How Do You Solve a Problem Like Google Search? Courts Must Enable Competition While Protecting Privacy.

Can we get from a world where Google is synonymous with search to a world  where other search engines have a real chance to compete? The U.S. and state governments’ bipartisan antitrust suit, challenging the many ways that Google has maintained its search monopoly, offers an opportunity.

Antitrust enforcers have proposed a set of complementary remedies, from giving users a choice of search engine, to forcing Google to spin off Chrome and possibly Android into separate companies. Overall, this is the right approach. Google’s dominance in search is too entrenched to yield to a single fix. But there are real risks to users in the mix as well: Forced sharing of people’s sensitive search queries with competitors could seriously undermine user privacy, as could a breakup without adequate safeguards.

Let’s break it down.

The Antitrust Challenge to Google Search

The Google Search antitrust suit began in 2020 under the first Trump administration, brought by the Department of Justice and 11 states. (Another 38 states filed a companion suit.) The heart of the suit was Google’s agreements with mobile phone makers, browser makers, and wireless carriers, requiring that Google Search be the default search engine, in return for revenue share payments including up to $20 billion per year that Google paid to Apple. A separate case, filed in 2023, challenged Google’s dominance in online advertising. Following a bench trial in summer 2023, Judge Amit Mehta of the D.C. federal court found Google’s search placement agreements to be illegal under the Sherman Antitrust Act, because they foreclosed competition in the markets for “general search” and “general search text advertising.”

The antitrust enforcers proposed a set of remedies in fall 2024, and filed a revised version this month, signalling that the new administration remains committed to the case. A hearing on remedies is scheduled for April.

The Obvious Fix: Ban Search Engine Exclusivity and Other Anticompetitive Agreements

The first part of the government’s remedy proposal bans Google from making the kinds of agreements that led to this lawsuit: agreements to make Google the default search engine on a variety of platforms, agreements to pre-install Google Search products on a platform, and other agreements that would give platforms an incentive not to develop a general search engine of their own. This would mean the end of Google’s pay-for-placement agreements with Apple, Samsung, other hardware makers, and browser vendors like Mozilla.

In practice, a ban on search engine default agreements means presenting users with a screen that prompts them to choose a default search engine from among various competitors. Choice screens aren’t a perfect solution, because people tend to stick with what they know. Still, research shows that choice screens can have a positive impact on competition if they are implemented thoughtfully. The court, and the technical committee appointed to oversee Google’s compliance, should apply the lessons of this research.

It makes sense that the first step of a remedy for illegal conduct should be stopping that illegal conduct. But that’s not enough on its own. Many users choose Google Search, and will continue to choose it, because it works well enough and is familiar. Also, as the evidence in this case demonstrated, the walls that Google has built around its search monopoly have kept potential rivals from gaining enough scale to deliver the best results for uncommon search queries. So we’ll need more tools to fix the competition problem.

Safe Sharing: Syndication and Search Index

The enforcers’ proposal also includes some measures that are meant to enable competitors to overcome the scale advantages that Google illegally obtained. One is requiring Google to let competitors use “syndicated” Google search results for 10 years, with no conditions or use restrictions other than “that Google may take reasonable steps to protect its brand, its reputation, and security.” Google would also have to share the results of “synthetic queries”—search terms generated by competitors to test Google’s results—and the “ranking signals” that underlie those queries. Many search engines, including DuckDuckGo, use syndicated search results from Microsoft’s Bing, and a few, like Startpage, receive syndicated results from Google. But Google currently limits re-ranking and mixing of those results—techniques that could allow c