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Guideline Institutionalization: The Role of Merger Guidelines in Antitrust Discourse

机译:指南制度化:合并指南在反托拉斯话语中的作用

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摘要

With the growth of the administrative state, agency-promulgated enforcement policy statements, typically referred to as guidelines, have become ubiquitous in the U.S. federal system. Yet, the actual usage and impact of such guidelines is poorly understood. Often the issuing agencies declare the guidelines to be nonbinding, even for themselves. Notwithstanding this disclaimer, the government, private parties, and even the courts frequently rely on the guidelines in a precedent-like manner. In this Article, Professor Greene examines the evolution of one system of enforcement policy guidelines-the U.S. federal antitrust merger guidelines--and finds that these guidelines have acted as a stealth force on the development of antitrust merger law. The influence of this guideline system, she hypothesizes, emerges from a process of institutionalization through which the guidelines become valued for more than the persuasive power of their ideas. This institutionalization process arguably has had an undue influence upon common law development, as courts have failed to fully engage the legal and economic substance of the guidelines. These findings raise the more general concern that the courts have frequently ceded their role as checks on administrative agency power operating through nonbinding policy statements such as enforcement guidelines. Such questions regarding the judiciaryu27s role in the separation of powers are broadly analogous to those raised by Theodore Lowi regarding Congressu27s role in the legislative process. Professor Greene chronicles the history of the guidelines through a series of case studies involving key elements in merger analysis. Then, based on a review of all rulings from 1969 to 2003 concerning section 7 of the Clayton Act, she generates basic quantitative measures regarding judicial references to the guidelines and then qualitatively assesses the extent to which judicial reference to the guidelines reflects substantive reliance on them. Both the case studies and statistical data provide strong evidence supporting the institutionalization theory. Having raised normative questions regarding guideline institutionalization, she then evaluates several strategies to counter that influence and proposes conduct-oriented recommendations. Though specifics may vary, the unacknowledged phenomenon of guideline institutionalization is not unique to antitrust law. As such, Professor Greene concludes this Article with an examination of guideline institutionalization in other contexts, including the FCC and FERC, state consumer protection, and federal sentencing.
机译:随着行政州的增长,代理机构颁布的强制执行政策声明(通常称为准则)在美国联邦系统中无处不在。然而,人们对这种指导方针的实际使用和影响知之甚少。发行机构通常甚至对本指南都声明该指南不具有约束力。尽管有此免责声明,但政府,私人团体甚至法院经常以类似先例的方式依赖该准则。在本文中,格林教授研究了一种执行政策准则体系的演变-美国联邦反托拉斯合并准则-并发现这些准则已成为反托拉斯合并法发展的隐身力量。她认为,该指导原则体系的影响来自制度化过程,通过该过程,指导方针变得比其思想的说服力更受重视。可以说,这种制度化过程对普通法的发展产生了不适当的影响,因为法院未能充分利用该准则的法律和经济实质。这些发现引起了更普遍的关注,即法院经常通过诸如执行准则之类的不具约束力的政策声明,放弃其作为检查行政机构权力的角色。有关司法机构在三权分立中的作用的此类问题与西奥多·洛维(Theodore Lowi)提出的有关国会在立法程序中的作用的问题大体相似。格林教授通过一系列涉及合并分析中关键要素的案例研究,对准则的历史进行了记载。然后,在对1969年至2003年有关《克莱顿法》第7条的所有裁决进行审查的基础上,她生成了有关司法参考准则的基本定量措施,然后定性评估了司法参考准则反映了对准则的实质性依赖的程度。 。案例研究和统计数据均提供有力的证据支持制度化理论。在提出了有关准则制度化的规范性问题之后,她随后评估了应对这种影响的几种策略,并提出了针对行为的建议。尽管具体细节可能有所不同,但指南制度化这一未被认可的现象并非反托拉斯法所独有。因此,格林教授在本章的结尾处考察了其他情况下的指南制度化,包括FCC和FERC,州消费者保护和联邦量刑。

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