kazmunaigaz /
      Rompetrol, para. 3; M.3294, Exxonmobil / BEB, para. 11 ; M.3086, Gaz de France / Preussag
      Energie, paras. 8-10.
11    M.3294, Exxonmobil / BEB, para. 16.
                                                          5
 ---pagebreak---    4.1.2. Geographic market definition
   The Commission’s decision-making practice
(20)    In previous decisions, the Commission has defined the market for exploration of
        oil and natural gas as worldwide in scope12 as the companies engaged in
        exploration do not tend to limit their activities to a particular geographical area.13
   The Notifying Parties’ view
(21)    The Notifying Parties agree with the Commission’s decisional practice to define
        the market for the exploration of oil and natural gas as worldwide in scope.14
(22)    In this regard, the Notifying Parties submit that the licensing system is highly
        competitive and open to companies worldwide. They consider that national
        differences in the regulatory framework do not warrant the definition of national
        markets. Furthermore, the companies looking to acquire exploration licences will
        consider projects at least on a European-wide basis.15 Therefore, the Notifying
        Parties consider that no Member State (MS) constitutes a national market with
        regard to the exploration of oil and gas.16
   The Commission’s assessment
(23)    The market investigation indicated that the geographic scope of the activities of
        companies in oil and natural gas exploration differs. Indeed, while there are a
        number of companies active on a worldwide basis, some smaller competitors only
        hold licences in some or even one MS.17
(24)    In particular, two of the competitors responding to the market investigation
        suggested that Germany constitutes a separate – national – geographic market due
        to certain regulatory mechanisms and subsurface data ownership and
        availability.18
(25)    However, the vast majority of respondents considers that there are no barriers to
        entry into any specific regions or Member States. Moreover, the majority of the
        players active in Germany does not consider Germany to be a separate geographic
        market. 19
(26)    Furthermore, a representative of public authorities in charge of geological data
        confirmed that although geological data is indeed the property of the exploration
        companies, given the maturity of the German fields, the data is generally known.
12    M.7318, Rosneft / Morgan Stanley Global Oil Merchanting unit, paras. 9-10; M.5629, Normenston /
      Mol / JV, para. 11; M.5585, Centrica / Venture Production, para. 9; M.4934, Kazmunaigaz /
      Rompetrol, para. 11; M.3294, Exxonmobil / BEB, para. 17 ; M.3086, Gaz de France / Preussag
      Energie, para. 10.
13    M.5629, Normenston / Mol / JV, para. 11 ; M.5585, Centrica / Venture Production, para. 9.
14    Paras. 187-188 of the Form CO.
15    The Notifying Parties note that they […].
16    Para. 187 of the Form CO.
17    Replies to questions 3 and 4 of questionnaire Q1 – Exploration of oil and gas – Competitors.
18    Replies to question 5 of questionnaire Q1 – Exploration of oil and gas – Competitors.
19    Replies to question 5 of questionnaire Q1 – Exploration of oil and gas – Competitors.
                                                       6
 ---pagebreak---         Moreover, on a private basis, any other company can buy the data from the
        licence holder.20
(27)    In view of the above and in line with its previous decisions, the Commission
        considers that the market for exploration of oil and gas is worldwide in scope.
     4.2.    Development, production and upstream supply of natural gas
   4.2.1. Product market definition
   The Commission’s decision-making practice
(28)    As mentioned above, as for the product market definition the Commission has
        previously defined a separate market for the development, production and
        upstream supply of natural gas, distinct from the upstream production of crude
        oil.
(29)    Furthermore, the Commission has in the past considered that piped gas and
        liquefied natural gas (“LNG”) present distinguishing features and for this reason
        can be part of distinct markets.21 In any event, the exact product market definition
        can be left open for the purpose of this decision since the Transaction does not
        lead to serious doubts as to its compatibility with the internal market regardless of
        whether the upstream supply of LNG constitutes a separate market or forms part
        of a broader market encompassing also non-liquefied natural gas.22
(30)    In addition, the Commission has considered in previous cases a distinction
        between high calorific value gas (“H-gas”) and low calorific value gas (“L-gas”)
        at each level of the gas supply chain as well as in respect of gas transmission and
        gas distribution services.23 While stating that there are a number of elements
        pleading in favour of a distinction of L-gas and H-gas also with regard to
        wholesale supply, the Commission has ultimately left the market definition open
        save with respect for Belgium and France where the Commission found that H-
        gas and L-gas do not belong to the same product market.24
   The Notifying Parties’ view
(31)    The Notifying Parties consider that the relevant product market comprises the
        development, production and sale of natural gas including both piped gas and
        LNG.
20    Minutes of the conference call with the Ministry of Economic Affairs of Lower Saxony on 14
      February 2019, paras. 6-7.
21    Case M.7631 – Royal Dutch Shell/BG Group.
22    M.8771, Total / Engie (part of liquefied natural gas business), para. 17; M.6801 Rosneft / TNK BP;
      para. 16; M.6910, Gazprom / Wintershall / Target Companies, para. 83 and para. 91. For the sake of
      completeness, the Commission notes that only LetterOne is active in the wholesale supply of LNG.
      As such, the Transaction does not result in a horizontal overlap in this regard. The Notifying Parties
      have also confirmed that if a market for the development, production and sale of LNG were to be
      considered, this would not give rise to a vertically affected market. For these reasons, this potential
      sub-segmentation will not be discussed further in this decision.
23    M.6910 Gazprom / Wintershall / Target companies, paras. 73-82; M.4180 Gaz de France/Suez,
      paras. 64-69; M.5467 RWE/Essent, paras. 327-329; M.5802 RWE Energy/Mitgas, para. 17.
24    M.6910 Gazprom / Wintershall / Target companies, paras. 75-83; M.4180 Gaz de France/Suez,
      paras. 64-69; M.5467 RWE / Essent, paras. 327-329.
                                                         7
 ---pagebreak--- (32)   As regards a possible distinction between L-gas and H-gas, the Notifying Parties
       claim that there would be no justification for such a distinction given that the
       production of L-gas (i) is limited to Germany and the Netherlands in the EEA; (ii)
       has been consistently diminishing and is to be expected non-existent by 2029 as
       the German L-gas transmission network will have been converted into a H-gas
       network. Furthermore, even though H-gas and L-gas have slightly different
       technical characteristics, the Notifying Parties submit that they remain
       interchangeable as they can be used for the same purposes and can be easily
       physically converted into one or the other in exchange for a small – EUR
       0,45/MWh for conversion of H-gas into L-gas - or no conversion fee – for
       conversion of L-gas into H-gas.25
   The Commission’s assessment
(33)   The Commission’s market investigation revealed some indications pointing to a
       need to distinguish between H-gas and L-gas.
(34)   As regards the supply side, in the EEA L-gas is only produced in the Netherlands
       and parts of Germany. The majority of L-gas sales in Germany are in fact imports
       from the Netherlands.26 While some producers can supply both L-gas and H-gas,
       often they only supply one quality or the other. Upstream wholesale suppliers
       usually offer both qualities of gas.27
(35)   As regards the demand side, respondents to the market investigation pointed out
       that the L-gas and H-gas transmission grids in Germany, where the Notifying
       Parties are active, are physically separated, with the interconnection points,
       transport capacities from and to gas storage facilities across the value chain being
       assigned to one quality.28 In addition, contracts with upstream wholesale gas
       suppliers specify the type of L-gas to be delivered. Indeed, the delivered gas must
       comply with the quality specification of the delivery point, and it is in Germany
       not possible to transfer gas without identifying the delivery point and thus the
       quality. As such, in case one would want to switch, a new contract needs to be
       concluded.29
(36)   However, it is possible to physically convert H-gas into L-gas and vice versa. In
       fact, this is the responsibility of the “Market Area Managers”, NetConnect
       Germany (“NCG”) and Gaspool, who are obliged to enable the trade across gas
       qualities within their respective Market Area, meaning that they have to provide
       the L-gas quantities necessary to enable all market participants to fulfil their
       supply obligations, even to those market participants bring H-gas into the area
       while delivering L-gas. That being said, market respondents indicated that in
25   See the Notifying Parties’ reply to question 1 of RFI03 of 8 February 2019.
26   See FNB Gas Netzenwicklungsplan Gas 2018-2028, tables 18, 22, 24 and 27, https://www.fnb-
     gas.de/files/2018 03 29 entwurf nep-gas-2018-2028 1.pdf and replies to question 2 of follow-up
     questionnaire to questionnaire Q3 – Development, production and sale of natural gas – Customers
27   Reply to RFI 3 of 11 February 2019, para. 9; Replies to question 2 of follow-up questionnaire to
     questionnaire Q3 – Development, production and sale of natural gas – Customers.
28   Replies to questions of follow-up questionnaire to questionnaire Q3 – Development, production and
     sale of natural gas – Customers; FNB Gas Netzenwicklungsplan Gas 2018-2028, Chapter 5,
     https://www.fnb-gas.de/files/2018 03 29 entwurf nep-gas-2018-2028 1.pdf.
29   Replies to question 10 of follow-up questionnaire to questionnaire Q3 – Development, production
     and sale of natural gas – Customers.
                                                        8
 ---pagebreak---         Germany no large-scale conversion plants are built, so that based on the existing
        conversion facilities, only a part of the demand can be fulfilled by technically
        converted H-gas. A respondent also mentioned that due to the ongoing reduction
        of physical L-gas supply, the possibility of switching big volumes from H-gas to
        L-gas also appears limited. When using the technical conversion facilities is not
        sufficient to counterbalance market shifts, Market Area Managers have to revert
        to commercial balancing measures.30
(37)    In addition, conversion comes at a cost. Concretely, if a market participant wants
        to convert the gas quality supplied from H-gas to L-gas, a conversion fee is due
        which is currently capped at 0.45 €/MWh. Furthermore, since the revenues from
        the conversion fee do not fully cover the costs for providing physical L-gas, the
        Market Area Managers are entitled to charge a “conversion neutrality charge”.
        While the “conversion fee” is charged only to those market participants that
        actually convert H-gas, the conversion neutrality charge is to be paid by all
        market participants in the respective Market Area.31
(38)    The Commission notes that the above considerations argue in favour of
        distinguishing between L-gas and H-gas for the development, production and sale
        of natural gas.
(39)    In any event, for the purpose of this decision, the exact scope of the product
        market definition can be left open, as the Transaction does not give rise to serious
        doubts irrespective of the exact market definition upheld.
   4.2.2. Geographic market definition
   The Commission’s decision-making practice
(40)    In previous decisions, the Commission has considered that from a demand-side
        perspective the market could potentially be EEA-wide in scope, though from a
        supply-side perspective, due to limited interconnection infrastructure or lack of
        available cross-border capacity, the relevant geographic market might be
        narrower and potentially regional as encompassing several Member States or even
        national in scope.32
   The Notifying Parties’ view
(41)    The Notifying Party considers that the relevant geographic comprises at least the
        EEA, if it is not worldwide, since producers compete with importers, market rules
        are similar and there are sufficient transportation capacities.
30    Replies to questions 4, 5 and 8 of follow-up questionnaire to questionnaire Q3 – Development,
      production and sale of natural gas – Customers. See also NCG General information about the
      conversion mechanism, https://www.net-connect-germany.de/en-gb/Information/Balancing-Group-
      Managers/Gas-Quality-Conversion/Information-Conversion-Mechanism.
31    Replies to questions 4 and 7 of follow-up questionnaire to questionnaire Q3 – Development,
      production and sale of natural gas – Customers.
32    M.6910 Gazprom / Wintershall / Target Companies, para. 86; M.6801 Rosneft/TNK-BP, para. 12;
      M.4545 Statoil/Hydro, paras. 13-16.
                                                      9
 ---pagebreak---    The Commission’s assessment
(42)    The market investigation indicated that while the majority sources on an EEA-
        wide basis, some companies are also only active in some or one Member State. In
        particular in relation to L-gas, some market investigation respondents hinted to
        the existence of a market comprising only L-gas produced in Germany.33
(43)    In any event, for the purpose of this decision the exact scope of the geographic
        market definition can be left open, as the Transaction does not give rise to serious
        doubts as to its compatibility with the internal market even under the narrowest
        plausible market definition, being national.
5.      COMPETITIVE ASSESSMENT
     5.1.    Horizontal non-coordinated effects
   5.1.1. Exploration of crude oil and natural gas
The Notifying Parties’ view
(44)    The Notifying Parties submit that the Transaction will not lead to competition
        concerns in view of their limited combined market shares, as well as the presence
        of strong competitors.34
The Commission’s assessment
(45)    In the course of the market investigation, some concerns were raised in relation to
        the exploration of crude oil and natural gas. The Commission however considers
        that the Transaction does not raise serious doubts with regard to market for oil
        and natural gas exploration based on the following reasons.
(46)    First, the Notifying Parties’ market shares are very limited on a worldwide basis.
        Indeed, LetterOne and BASF respectively achieved a market share of less than [0-
        5]% and [0-5]% in 2017.35 36
(47)    Second, even after the combination of the exploration businesses of the Notifying
        Parties, a competitive constraint […]* to be exerted on Wintershall DEA by
        various competitors including large players such as Saudi Aramco, Total, Shell,
        Exxon Mobil or Gazprom, as well as more regional players.
(48)    Third, the market investigation did not indicate that the Notifying Parties would
        be particularly close competitors of each other. Indeed, the vast majority of
33    Replies to questions 1 and 3 of questionnaire Q3 – Development, production and sale of natural gas
      – Customers.
34    Paras. 346-347 of the Form CO.
35    Table 7 of the Form CO.
36    For the sake of completeness, the Commission notes that even on a narrower Germany-only basis, a
      market definition which is not confirmed by the market investigation, the Notifying Parties achieve
      a combined market share of [10-20]%, not amounting to an affected market (reply to question 2 of
      RFI1 of 4 February 2019).
* Should read: “will continue”
                                                      10
 ---pagebreak---         respondents to the Commission’s market investigation did not consider them
        among each other’s three closest competitors.37
(49)    Fourth, the vast majority of respondents indicated that it would not be more
        difficult to efficiently compete in the market for the exploration of oil and natural
        gas post-transaction;38 and that the Transaction would not have an impact on the
        access to upstream services or input material.39
(50)    Finally, the vast majority of respondents indicated that the Transaction would not
        have an effect on prices or the competitiveness of the oil and gas exploration
        market.
(51)    Therefore, the Commission considers that the Transaction does not raise serious
        doubts as to its compatibility with the internal market with regard to the market
        for exploration of oil and natural gas.
   5.1.2. Development, production and upstream supply of natural gas
The Notifying Parties’ view
(52)    The Notifying Parties submit that the Transaction will not result in competition
        concerns in view of the limited market share increment and the fact that the joint
        venture will face strong competition from several competitors, notably from BEB
        Erdgas und Erdöl GmbH & Co. KG (a joint venture in which each of Exxon
        Mobil and Shell have a 50% share, “BEB”) but also from others such as for
        example Engie E&P.
(53)    Furthermore, there is a significant competitive constraint from importers such as
        Gazprom, as only 5% to 10% of the German demand is covered by local
        production with the rest being covered by imports.
(54)    In addition, wholesalers purchasing natural gas are typically sophisticated
        customers who diversify their procurement and often apply multi-sourcing
        strategies.
The Commission assessment
(55)    The Commission considers that the Transaction does not raise serious doubts with
        regard to market for the development, production and upstream supply of natural
        gas based on the reasons explained in the following paragraphs.
(56)    On an overall market for the development, production and upstream supply of
        natural gas – encompassing both L-gas and H-gas – Wintershall DEA’s market
        shares would be low. On an EEA-wide basis DEA’s market share remains below
        [0-5]% and Wintershall holds a market share of [0-5]%. On a national level, the
        Transaction gives within the EEA rise to an overlap in each of Norway and
        Germany, where the Notifying Parties’ combined market share would be
        respectively [0-5]% and [20-30]%.
37    Replies to question 7 of questionnaire Q1 – Exploration of oil and gas – Competitors.
38    Replies to question 9 of questionnaire Q1 – Exploration of oil and gas – Competitors.
39    Replies to question 10 of questionnaire Q1 – Exploration of oil and gas – Competitors
                                                      11
 ---pagebreak--- (57)   Moreover, at both EEA level and in Norway and Germany, multiple competitors
       exist such as ExxonMobil, Gazprom, PetroChina, BP, Equinor and Total, and as
       explained in paragraph 53 above, in Germany imports play a critical role.
(58)   As regards the narrowest plausible market, that is considering a separate product
       market for each of L-gas and H-gas, the Commission notes that the Notifying
       Parties’ activities only overlap as regards L-gas in Germany. L-gas sold in
       Germany is either produced domestically or imported from the Netherlands. In
       fact, Germany relies heavily on Dutch imports for its L-gas (and that there are no
       exports of L-gas out of Germany).40
(59)   On a market encompassing only local German L-gas production, the Notifying
       Parties’ estimate their combined market share to be [30-40]%, with an increment
       of [10-20]% brought about by BASF. This market share is, however, likely to
       overestimate Wintershall DEA’s competitive position in the market for the
       development, production and sale of L-gas in Germany. Concretely, it appears
       that currently 61.6% of German demand is met by imports from the Netherlands,
       while only 9.3% is satisfied by domestic production; the remaining demand being
       covered from storage capacity and – to a limited extent – physical conversion of
       H-gas to L-gas.41 The proportion of demand to be met by local production is
       expected to remain and even decrease in the coming years.42 If imports from the
       Netherlands are taken into account, Wintershall DEA’s combined market share in
       a market for the development, production and sale of L-gas in Germany would be
       only [5-10]%43.
(60)   Some third parties raised concerns in the course of the market investigation that
       the Transaction would lead to a highly concentrated market. However, whilst the
       Transaction has a concentrative effect (as all mergers do), Wintershall DEA
       would continue to face significant competitive constraints from various strong
       competitors such as BEB, Mobil Erdgas-Erdöl GmbH44 and Vermilion who
       together represent a volume that is higher than Wintershall DEA, in addition to
       importers.45 As such, customers’ ability to multi-source is unlikely to be
       jeopardised.
(61)   Furthermore, L-gas production in Germany is steadily decreasing, accompanied
       by a steady decline of imports into Germany from the Netherlands.46 In reaction,
       a Germany-wide initiative - the “Gas Network Development Plan” - was
       launched. This Gas Network Development Plan sets out the timeline for the
       conversion of the German gas transmission network from L-gas to H-gas until
40   Reply to questions 1 and 2 of RFI 4 of 13 February 2019.
41   See FNB Gas Netzenwicklungsplan Gas 2018-2028, table 24, https://www.fnb-
     gas.de/files/2018 03 29 entwurf nep-gas-2018-2028 1.pdf.
42   Concretely, according to the conversion plan of the German transmission system operator, domestic
     production will be used for 8.5% of German demand in 2018/19, 8.3% in 2019/20 and 8.6% in
     2020/21. See FNB Gas Netzenwicklungsplan Gas 2018-2028, table 24, https://www.fnb-
     gas.de/files/2018 03 29 entwurf nep-gas-2018-2028 1.pdf.
43   As Wintershall’s volumes include also H-gas produced offshore, accounting for roughly about
     […]% of Wintershall’s total natural gas production in Germany, this combined market share might
     be slightly inflated.
44   Mobil Erdgas-Erdöl GmbH is a subsidiary of Exxon Mobil.
45   Reply to question 3 of RFI 4 of 13 February 2019.
46   FNB      Gas      Netzenwicklungsplan     Gas     2018-2028,    Chapter    5,   https://www.fnb-
     gas.de/files/2018 03 29 entwurf nep-gas-2018-2028 1.pdf.
                                                      12
 ---pagebreak---        2030 when L-gas is expected to disappear completely from Germany.47 The Gas
       Network Development Plan provides no indications of a change in the supply-
       side market structure. Even more, it estimates that already as of 2020, the German
       L-gas demand will be lower than the overall L-gas supply in Germany.48
(62)   Therefore, the Commission considers that the Transaction does not raise serious
       doubts as to its compatibility with the internal market with regard to the
       development, production and sale of natural gas whether H-gas and L-gas are
       considered as belonging to the same or separate markets.
6.     CONCLUSION
(63)   For the above reasons, the European Commission has decided not to oppose the
       notified operation and to declare it compatible with the internal market and with
       the EEA Agreement. This decision is adopted in application of Article 6(1)(b) of
       the Merger Regulation and Article 57 of the EEA Agreement.
                                                           For the Commission
                                                           (Signed)
                                                           Margrethe VESTAGER
                                                           Member of the Commission
47   As by 1 October 2029, natural gas will no longer be imported from the Netherlands into Germany
     and by 2030 L-gas will virtually disappear from the Germany. Reply to question 1 of RFI 3 of 11
     February 2018; Monitoring Report 2017 Bundesnetzagentur / Bundeskartellamt, page 322,
     https://www.bundesnetzagentur.de/SharedDocs/Downloads/EN/Areas/ElectricityGas/CollectionCo
     mpanySpecificData/Monitoring/MonitoringReport2017.pdf? blob=publicationFile&v=2.
48   FNB Gas Netzenwicklungsplan Gas 2018-2028, Figure 18 and 20, https://www.fnb-
     gas.de/files/2018 03 29 entwurf nep-gas-2018-2028 1.pdf.
                                                    13