BALANCING INNOVATION AND REGULATION: ASSESSING INDIAS PROPOSED DIGITAL COMPETITION BILL, 2024 BY - NAVEETH AHAMED M & DR. CHAITRA RANGAPPA BEERANNAVAR
“BALANCING INNOVATION AND
REGULATION: ASSESSING INDIA'S PROPOSED DIGITAL COMPETITION BILL, 2024”
AUTHORED BY - NAVEETH AHAMED M
Student, Christ University Bangalore
CO-AUTHOR - DR. CHAITRA RANGAPPA
BEERANNAVAR
Associate Professor,
Christ University, Bangalore
ABSTRACT
The digital economy worldwide,
especially in India, has seen unprecedented growth in recent years. However,
this growth has also created challenges and exposed the market to new problems
like anti-competitive practices by dominant digital enterprises. In response to
these challenges, a Committee on Digital Competition Law was set up to evaluate
the existing framework and propose a draft Digital Competition framework. The
committee aimed to evaluate the current legal framework regulating competition
and to propose a draft Digital Competition Bill. The bill recommends that the
Competition Act, 2002 has an ex-post approach, and the proposed draft bill aims
to establish an ex-ante approach to address market challenges before they
occur.
This paper analyzes the necessity of
the Draft Digital Competition Bill, 2024. The bill addresses the unique
challenges of the digital market, such as the tendency for enterprises to
monopolize. However, it also raises concerns about its effects on small-scale
enterprises and its alignment with international best practices. Therefore, by
analyzing the scope, enforcement mechanisms of the draft bill, and the
committee's recommendations, this paper critiques whether the proposed
legislation adequately resolves the challenges of the digital economy in
India.
Keywords: Digital
Competition Bill, Anti-Competitive practices, Competition Act, Ex-ante
approach, Monopolization
INTRODUCTION
The digital economy is crucial for
India's growth, changing industries, consumer behavior, and government
processes. This sector expanded significantly between 2011 and 2015, growing
from ?351 billion to ?1,257 billion. More internet users, affordable
smartphones, and new services like UPI and ONDC drove this growth. However, it
also uncovered serious challenges. Big digital companies often use their vast
data and algorithms to limit competition, creating markets dominated by a few
players. The Competition Act 2002, often struggles to address these modern
issues. Its ex-post approach means it usually responds to problems after they
occur, which is inadequate in fast-moving digital markets where a company can
quickly gain a strong position.[1] For
instance, it took the Competition Commission of India over seven years to
address a case about Google's dominance with Android devices, allowing the
company to strengthen its hold. Similar slow responses to cases involving
Amazon and the discount practices of Zomato and Swiggy show the Act's
limitations.
In response to these challenges, the
Ministry of Corporate Affairs (MCA) set up the Committee on Digital Competition
Law (CDCL) in 2023. This committee aims to create rules that prevent
anti-competitive behavior through ex-ante steps. The proposed Digital
Competition Bill, 2024 seeks to identify and regulate Systemically Significant
Digital Enterprises (SSDEs) companies that meet specific financial, user, or
influence thresholds.[2] The bill
suggests introducing rules for platform neutrality, data sharing, and limits on
self-preferencing. While this is a positive step, the strict thresholds could
stifle startups, and concerns about overlapping with existing Competition Act
regulations are potentially confusing. This paper examines how the bill can
balance two critical factors, which are fostering innovation in a fast-evolving
sector and ensuring fair competition.
This paper analyzes whether the
bill's ex-ante approach aligns with India's digital market needs by examining
examples from the EU’s Digital Markets Act (DMA), Germany’s regulatory mix, and
India’s antitrust rules. It also considers other options, like enhancing the
Competition Commission of India’s ability to quickly respond to emerging issues
using faster processes and specialized expertise. Finally, this paper
recommends policymakers, legal experts, and industry players develop a
regulatory framework that supports India’s digital growth while promoting a
competitive and fair marketplace.
HISTORY AND EVOLUTION OF DIGITAL COMPETITION LAWS
After a decade of enforcing the
Competition Act, the Ministry of Corporate Affairs formed the Competition Law
Review Committee to evaluate the law and recommend updates. In its 2019 report,
the committee addressed the rise of digital markets and big data. Still, it was
deemed too soon for the Indian digital economy to make immediate legislative
changes. Instead, it suggested monitoring global trends and their relevance to
India. The committee debated adding factors like data control and network
effects to assess dominance under Section 19(4) but concluded that the existing
framework was flexible enough to include these considerations.
As per the recommendations from the
Competition Law Review Committee to address challenges in digital markets, the
Competition (Amendment) Act, 2023 was introduced. It broadened Section 3 to
cover anti-competitive agreements, including those unique to digital markets.
It also introduced a deal value threshold of 2000 crores for merger
notifications to capture acquisitions of startups that previously escaped
scrutiny due to low asset or turnover values.[3]
Additionally, the amendment expanded the definition of relevant market under
Sections 19(6) and 19(7), factoring elements like the nature of services and
switching costs to reflect the dynamics of digital markets better.
In 2022, the Parliamentary Standing
Committee on Finance presented before the Lok Sabha a Report on
‘Anti-Competitive Practices by Big Tech Companies.’ The Standing Committee
report analyzed the need for the evolution of competition law in the backdrop
of the rapid digitalization of markets.[4]
The report identified ten Anti-competitive practices undertaken by big digital
enterprises to create dominance in the market.
The report also proposed enacting a Digital Competition Act to ensure
market fairness and the creation of a Digital Markets Unit within the CCI to
monitor SIDIs and advise the Ministry of Corporate Affairs on their
designation. As a result, the MCA constituted the Committee on Digital
Competition Law, leading to the Digital Competition Bill 2024.[5]
LEGAL FRAMEWORK AND THE PROPOSED EX-ANTE REGULATION
The Existing Ex-Post Approach
India’s competition law framework is
centered around the Competition Act, 2002, which adopts a predominantly ex-post
(reactive) regulatory model. Under this regime, the Competition Commission of
India (CCI) intervenes after anti-competitive conduct has occurred, relying on
two primary provisions:
? Section 3 prohibits agreements that
cause or are likely to cause an “appreciable adverse effect” on competition.
This includes cartels, bid-rigging, and vertical agreements like exclusive
supply contracts restricting market access. For instance, in XYZ v. Alphabet
Inc. (2022)[6], the CCI
fined Google ?1,337 crore for mandating preferential use of its Google Play
billing system, deeming it an anti-competitive agreement under Section 3.[7]
? Section 4 addresses the abuse of dominant
position, prohibiting practices such as predatory pricing, denial of market
access, and leveraging dominance in one market to enter another. A landmark
example is the CCI’s 2018 ruling against Google for skewing search results to
favor its own services, a violation of Section 4(2)(c).[8]
The Act includes some preventive
measures, mainly through mandatory merger control under Section 5.[9] Mergers
and acquisitions that meet specific financial criteria, like a combined
turnover of ?6,000 crore in India, must get prior approval from the Competition
Commission of India (CCI) to avoid market concentration. The Competition
(Amendment) Act, 2023 added a new requirement for startups, introducing a
deal-value threshold of ?2,000 crore. This means that even high-value digital
companies, such as Flipkart, when acquired by Walmart, are subject to scrutiny,
even if they don't reach the turnover threshold.
However, the reactive approach is
believed to be ineffective in digital markets. Strong network effects and data
control in these markets help dominant players quickly strengthen their
positions. For instance, the CCI's investigation into Amazon for favoring
certain sellers took over three years, when Amazon gained more market control.
The market often becomes too unstable to fix when any fines are imposed. This
reactive method also struggles to define dominance in fast-changing digital
environments, where market lines can blur because of multi-sided platforms and
free services like social media.[10]
The Draft Digital Competition Bill: An Ex-Ante Model
To address these gaps, the Digital
Competition Bill 2024 proposes a shift to an ex-ante framework, preemptively
regulating large digital enterprises designated as Systemically Significant
Digital Enterprises (SSDEs). Key features include:
- SSDE Identification: A twin-test system combines quantitative
thresholds (e.g., ?2,000 crore turnover in India, 10 crore end-users) with
qualitative criteria (e.g., market influence, control over data, and
ecosystem dependency).[11] For
instance, a platform like Flipkart or Zomato could be classified as an
SSDE based on its gross merchandise value (GMV) and user base, even if its
immediate revenue is low.
- Obligations: SSDEs must adhere to platform neutrality (no
self-preferencing), enable interoperability (e.g., allowing third-party
payment gateways), and ensure data portability for users. Non-compliance
triggers penalties up to 10% of global turnover, with daily fines of ?1
lakh for delays in reporting.[12]
- Enhanced Monitoring: The bill mandates the creation of a Digital
Markets Unit (DMU) within the CCI, staffed with tech experts and data
analysts to monitor SSDEs in real-time. The DMU can issue directives, such
as requiring Meta to share anonymized user data with competitors under
fair terms.
Criticisms and Challenges:
- Overregulation of Startups:
Quantitative thresholds risk misclassifying scaling startups like Meesho
or Dunzo as SSDEs, subjecting them to compliance costs that could stifle
innovation.
- Rigidity in Dynamic Markets:
Predefined rules may lag behind technological shifts. For example,
obligations around AI-driven pricing algorithms may become obsolete as new
tools emerge.
- Jurisdictional Overlap: The
bill’s focus on “core digital services” (e.g., e-commerce, search engines)
overlaps with sectoral regulators like TRAI and MEITY, creating potential
conflicts.[13]
The EU’s Digital Markets Act (DMA)
sets a standard, while India’s proposal focuses on financial thresholds instead
of the quality of market power. This approach raises questions about how well
it can adapt. The DMA identifies "gatekeepers" based on their established
dominance. Still, India’s SSDE classification might include too many firms,
similar to the previous MRTP Act, which prioritized firm size over their actual
behavior in the market.[14]
APPROACH ADOPTED BY INTERNATIONAL JURISDICTIONS
European Union
The Committee reviewed the ex-ante
frameworks in the European Union (EU), UK, USA, and other regions. One of the
most important regulations is the Digital Market Act (DMA), 2022 from the EU,
which targets the anti-competitive practices of major digital companies, known
as ‘gatekeepers’ that offer ‘core platform services.’ Previously, the European
Commission fined companies like Google and Amazon for anti-competitive behavior
in digital markets. However, lengthy investigations often allow these large
players to gain an unfair advantage. As a result, the DMA was introduced to
provide ex-ante regulation. The DMA takes a proactive approach to regulating
large digital companies called Gatekeepers. Further, these companies were
selected based on specific qualitative and quantitative criteria.
Gatekeepers are not allowed to engage
in anti-competitive practices like tying and bundling services, prioritizing
their own products, or making it difficult for users to switch to different
services. They must also ensure interoperability, allow effective portability,
and maintain fair terms. If they fail to meet these requirements, the European
Commission can impose fines of up to 10% of their total global revenue.[15] Overall,
the DMA strengthens EU competition law with strict regulations to prevent
anti-competitive behavior in the digital market.
Germany
Germany has made significant
improvements to its rules for digital markets by introducing both Ex-post and
Ex-ante measures. The 10th and 11th Amendments to the Act against Restraint of
Competition (ARC) created an ex-ante regulatory framework aimed at large
digital platforms, known as PSCAMs.[16]
These platforms face several restrictions, including rules against
self-preferencing and anti-competitive practices like tying and bundling. The
Federal Cartel Office (FCO) acts as the monitoring authority. It has been given
the power to implement both behavioral and structural remedies to PSCAMs,
ensuring the effective enforcement of new regulations.[17]
United States
The United States has originally
followed the ex-post enforcement practice to address anti-competitive practices
in digital markets. However, with the rise of powerful digital platforms, there
was a strong movement toward enforcement of ex-ante regulation. Several bills
have been introduced, such as the American Innovation and Choice Online Act,
the Ending Platform Monopolies Act, and the Open App Markets Act, all aimed to
restrict major digital platforms. The government has also initiated
investigations into anti-competitive behaviors by the major tech companies and
issued executive orders to promote competition in the market. Although these
initiatives indicate a significant shift towards ex-ante regulation, the actual
effects of these measures are yet to be seen.
Australia
Like the United States, Australia
also followed the ex-post enforcement to regulate the digital markets. However,
due to the growing power of digital platforms, the country has started
implementing ex-ante measures with the Bargaining Code[18]
and is looking to introduce more regulations based on the findings from the
Digital Platform Services Inquiry (DPSI). The Bargaining Code focuses on
digital platforms that host Australian news content, requiring them to treat
news media businesses fairly. Meanwhile, the DPSI suggests a broader ex-ante
framework, identifying certain anti-competitive behaviors and recommending
specific codes of conduct for certain digital platforms.
Japan
Japan also has mainly used ex-post
enforcement to manage digital markets. Due to the growing impact of digital
platforms, the country has implemented new regulations with the Act on
Improving Transparency and Fairness of Digital Platforms (TFDP Act).[19] This act
targets specific digital platforms, mandating them to be transparent and fair
in their dealings with users. It also addresses concerns like self-preferencing
and data usage. While the TFDP Act is a move toward regulating digital markets,
it mainly focuses on transparency and fairness without placing strict
requirements on how platforms should operate.
IMPLICATIONS OF EX-ANTE REGULATIONS
The introduction of an ex-ante
regulatory framework in India’s Digital Competition Bill, 2024 marks a
significant shift from the usual ex-post enforcement model. This change is
intended to proactively address anti-competitive practices in rapidly changing
digital markets. However, the design and execution of this framework present
various challenges that need careful examination. This analysis looks at the
possible effects of the Bill, placing them within the context of India’s
digital economy and global regulatory developments.
1. Overregulation and the Threat to Innovation
The Bill’s reliance on rigid
quantitative thresholds such as ?2,000 crore in turnover or 10 crore users to
classify Systemically Significant Digital Enterprises (SSDEs) risks
misidentifying high-growth startups as dominant players. For instance, a
platform like Meesho, which operates on thin margins despite a large user base,
could face disproportionate compliance costs under SSDE obligations, diverting
resources from research and development. This critique of the EU’s Digital
Markets Act (DMA), where stringent criteria for “gatekeepers” are argued to
entrench incumbents by burdening new entrants. In India, where startups drive
nearly half of the digital economy’s GDP, overregulation could deter investment
and stifle sectoral dynamism.
2. Inflexibility in Fast-Paced Digital Markets
Digital markets evolve rapidly,
driven by artificial intelligence and blockchain technology advancements. The
Bill’s static obligations, such as platform neutrality and data portability,
may quickly become outdated.[20] For
example, rules targeting self-preferencing in e-commerce could lose relevance
if platforms adopt AI-driven dynamic pricing models. Germany’s hybrid
regulatory approach under its 11th Amendment to the Act Against Restraint of
Competition (ARC) offers a contrast: it empowers regulators to tailor remedies
based on real-time market shifts. India’s framework, however, lacks such
adaptability, risking the application of obsolete rules to emerging
innovations.[21]
3. Jurisdictional Conflicts and Compliance Complexity
The Bill’s focus on “core digital services”
(e.g., e-commerce, search engines) overlaps with mandates of sector-specific
regulators like TRAI (telecom) and MEITY (IT). A platform such as JioMart,
which spans e-commerce and telecom, could face conflicting directives from the
Competition Commission of India (CCI) and TRAI, creating legal ambiguity and
compliance burdens. Australia’s News Media Bargaining Code overcomes this issue
by narrowly targeting news content platforms, a strategy India could adopt to
minimize regulatory fragmentation.
4. Misclassification of Pro-Competitive Practices
Broad criteria under the ex-ante
model risk penalizing benign innovations. In Prachi Agarwal v. UrbanClap
(2021),[22] the CCI
dismissed allegations of market restriction after recognizing UrbanClap’s
quality controls as pro-consumer. Under the Bill’s thresholds, UrbanClap’s user
base alone could trigger SSDE designation, subjecting it to penalties despite
its positive market impact. Similarly, in Harshita Chawla v. WhatsApp (2022),[23] the NCLAT
upheld the optionality of WhatsApp’s payment feature, underscoring how rigid
rules might misinterpret consumer-centric innovations as anti-competitive.
5. Revival of Outdated Regulatory Philosophies
The Bill’s focus on specific
quantitative thresholds reminds us of the now-repealed Monopolies and
Restrictive Trade Practices (MRTP) Act of 1969, which mixed up market size with
anti-competitive behavior. For example, Tata Motors was scrutinized because of
its market share, overlooking consumer benefits. The Competition Act 2002 addressed
this issue by penalizing only those who abuse their dominant position, like in
the case of Google’s search bias in CCI v. Google in 2018. By emphasizing size
rather than behavior, the Bill risks bringing back the faulty “big is bad”
mindset from the MRTP era, which could discourage growth as long as there is no
abuse.
6. Divergence from Global Standards
The EU's Digital Markets Act (DMA)
focuses on qualitative measures, such as ‘entrenched dominance,’ to determine
gatekeepers. In contrast, India's SSDE framework emphasizes financial metrics.
This difference challenges global companies like Amazon and Meta, which manage
conflicting rules in different jurisdictions. A European Centre for
International Political Economy (ECIPE) report in 2023 warns that these
inconsistencies could lead to fragmented global digital governance, making
India a less attractive place for investment.
7. Resource Allocation and Regulatory Trade-Offs
To implement the bill, the
Competition Commission of India (CCI) needs to invest substantially in its
Digital Markets Unit (DMU), including hiring technology experts and data
analysts. However, the CCI is already dealing with a 30% staffing shortage.
Shifting resources to oversee SSDEs may further delay important investigations
into pressing issues like algorithmic collusion or deepfake fraud, which
currently lack clear regulatory guidance.
A PATH FORWARD: MITIGATING RISKS
India's proposed framework in the
Digital Competition Bill, 2024 has potential but needs adjustments to balance
innovation and regulation. A mixed approach using both numbers and qualitative
factors to identify Systemically Significant Digital Enterprises (SSDEs) could
ensure fairness without hindering growth. For example, platforms like Flipkart
should only be classified as SSDEs if they reach certain financial benchmarks
(like a ?2,000 crore turnover) and show signs of market power, such as
controlling seller algorithms or monopolizing consumer data. Similar to the
EU's ‘gatekeeper’ criteria in the Digital Markets Act, this method would help
avoid misclassifying growing startups while addressing real anti-competitive issues.[24] SSDE
classifications should be reviewed every 18 months instead of the suggested
three years, with additional assessments triggered by major changes like AI
developments or new competitors, similar to Germany's biennial reviews under
its competition law to stay current with fast-changing markets.
Exemptions for specific sectors are
essential for supporting new industries. Startups in fast-growing fields like
agri-tech and healthtech are not required to follow SSDE rules for their first
five years or until they reach ?500 crore in revenue. They should also get
incentives like tax breaks to follow fairness standards voluntarily. At the
same time, the Competition Commission of India (CCI) should improve its ability
to handle new problems quickly. Changes to Section 33 of the Competition Act
could allow the CCI to issue quick interim orders in urgent situations, similar
to its fast response in the FHRAI v. MakeMyTrip case[25]
in 2019. Additionally, having a special NCLAT bench focused on digital cases
with experts in tech law would help speed up the legal process.[26]
Regulatory sandboxes can test early
rules for new technologies like AI pricing models to encourage innovation.
Collaboration among policymakers, startups, and academic institutions, such as
IITs, will help ensure that these rules keep up with advancements in Web3 and
AI. It is also important to align regulations globally, matching India’s rules
with the EU’s Digital Markets Act and Australia’s Bargaining Code, making it
easier for multinational companies to comply and prevent conflicting
regulations. In India, a Standing Advisory Committee comprising industry
representatives, civilians, and academians could review the effects of
regulations every six months and suggest changes. Additionally, filling the 30%
staffing gap at the Competition Commission of India (CCI) by allocating the
budget for tech experts and forming partnerships with companies like TCS or
Infosys would improve market oversight. Using this flexible and cooperative
approach, India can protect its growing digital economy while promoting
innovation, potentially serving as a model for other countries in the Global
South.[27]
CONCLUSION
The recent decisions by the
Competition Commission of India suggest that the country's competition law has
the flexibility to handle the challenges of the digital market effectively. The
outdated view that ‘Big is Bad’ can create problems, like lowering incentives,
increasing regulatory costs, and raising barriers for global companies looking
to enter India. This mindset might also hamper innovation for local online
businesses and startups, conflicting with government initiatives like Digital
India. The Committee on Digital Competition Law should have highlighted these
risks in its report. This insight would help lawmakers make better choices when
drafting new laws. The recommendation for new regulations comes after the
government implements the Competition Amendment Act 2023, and the expected
approval of the Digital Personal Data Protection Bill. Both measures aim to
fill regulatory gaps and improve oversight of tech companies in India.
To better manage competition in the
digital sector, there should be an emphasis on advocacy and expert
consultation, including input from data scientists and algorithm specialists.
Establishing a dedicated digital market unit within the Competition Commission
of India could be beneficial. The CCI should promote self-regulation among
digital firms and resort to formal rules only when absolutely necessary. Too
much regulation upfront could hinder innovation and limit our understanding of
the digital economy. The CCI has been addressing new anti-competitive practices
effectively, but a complete rewrite of antitrust laws is not required to adapt
to a changing landscape.[28]
Regulatory bodies often focus on limiting new technology instead of encouraging
it, seeing advancements as more of a threat than an opportunity. Regulation
should support technological advancement rather than obstruct it. While new
laws may sometimes be essential to tackle new challenges, this analysis shows
that the Competition Act can continue to work well with digital markets with
some minor adjustments. Additionally, the Committee on Digital Competition Law
has not fully considered how costly mistakes can arise from a preventive
approach. Thus, a preventive regulatory framework may not be suitable for the
fast-evolving digital market. Finding a balance that fosters technological
growth while preventing anti-competitive practices is crucial.
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Charting the Digital Frontier: Decoding India’s Path to Digital Competition
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(last visited Nov. 14, 2024).
[3] Ananya Reddy,
India’s Digital Competition Bill: A Step Toward Preventing “Killer
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[4]Neha Kapoor, The
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SCH. INDIA REV. 45, 48–52 (2024) (arguing that ex-ante measures align with
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Cambridge Univ. Press 2024).
[7] The Competition Act, 2002, § 3 (India).
[8] The Competition Act, 2002, § 4 (India).
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19, 2023),
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(last visited Nov. 14, 2024).
[11] Prateek Mishra, The
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[12] Rajeshwar Singh & Nandini Rao, Data Portability and Interoperability Under
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[13] Global Antitrust Institute, Ex-Ante Regulation in Emerging Economies: A Policy Brief 7–9
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[14] Id. at 3.
[15] Monalisa
Choudhury & Ankur Madhia, The Future
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[16] Karan Singh et al., Balancing Different Forms of Competition Regulation in the Digital
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[17] Competition Commission of India, Report on Ex-Ante Regulation for Digital Gatekeepers, 12–18 (2024),
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[18] Rahul Mehta & Priya Desai, Ex-Ante Regulation in Digital Markets: Lessons for India from Global
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https://ssrn.com/abstract=4863926.
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[21] Shubham Sharma, Competition
Through Evolution, Not Pre-Selection: A Case Against Ex-Ante Regulations in
India, NLS BLR (July 2, 2024),
https://www.nlsblr.com/post/competition-through-evolution-not-pre-selection-a-case-against-ex-ante-regulations-in-india
(last visited Nov. 14, 2024).
[22] Prachi Agarwal
v. UrbanClap Pvt. Ltd., 2021 INSC 123 (India).
[24] Dhwani Soni, Ex-Ante
Measures to Regulate Competition in the Digital Markets: Analysing the Report
of the Committee on Digital Competition Law, 2024, MANUPATRA ART. (July 19,
2024),
https://articles.manupatra.com/article-details/Ex-Ante-Measures-to-Regulate-Competition-in-the-Digital-Markets-Analysing-the-Report-of-the-Committee-on-Digital-Competition-Law-2024
(last visited Nov. 14, 2024).
[26] Aarav Gupta, Algorithmic
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[27] Id. at 13.
[28] Vikas Kathuria, Assessing
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(last visited Nov. 14, 2024).