The Foreign
The Foreign Investment
Regulation Review
Investment
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Third Edition
Editor
Brian A Facey
Law Business Research
. The Foreign Investment
Regulation Review
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Reproduced with permission from Law Business Research Ltd.
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. The Foreign
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Brian A Facey
Law Business Research Ltd
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. Acknowledgements
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ii
. CONTENTS
Editor’s Preface
��������������������������������������������������������������������������������������������������vii
Brian A Facey
Chapter 1
ARGENTINA�����������������������������������������������������������������������������1
Ricardo V Seeber
Chapter 2
AUSTRIA���������������������������������������������������������������������������������10
Ingo Braun and Philipp Baubin
Chapter 3
BRAZIL������������������������������������������������������������������������������������20
Ricardo Russo and Gabriel Dias Teixeira de Oliveira
Chapter 4
CANADA���������������������������������������������������������������������������������31
Jason Gudofsky, Navin Joneja, Julie Soloway and Cassandra Brown
Chapter 5
CHINA�������������������������������������������������������������������������������������59
Jianwen Huang
Chapter 6
EL SALVADOR������������������������������������������������������������������������72
Diego Martín Menjívar
Chapter 7
FRANCE����������������������������������������������������������������������������������86
Didier Théophile and Olivia Chriqui
Chapter 8
GERMANY������������������������������������������������������������������������������96
Jan Bonhage and Vera Jungkind
Chapter 9
GHANA����������������������������������������������������������������������������������113
Rosa Kudoadzi and Daniel Imadi
Chapter 10
INDIA������������������������������������������������������������������������������������122
Shardul Shroff, Amit Kumar and Ambarish
iii
. Contents
Chapter 11
INDONESIA��������������������������������������������������������������������������138
Theodoor Bakker, Chandrawati Dewi and Gustaaf Reerink
Chapter 12
IRELAND������������������������������������������������������������������������������151
Gina Conheady and Kacey O’Driscoll
Chapter 13
ITALY�������������������������������������������������������������������������������������166
Giuseppe Scassellati-Sforzolini and Francesco Iodice
Chapter 14
JAPAN������������������������������������������������������������������������������������183
Takafumi Uematsu
Chapter 15
NAMIBIA�������������������������������������������������������������������������������196
Axel Stritter
Chapter 16
PAKISTAN�����������������������������������������������������������������������������219
Mujtaba Jamal and Maria Farooq
Chapter 17
PORTUGAL���������������������������������������������������������������������������232
Joaquim Caimoto Duarte, Verónica Martins Mendes,
Miguel Stokes and Hélder Santos Correia
Chapter 18
RUSSIA�����������������������������������������������������������������������������������247
Vassily Rudomino, Ruslana Karimova and Ksenia Tarkhova
Chapter 19
SINGAPORE�������������������������������������������������������������������������259
Abdul Jabbar Bin Karam Din and Lee Xin Mei
Chapter 20
SPAIN�������������������������������������������������������������������������������������272
Edurne Navarro and Alfonso Ventoso
Chapter 21
UNITED KINGDOM�����������������������������������������������������������286
Alex Potter
Chapter 22
UNITED STATES�����������������������������������������������������������������308
Robert Schlossberg and Christine Laciak
iv
. Contents
Chapter 23
VIETNAM�����������������������������������������������������������������������������327
Nguyen Truc Hien And Kevin B Hawkins
Appendix 1
ABOUT THE AUTHORS�����������������������������������������������������343
Appendix 2
CONTRIBUTING LAW FIRMS’ CONTACT DETAILS���361
v
. EDITOR’S PREFACE
I am pleased to present the third edition of The Foreign Investment Regulation Review.
Building on our most recent publication of last year, this edition provides insight into
the national regulatory framework for foreign investment review in major jurisdictions
around the world, as well as an overview of current trends and developments in this field.
Over the past few years, foreign investment has grown to match levels that
were attained during the pre-economic crisis era of the mid-2000s. Relatedly, national
economies have continued their recovery from the global financial crisis; on 19 May 2015,
the Dow Jones Industrial Average reached a new all-time high. Within this environment,
foreign investment often constitutes a source of capital that is key to promoting and
sustaining domestic economic growth. From the perspective of investors, it can represent
an important opportunity to expand into new markets or to implement efficiencyenhancing improvements to a supply chain.
Legislators and regulators operating within
this framework frequently face the challenge of attracting sufficient capital to develop the
local economy while at the same time protecting national interests, including national
security.
The diversity among foreign investment regimes reflects the fact that each nation
has a unique set of goals and priorities to consider. Some countries, such as China and
Saudi Arabia, have recently introduced reforms aimed at attracting greater foreign
investment. At the same time, the experience of jurisdictions such as Canada highlights
that foreign investment review remains a balancing act between attracting foreign capital
and protecting domestic interests in certain sectors of the economy.
One common theme
across jurisdictions is that foreign investment reviews continue to present complex issues
for businesses, regulatory authorities and legal counsel alike.
Both legal practitioners and companies seeking to do business internationally
will benefit by familiarising themselves with the regulatory frameworks outlined in this
treatise. Of particular importance, this edition provides readers with practical guidance
to navigate investments in major jurisdictions by anticipating key timing and substantive
issues. We hope that it allows investors and businesses being acquired to better evaluate
vii
.
Editor’s Preface
and manage risks associated with investments that may be subject to foreign investment
review, ultimately reducing transaction uncertainty and delay.
This edition contains contributions from leading experts practising in 23
jurisdictions around the world. I would like to express my gratitude to each author and
law firm involved in this project for their commitment of both their expertise and time.
Please note that the views expressed in this book are those of the authors, and not
those of their firms, any specific clients, the editor or the publisher.
Brian A Facey
Blake, Cassels & Graydon LLP
Toronto
August 2015
viii
. Chapter 13
ITALY
Giuseppe Scassellati-Sforzolini and Francesco Iodice1
I INTRODUCTION
A 2012 reform of the government ‘golden share’ has for the first time introduced a
comprehensive investment control regime in certain strategic sectors in Italy, which
impacts mainly, although not exclusively, investments by non-EEA2 persons.
The new Italian investment control framework is set forth in Decree Law No.
21 of 15 March 2012, as amended and ratified by Law No. 56 of 11 May 2012 (the
Law).
The Law grants the government certain special powers to veto or condition the
purchase of interests in the share capital of, or the implementation of certain extraordinary
transactions by, Italian companies active in the fields of defence and national security, or
energy, transport and communications.
Although in recent years Italy has ranked behind certain significantly smaller
economies in terms of the value of the net inflows of foreign direct investments,3 such
investments represent an essential part of the Italian economy (according to World Bank
research, in 2013, foreign direct investments amounted to US$13.1 billion).4 Whether the
new investment control regime has had a deterrent effect or, on the contrary, has resulted in
1
2
3
4
Giuseppe Scassellati-Sforzolini is a partner and Francesco Iodice is an associate at Cleary
Gottlieb Steen & Hamilton LLP.
The European Economic Area (EEA) comprises the 28 Member States of the European
Union, Iceland, Liechtenstein and Norway.
Defined by the World Bank as the ‘net inflows of investment to acquire a lasting management
interest (10 per cent or more of voting stock) in an enterprise operating in an economy other
than that of the investor. It is the sum of equity capital, reinvestment of earnings, other
long-term capital and short-term capital as shown in the balance of payments’.
Data available at http://data.worldbank.org/indicator/BX.KLT.DINV.CD.WD.
166
. Italy
attracting new capital through a more transparent framework for the exercise of investment
oversight is still somewhat unclear, given the relatively short time this new regime has
been in force for and the few known cases the government has exercised its powers
to date. The impact of the reform upon future investments will therefore continue to
depend on how the government applies its powers in practice.
Foreign investments in Italy have traditionally involved a wide set of targets, from
manufacturing industries to infrastructure. Headline transactions in the past two years
involving potentially sensitive sectors include:
a
the 2013 acquisition of the aero-engine business of Avio SpA (an aviation group)
by US conglomerate General Electric;
b
the 2013 acquisition of a further indirect equity interest in Telecom Italia SpA
(the incumbent Italian telecom company) by Telefónica SA (the Spanish telecom
company);
c
the 2014 acquisition of control of Piaggio Aero Industries SpA (an aerospace
manufacturing company) by Mubadala Development Company (an Abu Dhabi
investment company);
d
the 2014 acquisition of a relevant minority interest in CdP Reti Srl (the Italian
state-controlled holding company owning a controlling interest in Terna SpA and
Snam SpA, which own and operate, respectively, the Italian electricity grid and gas
transport infrastructure) by State Grid Europe Limited (a subsidiary of State Grid
Corporation China, a Chinese state-owned electric utilities company);
e
the 2014 acquisition of control over Società Aeroporto Toscano (S.A.T.) Galileo
Galilei SpA (the company operating the Pisa airport) and Aeroporto di Firenze SpA
(the company operating the Florence airport) by Corporación América Italia Srl (a
subsidiary of Corporación América SA, the Argentine infrastructure company);
f
the 2014 initial public offering of Raiway SpA (the company owning and operating the
signal and broadcasting network of Rai SpA, the Italian public broadcasting company);
g
the 2015 acquisition of the telecommunication tower business unit of Wind
Telecomunicazioni SpA (the Italian telecom company) by Abertis Infraestructuras
SA (the Spanish conglomerate); and
h
the 2015 envisaged initial public offering of INWIT SpA (the company operating
the wireless tower network of Telecom Italia SpA).
II
FOREIGN INVESTMENT REGIME
As a general rule, investments in Italian companies active in the fields of defence and
national security, or energy, transport and communications, are subject to a prior review
procedure, as a result of which the government may exercise certain special powers that,
depending on the target, may be more or less stringent.
The government will determine periodically which assets are subject to the
investment regime set forth in the Law. Indeed, as a condition for the Law to become
effective, the government is required to identify:
a
activities deemed strategic for the defence and national security system (strategic
security activities); and
167
.
Italy
b
networks, plants, assets and relationships deemed strategic for the national interest
in the fields of energy, transportation and communications (strategic assets).
The government may exercise its special powers under the Law exclusively with respect
to companies performing any strategic security activities or holding any strategic assets.
Accordingly, in principle, foreign investments in any other sector are not subject
to any further general limitation or prior review apart from the general reciprocity
rules (see Section II.iii, infra) and any applicable antitrust clearance.5 However, certain
sector-specific regulatory authorisations may be necessary (see Section II.iv, infra).
i
Defence and national security
The review procedure and the government’s special powers relating to investments in a company
performing a strategic security activity are particularly strict and apply to investments made by
any person, regardless of nationality (i.e., including EEA persons or entities).
5
Pursuant to Article 16 of Law No. 287 of 10 October 1990 (Italian Antitrust Act),
notification of acquisitions and other concentration transactions must be made to the Italian
Antitrust Authority prior to closing when the aggregate turnover produced at the domestic
level by the target and the acquirer and the turnover produced at the domestic level by the
target exceed certain thresholds, which are periodically updated by the Italian Antitrust
Authority (in 2015, €492 million and €49 million, respectively). However, in the event that
the concentration meets the requirements set out in EU Regulation No. 139/2004 (both in
terms of thresholds and cross-border effects of the transaction), notification of the transaction
must be made instead to the European Commission.
168
.
Italy
The strategic security activities are currently identified by Prime Minister Decree
No. 108 of 6 June 2014 (2014 Decree),6 which include activities falling within the remit
of the Ministry of Defence7 and the Ministry of Interior.8
6
7
The 2014 Decree was published in the Italian Official Journal of 31 July 2014.
In particular, such activities are defined as the study, research, design, development,
production, integration and support to the life cycle (including logistics) of:
a
t
he following systems and materials, as further specified in the 2014 Decree: command,
control, computer and information (C4I) systems; advanced detectors integrated in C4I
networks; manned and unmanned systems that are suitable to oppose improvised explosive
devices; advanced weapon systems, integrated into C4I networks, which are indispensable
to ensure an advantage margin on possible adversaries and therefore aimed at the security
and effectiveness of operations; advanced aeronautical systems provided with advanced
detectors integrated into the C4I networks; and aerospace and military navy propulsion
systems ensuring high performances and reliability; and
b ertain specific technologies: stealth technologies; nanotechnologies; technologies for
c
high thermal degree composite materials; meta-materials technologies; and design and
production of frequency selective surfaces (FSS) or materials (radar-absorbent materials;
FSS radome materials; high thermal degree materials applied to produce space, aeronautical
or nuclear engines; materials to produce satellites, space shields or parts of weapons,
including launchers; and materials for the abatement of infrared or acoustic traces).
8
The strategic security activities over which the Ministry of Interior has jurisdiction have
been defined by the 2014 Decree as the study, research, design, development, production,
integration and support to the life cycle (including logistics) of:
a
systems and sensors to be used for observation purposes (optic and radar), monitoring
and control of the territory, in the context of the tasks of protection of public security,
public rescue and civil defence; observation systems (optic and radar) for the monitoring
and control of territory installed in aircraft, boat units, and amphibious and land vehicles;
propulsion systems, power transmissions and remote-command transmissions that are
ancillary to high-performance and fidelity air and navy engines relating to aircraft and
boat units to be used in observation tasks (optic and radar), monitoring and control
of territory; ballistic protection systems; and information and communication systems
(including satellites) as well as systems for the collection, classification and management
of information and data developed and used for civil defence protection purposes; and
b rivate virtual networks used by public administrations that are in charge of public
p
security, public rescue, civil defence, justice and international relationships; telecom
networks owned by the Ministry of Interior to be used in the context of tasks of
protection of public security, public rescue and civil defence; connections used exclusively
to establish and ensure the functioning of inter-police networks used by police forces and
the Ministry of Defence; systems (including cryptosystems) and related algorithms used
to elaborate, protect and transmit classified information on a secure basis; the Ministry of
Interior’s real-time monitoring of radioactivity; and information systems used to collect,
classify and manage information and data, including when provided by police forces, in
the context of implementing directives issued by the Ministry of Interior exercising its
169
. Italy
With respect to companies performing any such strategic security activity (or
holding any such asset), in the event that fundamental interests of national defence or
security could be materially affected, the government may:
a
impose specific conditions (relating to the security of procurement and
information, the transfer of technologies and export controls) on the purchase of
an interest in any such company;
b
veto the purchase by any person (whether directly or indirectly, individually or
jointly), other than the Italian state or state-controlled entities, of an interest in
the voting share capital of any such company that, given its size, may jeopardise
defence or national security interests;9 or
c
veto the adoption of resolutions by such company’s shareholders or board of
directors relating to certain extraordinary transactions (such as mergers, demergers,
assets disposals, winding-up and amendments concerning the corporate purpose
or equity ownership caps in the by-laws of certain state-controlled companies,10
or relating to the transfer of ownership or other rights on assets or the creation of
encumbrances on assets).
ii
Energy, transport and communications
The investment regime relating to strategic assets in these fields is less burdensome than
that applicable to defence and national security. Not only is the scope of the government’s
special powers more limited and subject to more significant conditions, but the overall
regime applies to investments made by non-EEA persons.11
The government identified these strategic assets by means of the Decree of the
President of the Republic No. 85 of 25 March 2014 (2014 Regulation). This Regulation
identifies certain energy, transport and communications infrastructures (such as the
9
10
11
powers as a national public security authority, or when developed and used to prevent or
prosecute crimes against public security, border controls and clandestine immigration.
In which case the buyer may not exercise any rights other than the economic rights attached
to the shares, and must dispose of the shares within one year.
Pursuant to Article 3 of Decree Law No.
332 of 31 May 1994 (as amended and ratified by
Law No. 474 of 30 July 1994), the by-laws of state-controlled companies active in the fields
of defence and national security may provide for ownership caps of up to 5 per cent of their
share capital. Any persons holding any interest in excess of such threshold may not exercise
voting rights relating to their exceeding portion of the shares.
Such clauses may not be
amended for three years following their introduction. However, the ownership cap does not
apply in the event that such threshold is exceeded as a result of a tender offer, provided that
tenders amount to at least 75 per cent of the voting share capital.
Non-EEA persons are defined by the Law as any individual or entity that is not resident, is
not domiciled, and does not have its registered office, headquarters or centre of main interest
in any EU or EEA Member State, nor is it established therein.
170
. Italy
national electricity grid, the telecom fixed line and gas transport networks), but not the
relevant service providers12 (i.e., those entities authorised to provide the related services).13
Investments in a company holding any such strategic asset are subject to prior
review by the government, which as a result may:
a
veto any resolution or transaction by a company holding any strategic asset that
would result in a change of ownership or control of such asset, provided that such
change of ownership or control could cause an exceptional situation where the
public interest relating to the safety and operation of any strategic asset could be
materially jeopardised, and such exceptional situation is not addressed by any
relevant domestic or European legal provision;14 and
b
condition the purchase by any non-EEA person of a controlling interest (whether
individually or jointly) in a company holding any strategic asset on such investor
undertaking certain commitments aimed at protecting the above-mentioned
public interests. The government may even veto such transactions in the event that
the acquisition raises an exceptional threat of a material prejudice to such public
interests (which cannot be addressed by commitments undertaken by the investor).
Based on a possible reading of the government regulation dated 25 March 2014, No.
86 (which governs the review process),15 the government could exercise its special
12
In certain fields (such as gas and electricity), however, the law requires the operation of the
network and provision of the related services to be carried out by the same company. It
follows that, in practice, cases of acquisition of any such service providers will be subject to
the government’s special powers outlined below.
13
In particular, the following strategic assets have been identified:
a
t
he energy networks of national interest and the underlying contract relationships
(including the national network for the transport of natural gas, the related compression
and dispatching centres and gas storage facilities; the infrastructures for the supply of gas
from non-EU countries, and the onshore and offshore regasification plants; the national
network for the transmission of electricity and the relevant control and dispatching centres;
and the operations related to use of the above-mentioned networks and infrastructures);
b
l
arge transport networks and facilities of national interest, which also ensure the main
trans-European connections, including ports and airports of national interest and the rail
network relevant to the trans-European rail networks; and
c telecom networks and the public telecom network ensuring connection of end-users
d
edicated
to the metropolitan area telecom network, services routers, long-distance telecom networks,
and the telecom facilities utilised to provide the universal telecom service to end-users, as well
as broad and ultra-broadband services, and the related contractual relationships.
14
The 2014 Regulation clarifies that government powers may be exercised only insofar as the
essential interests of the state (including a suitable infrastructural development) are not
sufficiently protected by a specific sector regulation (including pursuant to a contract related
to a specific administrative permit).
15
In particular, pursuant to Article 6, ‘the proposal to exercise the special powers under Article
2, paragraphs 3 and 4, of the Law, is adopted vis à vis EEA and non-EEA persons, while the
171
. Italy
powers under letter a) above (i.e., in respect of a relevant resolution adopted or a
transaction carried out by an Italian company holding a strategic asset) regardless of
the nationality of the investor, provided that such resolution or transaction results in
a change of ownership or control of the strategic asset. By contrast, an investment in
the share capital of the company holding the strategic asset would be subject to the
government’s special powers only when the investor is a non-EEA person. However, this
literal interpretation of the mentioned regulation would not appear consistent with the
overall regime applicable to the field of energy, transport and communications – where
the government’s intervention must be more limited in light of EU law principles – and
would discriminate an investor acquiring a strategic asset vis à vis an investor acquiring a
controlling interest in a company owning a strategic asset.
iii Reciprocity
Pursuant to a general principle of Italian law,16 foreign persons (whether individuals or
entities) are allowed to exercise any civil law right exclusively insofar as the reciprocity
principle is complied with. In other words, in the event that an Italian citizen is prevented
from exercising a specific right in the country of origin of the relevant foreign person, Italian
law in turn prevents that foreign person from exercising the same right in Italy.
Although
the scope of this principle is very wide, in the context of foreign investments it seems to
have been applied, in practice, exclusively to the purchase of real estate or the incorporation
of a company, but not to the acquisition of an equity interest in a pre-existing company.
The reciprocity principle is specifically restated in the Law, resulting in a significant
limitation of the scope of the government’s powers: the purchase by a non-EEA person of
an interest in a company exercising any strategic security activity or holding any strategic
asset is permitted exclusively on the basis of reciprocity conditions. This implies that, in
the event that the government ascertains that there is lack of reciprocity between Italy
and the country of origin of the prospective investor, implementation of the transaction
may not be permitted, regardless of any further consideration (including the economic
desirability of such foreign investment and the absence of any significant prejudice to
strategic interests).17
proposal to exercise the special powers under Article 2, paragraph 6, of the Law, is adopted
only vis à vis non-EEA persons.’
16
Article 16 of the General Provisions on Law, attached to the Civil Code of 1942. Among
EEA Member States, however, the reciprocity principle is overridden by the Treaty on the
Functioning of the European Union and the Treaty on the European Economic Area, as well
as by bilateral treaties (BITs) with non-EEA countries to which Italy is a party (for instance,
the BIT between Italy and the US).
The Ministry of Foreign Affairs maintains a list of the BITs
currently in force between Italy and other countries, specifying in which cases reciprocity has
been ascertained: www.esteri.it/mae/it/ministero/servizi/stranieri/elenco_paesi.html.
17 This provision can be contrasted with Article 25, paragraph 2 of the Italian Antitrust Act,
pursuant to which the Prime Minister, on grounds of essential national economic reasons,
may veto any concentration transaction notified to the Italian Antitrust Authority by a
company from a country that does not protect the independence of companies through legal
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. Italy
Finally, a reciprocity principle also applies to takeover bids on Italian companies
whose voting shares are listed on an Italian regulated exchange. Generally, the passivity
rule18 and breakthrough rule19 apply to prevent pre-bid or post-bid defences from
undermining the success of a tender offer. However, in the event that the bidder would
not be subject to equivalent limitations, the target company (or its shareholders) may
apply the relevant defences.20 In other words, should the foreign bidder, in its capacity as
target of a tender offer, be permitted by its domestic law to frustrate a tender offer, the
Italian target (or its shareholders) may apply any pre-bid or post-bid defence provided
under the target’s by-laws or shareholders’ agreements.
iv
Sector-specific authorisations
As previously mentioned, depending on the investment target, foreign investments
may be subject to specific additional review or authorisation processes conducted by
sector-specific regulators.
The sectors where such obligations may be required include:
a
banking and investment services;21
provisions equivalent to the Italian Antitrust Act, or applies discriminatory rules or imposes
conditions resulting in the same effects on acquisitions by Italian investors.
18 Pursuant to Article 104 of Legislative Decree No. 58 of 24 February 1998 (Italian Securities
Act), from the date of announcement of a takeover bid, directors of the target may not adopt
any measure that could undermine the achievement of the offer’s goals, unless authorised to
do so by a shareholders’ meeting or empowered to do so under the target’s by-laws.
19
Pursuant to Article 104-bis of the Italian Securities Act, during the tender offer period any
transfer restriction set out in the target’s by-laws, or voting limitations set out in the target’s
by-laws or in a shareholders’ agreement, are not effective in relation to the bidder.
20 Article 104-ter of the Italian Securities Act.
Within 20 days of the bidder launching its tender
offer, the bidder or the target company may ask CONSOB (the Italian securities and exchange
authority) to determine whether the bidder would be subject to equivalent limitations.
21
Pursuant to (1) Directive 2013/36/EU of 26 June 2013 on access to the activity of credit
institutions and the prudential supervision of credit institutions and investment firms; (2) Directive
2004/39/EC of 21 April 2004 on markets in financial instruments (as amended by Directive
2007/44/EC of 5 September 2007 on the acquisition of shares); and (3) Directive 2009/138/
EC of 25 November 2009 on the taking-up and pursuit of the business of insurance and
reinsurance (Solvency II) as implemented in Italy by, respectively, (1) Article 19 of Legislative
Decree No. 385 of 1 September 1993 (Italian Banking Act), (2) Article 15 of the Italian Securities
Act, and (3) Article 68 of Legislative Decree No. 209 of 7 September 2005 (Italian Insurance Act)
and implementing regulations, a notification must be made to the competent authority (the Bank
of Italy for banks and investment companies; IVASS for insurance or reinsurance companies) of any
proposed acquisition of a share interest in a bank or an investment services firm that:
a to at least 10 per cent of the target’s share capital;
i
s equal
b enable the acquirer to exercise a significant influence on the target; or
w
ould
c control over the target.
g
rants
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Italy
b
c
d
e
telecommunications;22
broadcasting;23
gas networks;24 and
electricity networks.25
The competent authority shall authorise the acquisition after assessing certain factors, including
the reputation and financial soundness of the investor, and the ability of the target, following
the acquisition, to comply with its obligations under the applicable’s supervisory regime.
22
Pursuant to Article 25 of Legislative Decree No. 259 of 1 August 2003 (Code of Electronic
Communications), the supply of the network or electronic communication services must
be authorised in advance by the Italian Ministry of Economic Development, which assesses
whether the provider meets the necessary requirements. In the event that the authorised
person intends to transfer such general authorisation to any third party (whether foreign or
domestic), it must send prior notice to the Ministry, which may withdraw its authorisation
in the event that it ascertains that the prospective transferee does not meet the necessary
requirements. In addition, pursuant to Article 50-ter, paragraph 4, of the Code of Electronic
Communications, in the event that the company designated to provide the universal telecom
service intends to dispose of a substantial part or all of its local access network assets to a
third party, it must inform the Communications Authority in advance to allow the Authority
to assess the effects of the transaction on the provision of fixed access lines and telephone
services.
As a result, the regulatory authority may impose, amend or withdraw specific
obligations applicable to the designated company.
23
As a general rule, under Article 1, paragraph 6, letter (c), No. 13 of Law No. 249 of
31 July 1997, the Communications Authority is empowered to authorise the acquisition of a
company performing radio-television broadcasting activities.
In particular, pursuant to Article
43 of Legislative Decree No. 177 of 31 July 2005, notification of concentration transactions
must be made in advance to the Communications Authority, which ascertains whether such
transaction may result in anti-competitive effects (including in respect of media pluralism).
Such notification is additional to the obligation to give notification of the same transaction
to the Italian Antitrust Authority or the European Commission in the event that it meets the
relevant requirements (see footnote 5).
24 For example, pursuant to Article 9 of Legislative Decree No. 93 of 1 June 2011 (which
implements EU Directive 2009/73/EC in Italy), a gas transmission system operator (gTSO)
must be certified by the Italian Energy Authority to be compliant with one of the ownership
unbundling models envisaged thereunder.
While this provision applies to both Italian and
foreign gTSOs, additional requirements apply in the event that the gTSO is not an EU national.
Pursuant to Article 9 (implementing Article 11 of Directive 2009/73/EC), the Minister of
Economic Development must set the criteria that apply to the above-mentioned certification
when a non-EU person acquires control of the network. This decree, which has not yet been
adopted, will ensure that the issuance of the certification does not jeopardise the security of
energy procurement of Italy and the EU, or compliance with the international obligations.
25
Pursuant to Article 36 of Legislative Decree No. 93 of 1 June 2011 (which also implements
EU Directive 2009/72 in Italy), the electricity transmission operator (currently, Terna SpA
(eTSO)) must be certified by the Italian Energy Authority as compliant with the applicable
ownership unbundling model envisaged thereunder.
While this provision applies to
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Moreover, in certain fields the law sets limits on the acquisition of controlling interests by
non-EU persons (for instance, as regards airline companies26 and television broadcasters27).
III
TYPICAL TRANSACTIONAL STRUCTURES
Although no specific requirement is set under Italian law, typically, although not
exclusively, foreign investments in Italy are carried out through an Italian or EEA
corporate vehicle, depending on a number of factors (including tax considerations).
In theory, investing through an Italian or EEA company might also be considered
for the purposes of complying with the above-mentioned reciprocity principles or to fall
outside the scope of the government’s review powers regarding strategic assets. However,
if the ultimate foreign investor originates from a non-EEA country, such a structure may
be insufficient in the event that the intermediate EEA company does not qualify as an
EEA person for the purposes of the Law.28
Foreign investments may be implemented through the acquisition of an equity
interest in an Italian target, either individually or through a corporate or contractual
joint venture with an Italian or other person. Provisions of Italian company law may
be relevant to certain agreements between the foreign investor and other shareholders
or joint venture partners, such as limitations on the term of shareholders’ agreements29
or the obligation to launch a tender offer in cases of acquisition effected while acting in
concert.30
26
27
28
29
30
both Italian and foreign companies intending to acquire the eTSO, in the event that this
acquisition were to be carried out by a non-EU national, additional requirements would
apply. In particular, Article 36 also requires that the Minister of Economic Development set
out the criteria that apply to the above-mentioned certification in the event that a non-EU
person acquires the control of Terna SpA.
This decree, which has not yet been adopted,
will ensure that the issuance of certification does not jeopardise the security of energy
procurement of Italy and the EU, or compliance with international obligations.
Pursuant to Article 4 of EU Regulation No. 2407/1992, an EU airline company must be owned
directly or through majority ownership by EU Member States or nationals of EU Member
States, or both, and must at all times be effectively controlled by such states or nationals.
Pursuant to Article 3 of Law No. 249 of 31 July 1997, the authorisations relating to private
radio-television broadcasting may be granted exclusively to Italian or EU persons, while non-EU
persons may acquire control of such companies exclusively upon reciprocity conditions.
See footnote 11.
As a general rule, the term of a shareholders’ agreement relating to an Italian joint stock
company (Article 2341-bis of the Italian Civil Code) may not exceed five years (three in the
case of a listed company or its parent, pursuant to Article 123 of the Italian Securities Act).
As a general rule, the acquisition of an equity interest in a listed company in excess of 25 per
cent of the share capital (30 per cent in the case of small and medium-sized enterprises)
triggers a mandatory tender offer.
The same applies in the event that such threshold is
exceeded, in the aggregate, as a result of the acquisitions made by two or more persons who
are parties to a shareholders’ agreement relating to the target company or its parent.
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No notable difference is established between a share purchase and an asset
purchase deal by a foreign investor. With specific regard to the scope of the foreign
investments review under the Law, the definition of strategic security activities or
strategic assets is wide enough to trigger the application of the relevant provisions both
in cases of acquisition of an equity interest and in those of ownership of a relevant asset
(although, as noted, in case of strategic assets, the regime would appear to be tighter
in case the investor seeks to acquire the asset, as opposed to gaining the control of a
company owning such asset). Likewise, the general reciprocity principle applies to both
categories of transaction.
IV
REVIEW PROCEDURE
Notification of foreign investments falling within the scope of the government’s special
powers outlined in Section II, supra, must be made in advance to the government.
The general rules of the review procedure are set forth in the Law, with implementing
provisions spelled out in two government regulations, dated 19 February 2014 (relating
to defence and national security) and 25 March 2014 (relating to energy, transport and
communications) and in a subsequent Prime Minister decree dated 6 August 2014.
i Process
The Law requires that the following be filed31 with the government:
a
notification of any relevant resolutions adopted, or transactions carried out, by
a company exercising any strategic security activity or holding any strategic asset
within 10 days and in any event prior to their implementation;32 and
b
notification of any purchase of interests in any company exercising any strategic
security activity or holding any strategic asset within 10 days of the acquisition.33
Purchases of equity interests in a listed company active in the fields of defence or
national security trigger the notification obligation if they exceed the thresholds
of 2, 3, 5, 10, 20 or 25 per cent.
The notification of the resolutions or transactions must be made through ad hoc forms
issued by the government34 and filed by means of certified e-mail.
31
32
33
34
The notice to the government does not trigger disclosure obligations concerning material
non-public information under market abuse rules.
The notification must include the minutes of the resolution and all documents provided to
the members of the relevant corporate bodies, as well as any further information that may be
necessary for the government to complete its assessment.
The notification must include the business plan pursued by the investor through the proposed
acquisition, the related financial plan, a detailed description of the investor, and any further
information that may be necessary for the government to complete its assessment.
The form was adopted by means of a Decree of the Secretary General of the Presidency of the
Council of Ministers on 18 February 2015, and is available at: www.governo.it/Presidenza/
DICA/6_EVIDENZA/golden_power/DSG180215%20_modulistica_golden_power.pdf.
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The review procedure is coordinated by the Department of Administrative
Coordination (a specific government office),35 which is assisted by a coordination group
composed of representatives of the ministries involved in the review procedure and, where
necessary, members of other bodies (including private organisations) whose competence
is required for a deeper understanding of the issues and interests.
Upon receipt of the notification, a standstill period of 15 business days begins,36
during which the ministry in charge of the initial assessment carries out its review of the
proposed investment or resolution and, taking into account the work of the coordination
group, formulates a proposal to the Presidency of the Council of Ministers (and a draft
of the related government decree).
The subsequent decree whereby the government exercises its special powers
must specify the conditions or requirements imposed on the investor, the criteria and
mechanics for monitoring compliance with the foregoing (including by identifying the
specific administration) and the penalties applying in cases of infringements.
Until completion of the review procedure, voting rights37 attached to the acquired
interest are suspended.
Moreover, during the review, no specific procedural standing or right of the parties
involved in the transaction are expressly provided for by the Law (except for limiting the
application of standard transparency rules to the proceedings).38 However, it is reasonable
to expect that sound cooperation between the government and the notifying party may
become standard practice, perhaps involving preliminary discussions prior to sending
the formal notification, in order to allow the government to conduct its review properly
and to make an informed decision by the statutory deadline.39 The first practical cases of
35
36
37
38
39
Said Department, following a meeting with the coordination group, assigns the review of
the notification to a corresponding office within the Ministry of Economy, if the relevant
company is controlled by such Ministry; otherwise, the process is entrusted to the Ministry
of Defence, the Ministry of the Interior, the Ministry of Economic Development or the
Ministry of Infrastructures, depending on the specific circumstances (mainly depending on
which Ministry is competent for the field the relevant company belongs in).
This term may be extended only once for a period of 10 business days, in the event that the
government requests additional information.
Such rights are also suspended in the event that the purchaser does not comply with the
conditions or commitments imposed by the government, and for as long as such failure to
comply persists.
In particular, pursuant to the general rule set forth in Law No. 241 of 7 August 1990, any
person who holds a qualified interest in administrative proceedings can obtain access to and
make copies of the administrative documentation. However, such general right to access
does not apply with respect to the information and data contained in the documents filed in
the context of the review procedure instrumental to the exercise of the government’s special
powers under the Law.
Likewise, no specific coordination is established between the government’s review and any
other clearance process that may be required in respect of the same transaction (e.g., antitrust),
therefore the parties must submit various applications in order for the transaction to be cleared.
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. Italy
notification under the Law indeed seem to suggest that such was the approach followed
by the applicants.40
In any event, should the government elect not to (or should it fail to) exercise
its powers by the end of the standstill period (which can be extended), the proposed
transaction may be legitimately carried out.41
As previously mentioned, the government’s decisions must be adopted by a decree
of the Prime Minister; the decree may be appealed only to the Administrative Court
of Rome. In the event of non-compliance with the government’s decisions, the related
transactions are null and void, and the perpetrators are subject to administrative fines
equal to twice the value of the transactions.42
ii Criteria
In an attempt to address the criticism expressed by the European Court of Justice in
its 2009 judgment concerning the previous ‘golden share’ regime,43 the Law establishes
certain specific objective criteria that the government must take into account as a
condition to exercise its special powers.
In particular, in the context of the foregoing review procedure, the government
must assess, inter alia:
a
as regards companies exercising any strategic security activity, whether the
economic, financial, technical and organisational characteristics of the
40
41
42
43
Based on the preamble of the Prime Minister Decree of 6 June 2013 – whereby the
government exercised its special powers in relation to the acquisition by General Electric of
the aero-engine business of Avio SpA – we understand that prior to the official notification
by General Electric, dated 20 May 2013, the investor and the government had engaged in
preliminary discussions documented by certain initial notices with which General Electric
confirmed its availability to accept the conditions that the government would potentially
impose on the completion of the acquisition.
The Law empowers the government to determine which intra-group transactions are
not subject to the possible exercise of special powers. Pursuant to the 2014 Decree and
2014 Regulation, certain intra-group transactions (such as mergers, demergers, divestitures,
and the creation or transfer of security interests) are not subject to the special government
powers. However, prior notification to the government of such intra-group transactions is
required.
Further, the mentioned government measures provide that such exemption does
not apply in the event that the available information indicates a threat of serious harm to
the fundamental interests of defence and national security, to public interests relating to the
security and functioning of the networks and facilities, or to continuity in procurements.
The fine shall be at least 1 per cent of the turnover resulting from the latest financial statements.
Case C-326/2007, Commission v. Italy. The Court held that the criteria (listed in the Prime
Minister Decree of 10 June 2004) that the government was to consider prior to exercising its
then ‘golden share’ powers (set out under Decree Law No.
332 of 31 May 1994) breached
the EU proportionality principle, as ‘the Decree of 2004 contains no details of the actual
circumstances in which the power of veto may be exercised, and the criteria it lays down are
not, therefore, based on objective verifiable conditions’.
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b
c
V
prospective investor (including consideration of any financing conditions), as
well as its business plan, are suitable to carry on the business regularly, safeguard
its technological portfolios and honour existing contractual commitments;
as regards companies holding any strategic asset, whether the situation resulting
from the transaction (including consideration of any financing conditions) is
suitable to guarantee the security and continuity of procurement, as well as the
maintenance, safety and operations of the strategic asset; and
in both cases, the existence of any links between the prospective investor and third
countries that do not respect democracy and the rule of law, or maintain relations
with criminal or terrorist organisations.
FOREIGN INVESTOR PROTECTION
Italy is a member of the European Union, and therefore subject to all provisions under EU
law aimed at favouring the creation of a European common market, which include the
four fundamental freedoms enjoyed by EU persons under the Treaty on the Functioning
of the European Union (i.e., the free movement of goods, capital, services and persons).
Any breach of such principles by Italian law or the Italian authorities may therefore
result in the EU investor’s accessing an Italian court to seek annulment of the infringing
measure, redress of damages suffered in connection therewith, or both.
Moreover, Italy is a signatory of the 1965 Convention on the Settlement of
Investment Disputes between States and Nationals of Other States, which established the
International Centre for Settlement of Investment Disputes (ICSID). Thus, since Italy is
a party to a number of bilateral investment treaties, any dispute arising thereunder may
be submitted to ICSID arbitration if such agreements so provide (or, alternatively, to
other forms of dispute settlement provided for in the relevant treaty).
Italy is a signatory to the 1958 New York Convention, the purpose of which is to
ensure that arbitration agreements are recognised in Italy (i.e., litigation before national
courts is prevented if contrary to the parties’ agreement), and foreign arbitral awards are
generally enforceable in Italy.
Finally, in 201344 Italy introduced a specialised section within several major
45
courts focusing on business and corporate law matters. Such specialised sections have
also been assigned jurisdiction over any civil proceedings to which a foreign company is
a party (whether as a defendant or plaintiff). However, these specialised sections have no
jurisdiction over disputes concerning the application of the Law, as the Administrative
Court of Rome has exclusive jurisdiction.
44
45
Decree Law No.
145 of 23 December 2013, as ratified and amended by Law No. 9 of
21 February 2014.
More precisely, these are the Courts of Bari, Cagliari, Catania, Genoa, Milan, Naples, Rome,
Turin and Venice. Their jurisdiction over the specific case is established on a territorial basis.
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Italy
VI
OTHER STRATEGIC CONSIDERATIONS
Situations in which (certain) foreign investments entail the involvement of the
government need to be carefully considered. The interests that the Law seeks to protect
are obviously other than mere commercial interests that are generally addressed in a
transaction between two private parties. In elaborating the acquisition strategy, this
aspect needs to be borne in mind.
The review structure set out under the Law envisages a particularly tight time
frame within which the government is required to carry out its assessment. In some
cases, it is likely that 15 business days will not be sufficient to enable the government to
complete its appraisal.
Therefore, it cannot be ruled out that the government may elect
to suspend the transaction in the event that, upon the expiry of the review deadline,
it has not completed its review or collected sufficient information to conclude that no
prejudicial consequence may arise from the proposed transaction. As noted in Section
IV, supra, should the government fail to exercise its rights within the statutory time
frame, the relevant investment may indeed be legitimately implemented.
In light of the above, as well as in consideration of standard practice, it seems
advisable to approach the government informally prior to submitting an application
triggering the start of the review procedure. Prior informal talks may help the government
become acquainted with the proposed transaction and suggest possible amendments that
would allow the transaction to be cleared swiftly.
Such preliminary discussions may also form the context in which potential
industrial commitments (regarding, for instance, maintenance of certain employment
levels, location of research activities and respect for international obligations) may be
defined and then proposed by the foreign investor within the framework of the proposed
transaction, in order to preserve the interests underlying the exercise of the government
special powers and facilitate final clearance of the investment.
VII
CURRENT DEVELOPMENTS
The Law is a still a recent piece of legislation that, as far as we are aware, has been applied
only twice since its enactment, while in certain other occasions the government disclosed
its intention not to exercise its special powers thereunder.
Notably, on 6 June 2013, the government46 exercised for the first time its special
powers in the field of defence and national security, authorising the acquisition of the
aviation business unit of Avio SpA by General Electric.
On this occasion, the government
imposed certain conditions on the acquirer, including in connection with ensuring
continuity of certain activities,47 the appointment of Italian citizens to certain sensitive
46
By Prime Minister Decree dated 6 June 6 2013 and published in the Italian Official Journal
on 19 August 2013.
47
Mainly:
a
c
ompliance with national measures on security of procurements and information;
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positions48 and certain industrial commitments.49 The government also provided the
constitution of a joint committee (whose members are designated by the government
and by General Electric) entrusted with the task of verifying whether the conditions
imposed by the government are complied with.
On 22 April 2014, the government exercised its special powers in the field of
defence and national security by authorising the acquisition of control over Piaggio
Aero Industries SpA by Mubadala Development Company.50 This authorisation was
reported to be subject to certain conditions51 relating to the protection of technological
and industrial competences, continuity in production and certain strategic activities
(particularly in the field of remote control aircraft).
Further, on 23 October 2014 the government declared52 that it would not exercise
its special powers in relation to the reorganisation of the infrastructure investments of
Cassa Depositi e Prestiti SpA (a State-controlled holding company), entailing the transfer
of its share interest in Terna SpA (the Italian electricity grid operator) to CdP Reti Srl
(a subsidiary of Cassa Depositi e Prestiti SpA which already held a controlling stake in
Snam SpA, the gas transport infrastructure operator). Although no official comment was
provided, presumably the government’s decision was based on the circumstance that the
contribution would qualify as an intra-group transaction and therefore benefit from the
statutory exemption from the application of the government’s powers. This corporate
reorganisation was instrumental to the subsequent sale of a substantial minority interest
in CdP Reti Srl to State Grid Europe Limited (a subsidiary of State Grid Corporation,
a state-owned Chinese company). There is no public record that such subsequent
transaction was notified to the government in accordance with the Law and that the
government exercised its powers thereunder (possibly because it was concluded that
the share disposal would not result in a change of control or ownership of the relevant
strategic assets).
Similarly, on 29 April 2015 the government confirmed that it would not exercise
its special powers under the Law in relation to the disposal of up to 40 per cent of
48
49
50
51
52
b ontinuity of production, maintenance and support to the navy and aerospace systems
c
supplied to the armed forces, and generally in order to ensure fulfilment of international
cooperation programmes Italy participates in; and
c prohibition against reducing or disposing of technological or industrial know-how in
a
certain key strategic activities.
Namely, the officers holding the authority to represent GE Avio Srl (the acquisition vehicle)
on matters relating to security, and transfer and export of armaments.
In addition, the
majority of the employees active in strategic operations (including international military
cooperation programmes) must be Italian citizens.
In particular relating to production and supply to the space business unit of Avio SpA of
products or components for certain launchers.
Press release available at http://governo.it/Governo/ConsiglioMinistri/dettaglio.asp?d=75448.
Such conditions have not yet been disclosed in detail, as the government decree has not been
published.
Press release available at www.governo.it/Governo/ConsiglioMinistri/dettaglio.asp?d=76967.
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the share capital of INWIT SpA (the company operating the wireless tower network of
Telecom Italia SpA) by means of an IPO. The government explained that its analysis did
not show any material issue relating to the envisaged transaction.53
Finally, in November 2013 the government announced its new plan to privatise
certain state-controlled companies (including Ferrovie dello Stato Italiane SpA – the
company controlling the Italian railway network operator), which may result in new
significant cases where its special powers under the Law will be exercised. In particular,
this expected development may provide helpful insights into the approach the
government will take with regard to companies active in the fields of energy, transport
and communications, in respect of which the government’s powers have only recently
entered into force and have not been actually exercised to date.54 As outlined above,
the government’s special powers in such fields are less extensive and subject to further
constraints, mainly arising from compliance with existing EU laws.
53
54
Other cases in which the government concluded it would not exercise its special powers under
the Law include (1) the merger of Aeroporto di Firenze SpA (the company operating the
Florence airport) into Società Aeroporto Toscano (S.A.T.) Galileo Galilei SpA (the company
operating the Pisa airport); (2) the acquisition of the telecommunication towers business of
Wind Telecomunicazioni SpA by Abertis Infraestructures SA; and (3) the transfer of B-Max
Srl’s know-how in the manufacturing of defence-related materials. In relation to each of such
transaction, on 3 March 2015 the government confirmed that it would not exercise its special
powers (press release available at www.governo.it/Governo/ConsiglioMinistri/dettaglio.
asp?d=77997).
As noted, the government declined to use its special powers in connection with the
transactions involving CdP Reti Srl, Wind Telecomunicazioni SpA, INWIT SpA, Aeroporto
di Firenze SpA and Società Aeroporto Toscano (S.A.T.) Galileo Galilei SpA.
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Appendix 1
ABOUT THE AUTHORS
GIUSEPPE SCASSELLATI-SFORZOLINI
Cleary Gottlieb Steen & Hamilton LLP
Giuseppe Scassellati-Sforzolini is a partner at Cleary Gottlieb Steen & Hamilton LLP,
based in the Rome office. He is active in public and private mergers and acquisitions and
capital markets transactions, corporate governance, securities and banking regulation,
competition law and EU state aid law. He has worked on takeover bids, tender offers,
negotiated acquisitions, divestitures, joint ventures and private equity investments
involving Italian companies, particularly in regulated sectors such as financial services,
energy, media, telecoms and airlines. He has co-authored several publications on business
law issues.
He graduated in law with honours from the University of Bologna in 1984
and obtained an LLM degree from the University of Michigan Law School in 1987.
Mr Scassellati-Sforzolini has been a member of the Bar in Italy since 1986 and a
member of the New York Bar since 1988. He is admitted to practise before the Italian
higher courts. He serves as a delegate of the Italian Bar to the Council of the Bars and
Law Societies of the European Union.
FRANCESCO IODICE
Cleary Gottlieb Steen & Hamilton LLP
Francesco Iodice is an associate at Cleary Gottlieb Steen & Hamilton LLP, based in the
London office.
Mr Iodice’s practice focuses on corporate and financial transactions, with
particular regard to mergers and acquisitions, as well as financing, restructuring and
insolvency matters. Mr Iodice graduated in law with honours from the University of
Siena in 2007. In 2006 he obtained a diploma in legal studies from Worcester College,
Oxford University, and in 2008 he graduated with distinction from St Catherine’s
College, Oxford University, receiving an MJur, for which he was also awarded the
Clifford Chance Prize for best overall performance.
Mr Iodice has been a member of the
Milan Bar since 2010.
343
. About the Authors
CLEARY GOTTLIEB STEEN & HAMILTON LLP
Piazza di Spagna 15
00187 Rome
Italy
Tel: +39 06 695 221
Fax: +39 06 69 20 06 65
gscassellati@cgsh.com
fiodice@cgsh.com
www.cgsh.com
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