Ofgem proposes a reference to the CMA to investigate the energy market
27 Mar 2014 02:13 PM
- Ofgem proposes the CMA investigates the market to
consider once and for all whether there are further barriers to effective
competition
- Profit increases and recent price rises have intensified
public distrust of suppliers and highlight the need for a market investigation
to clear the air
- Ofgem’s reforms come fully into force from April
to protect consumers and help them get a better energy
deal
- Ofgem will continue to take action to protect consumers
including higher penalties for firms breaking the rules
Ofgem has today acted to remove uncertainty from the
energy market by proposing a market investigation by the Competition and
Markets Authority (CMA). A market investigation will once and for all clear the
air and allow the CMA to ensure that there are no further barriers to effective
competition. An investigation would reassure consumers and complement
Ofgem’s reforms for a simpler, clearer and fairer energy
market.
Today’s State of the Market assessment, prepared
jointly with the Office of Fair Trading (OFT) and CMA, confirms Ofgem’s
previous analysis of why competition is not working as well as it could. As
well as reinforcing concerns about barriers to entry for independent suppliers
and persistent high market shares of the largest energy companies, the report
includes further evidence and shows:
- declining consumer confidence with 43 per cent
distrusting energy companies to be open and transparent. This may deter
consumers from engaging in the market and prevent them from getting a better
deal for their energy
- continuing uncertainty over whether the vertical
integration of the large energy companies is in consumers’
interests
- retail profits increasing from £233 million in
2009 to £1.1 billion in 2012, with no clear evidence of suppliers
becoming more efficient in reducing their own costs, although further evidence
would be required to determine whether firms have had the opportunity to earn
excess profits, and
- suppliers consistently setting higher prices for
consumers who have not switched.
Given these problems Ofgem believes a referral to the
CMA is timely and necessary because:
- CMA’s more extensive powers can address any
long-term structural barriers to competition
- A
market investigation would conclusively determine whether vertical integration
is in consumers’ interests or whether there should be more separation
between the largest companies’ supply businesses and generation
arms
- Ofgem’s reforms for a simpler, clearer, and fairer
market have created a safer space for consumers to shop around for a better
energy deal while a CMA investigation takes place.
- Major change is coming with the roll-out of smart
meters. A CMA investigation will ensure that there are no further barriers that
prevent consumers from making the most of the transformation smart meters will
bring to the energy market.
Dermot Nolan, Ofgem Chief Executive, said: “Ofgem
believes a referral offers the opportunity to once and for all clear the air
and decide if there are any further barriers which are preventing competition
from bearing down as hard as possible on prices.
“The CMA has powers, not available to Ofgem, to
address any structural barriers that would undermine competition. Now consumers
are protected by our simpler, clearer and fairer reforms, we think a market
investigation is in their long-term interests.
“I want to make sure that consumers are put at the
heart of this market, so we will continue to take action to help consumers.
This includes from today putting the industry on notice that any new serious
breach of the rules which comes to light will be likely to attract a higher
penalty from Ofgem. I am determined that energy companies use our reforms to
transform their relationship with consumers.”
Ofgem will continue with a range of projects aimed at
improving competition and maintaining security of supply. We will launch a
consumer engagement campaign to help consumers take advantage of the simpler,
clearer, fairer reforms to get themselves a better energy deal. We are
continuing with our work to increase transparency and have today published our
latest look at retail and wholesale prices for consumers. We have also today
announced that we will substantially increase the level of penalties we impose
for breaches coming to light in the future. We will continue to make timely
changes to protect consumers’ interests, in parallel with any CMA
investigation.
-Ends-
Notes to editors:
1.
The first annual competition assessment has been carried out by Ofgem,
the OFT and the CMA. It analyses the state of competition in the household and
small business markets. You can read the assessment
report on our website.
By
law Ofgem must consult with stakeholders before making a final decision on a
referral to the CMA for investigation. The consultation is available on our
website.
2. The headline findings of the assessment
are:
Weak customer response: Switching
has fallen over recent years. There was a brief spike in late 2013 but no
indication of a permanent increase. Consumer trust has also fallen
significantly: 43% of consumers did not trust energy suppliers to be open and
transparent in their dealings with them in 2013, compared to 39% in the
previous year. This low level of consumer engagement is not consistent
with a competitive market.
Continued evidence of incumbency
advantages: The market shares of the six larger suppliers in gas
and electricity have not changed significantly over time and they all have a
high proportion of customers who never, or rarely engage in the market. They
are able to charge higher prices to these "sticky" customers while
making cheaper deals available to more active customers.
Possible tacit co-ordination: The
assessment has not found evidence of explicit collusion between suppliers.
However, there is evidence of possible tacit coordination reflected in the
timing and size of price announcements and new evidence that prices rise faster
when costs rise than they reduce when costs fall. Although tacit coordination
is not a breach competition law, it reduces competition and worsens outcomes
for consumers.
Vertical integration and barriers to entry and
expansion: The six larger suppliers all own energy infrastructure
such as power stations and supply businesses. This makes it difficult for new
entrants (who don’t own such assets) to compete against them,
particularly in the electricity market. Ofgem’s reforms to open up the
wholesale power market aim to tackle this. However there are wider issues with
vertical integration which need a close review. While the market share of
independent suppliers has grown in the last year to 5 per cent there are
barriers to entry and expansion which may prevent them from posing a disruptive
competitive threat.
Profitability: The average profits
for the six larger suppliers for supply and generation have increased from
£3bn in 2009 to £3.7bn in 2012. The Assessment does not come to a
conclusion as to what is the appropriate profit margin for the industry but
notes the recent increases and questions the suppliers’ contentions that
5% is a fair margin. While the evidence on profitability is not conclusive, the
rise over the last few years allied to no clear evidence of increased
efficiency is indicative of a possible lack of effective
competition.
3. Penalties
Ofgem has today issued a
letter setting out that we will substantially increase the level of
penalties we impose. This decision has been taken to ensure regulatory
compliance is given sufficient focus within businesses and to deliver strong
deterrence. This change will come into effect where evidence of rule breaking
comes to our attention on or after 1 June.
4. Further work by
Ofgem
In
the meantime Ofgem will continue with the range of regulatory projects that we
have in hand aimed at improving competition and maintaining security of supply.
In addition to those mentioned above these include our work to improve the
speed and reliability of switching, our programme of work on third party
intermediaries (brokers, switching sites etc), initiatives to support the most
vulnerable and sticky customers and our support for the smart metering rollout.
To make the energy market clearer for consumers, Ofgem has published a new commentary on recent and
possible future cost trends for energy suppliers. The commentary also estimates
suppliers’ pre-tax margins for supplying gas, electricity and dual
fuel.
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