Central European Review of Economics & Finance
Vol. 19, No. 3 (2017), pp. 31–42. DOI: 10.24136/ceref.2017.011
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SOCIAL CLAUSES IN PUBLIC PROCUREMENT AS A PREMISE TO OPTIMISE FINANCING
OF THE TASKS OF GOVERNMENT UNITS
Accepting on 26 February 2014 by the European Parliament and the Council a new directive concern- ing procurement and the necessity to transposition its provisions to the Polish legal system caused the appearance of vital changes in the area of procurement referring to social aspects. The most mo- PHQWRXVFKDQJHVDUHFRQQHFWHGZLWKWKHVSHFLÀHGLQUHJXODWLRQVSRVVLELOLW\WRGHVFULEHDVXEMHFW–
matter of the contract including social requirements, possibility to exclude contractors exclusion and forming conditions of participating in proceedings, and possibility of forming offers assessment criteria referring to social aspects. Therefor the social aspects became a momentous, yet facultative premise of the optimisation of the public expenses within public contracts.
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Introduction
6XEMHFWVRISXEOLFDGPLQLVWUDWLRQFRQVWLWXWHWKHZLGHVWJURXSDPRQJWKRVH DZDUGLQJZLWKSXEOLFFRQWUDFWV,WUHVXOWVIURPWKHIDFWWKDWOHJDOUHJXODWLRQV FRQFHUQLQJSXEOLFSURFXUHPHQWDUHLQWKHÀUVWSODFHGLUHFWHGWRWKHXQLWVRI WKHSXEOLFÀQDQFHVVHFWRU3XEOLFSURFXUHPHQWODZ$UWVHFSRLQWDQG WKLVFDWHJRU\FRYHUVDPRQJRWKHUVORFDOJRYHUQPHQWXQLWV3XEOLFÀQDQFHV law, Art. 9 of 27). Hence, the area of public procurement is the sphere of the
13K'$GPLQLVWUDWLYHDQG)LQDQFLDO/DZ'HSDUWPHQW/DZDQG$GPLQLVWUDWLRQ)DFXOW\8QLYHU- sity of Zielona Góra.
DFWLYLW\RIORFDOJRYHUQPHQWXQLWVZRUNLQJLQQRQ–JRYHUQPHQWDOIRUPVZKLFK DUHVKRZQLQHQWHULQJFRQWUDFWVRIFLYLOODZFKDUDFWHUDQGRUJDQL]DWLRQRIFLYLO ODZSURFHGXUHVDLPLQJDWVHOHFWLQJH[HFXWRUVZKRDUHWKHSDUWLHVRIVXFK contracts. A civil law character of public procurement does not, however, de- WHUPLQHDWRWDOIUHHGRPRIWKHFRQWUDFWLQJSDUWLHVLQWKLVDUHD7KHLVVXHRI DZDUGLQJSXEOLFFRQWUDFWVLQFOXGHVDOVRDQGLQWHUIHUHQFHRIDOHJLVODWRULQWR WKHSURFHVVRIDZDUGLQJDFRQWUDFWE\LPSRVLQJFHUWDLQGXWLHVRQFRQWUDFWLQJ LQVWLWXWLRQVRUFUHDWLQJULJKWVLQRUGHUWRUHDOLVHWKHIXQFWLRQVRIWKHSXEOLF SURFXUHPHQWV\VWHP3DQDVLXNSDQGWKHIROORZLQJ
The issue of public procurement is presently undertaken mainly by the DFWRI-DQXDU\²3XEOLFSURFXUHPHQWODZKHUHLQDIWHUUHIHUUHGWRDV SSO7KHDFWKDVEHHQELQGLQJDVRI0DUFK6RIDUWKLVOHJDODFWKDV EHHQFKDQJHDOPRVWWLPHVDOVRLQWKHFRQQHFWLRQZLWKWKHQHFHVVLW\RI LPSOHPHQWLQJGLUHFWLYH(&RIWKH(XURSHDQ3DUOLDPHQWDQGRIWKH
&RXQFLORI0DUFKRQWKHFRRUGLQDWLRQRISURFHGXUHVIRUWKHDZDUG RIFHUWDLQZRUNVFRQWUDFWVVXSSO\FRQWUDFWVDQGVHUYLFHFRQWUDFWV'LUHFWLYH (&
2Q)HEUXDU\WKH(XURSHDQ3DUOLDPHQWDQGRIWKH&RXQFLODFFHSW- HGQHZGLUHFWLYHVFRQFHUQLQJSXEOLFSURFXUHPHQWGLUHFWLYH(8RQ SXEOLFSURFXUHPHQWUHSHDOLQJGLUHFWLYH(&'LUHFWLYH(8 VRFDOOHGFODVVLFGLUHFWLYHDVZHOODVGLUHFWLYH(8RQSURFXUHPHQW E\HQWLWLHVRSHUDWLQJLQWKHZDWHUHQHUJ\WUDQVSRUWDQGSRVWDOVHUYLFHVVHF- WRUVDQGUHSHDOLQJGLUHFWLYH(&'LUHFWLYH(8VRFDOOHG sector directive. As the European Parliament and the Council approved the FODVVLFDOGLUHFWLYHDQGVHFWRUGLUHFWLYHWKHUHLVDQREOLJDWLRQWRLQWURGXFH D3ROLVKOHJDOV\VWHPIRUWKHLUUHJXODWLRQV3XUVXDQWWRDUWVHFWLRQRI WKHGLUHFWLYH(8DQGDUWVHFWLRQRIWKHGLUHFWLYH(8 LPSOHPHQWDWLRQGHDGOLQHVRIERWKGLUHFWLYHVLQWRWKHOHJDOV\VWHPRIWKH(8 PHPEHUVWDWHVZHUHRQ$SULO
2QWKHJURXQGRIWKH3ROLVKOHJLVODWLRQLQFRQQHFWLRQZLWKWKHREOLJDWLRQRI WUDQVSRVLWLRQRIWKHUHJXODWLRQVRIERWKFODVVLFDODQGVHFWRUGLUHFWLYHVWKHUH ZHUHUHYHDOHGWZRFRQFHSWVRIDFWLRQVRQHDLPLQJDWFUHDWLQJRQHFRPSOH[
DFW²3XEOLFSURFXUHPHQWODZWKHRWKHUPHDQLQJUHJXODWLRQVQRYHOL]DWLRQ RIWKHELQGLQJDFWLQWKHQHFHVVDU\VFRSH,QFRQQHFWLRQZLWKWKDWLQ WKH3XEOLF3URFXUHPHQW$XWKRULW\FUHDWHGDSURMHFWRIDQHZDFWUHJXODWLQJ DZDUGLQJSXEOLFFRQWUDFWV,QDFFRUGDQFHZLWKWKHDXWKRUV·LQWHQWLRQVWKH JRDORIWKHUHJXODWLRQZDVWRFUHDWHPHFKDQLVPVDOORZLQJWKHPRVWHIIHFWLYH XVDJHRISXEOLFPHDQVDVZHOODVWRHQDEOHWKHXVHRISXEOLFSURFXUHPHQW
DVDPHDQVRIPHHWLQJJRDOVDQGSROLFLHVGHVFULEHGE\WKHVWDWH$PRQJWKH PRVWLPSRUWDQWVROXWLRQVLQFOXGHGLQWKHSURMHFWWKHUHZDVLQGLFDWHG²WR- JHWKHUZLWKUHJXODWLRQVVLPSOLI\LQJDQGPDNLQJPRUHÁH[LEOHWKHSURFHGXUHV DZDUGLQJSXEOLFFRQWUDFWV²SURPRWLQJWKHUHDOXVHRIQRQ–HFRQRPLFJRDOV of procurement contracts. The new solutions would take into consideration LQSXEOLFSURFXUHPHQWLVVXHVFRQQHFWHGZLWKREVHUYLQJVRFLDOUHJXODWLRQV,Q -DQXDU\WKH3XEOLF3URFXUHPHQW$XWKRULW\ZHQWEDFNKRZHYHUWRWKH FRQFHSWRIVRFDOOHGVPDOOQRYHOL]DWLRQRIWKHDFW²3XELF3URFXUHPHQW/DZ 7KHWUDQVIHURIWKHFUXFLDOUHJXODWLRQVRIWKHGLUHFWLYHZDVGRQHWZRPRQWKV DIWHUWKHLPSOHPHQWDWLRQGHDGOLQHLHRQ-XQHE\WKH$FWRQDFW FKDQJH²3XEOLF3URFXUHPHQW/DZDQGVRPHRWKHUDFWV
,QFRQQHFWLRQZLWKWKHQHFHVVLW\RIWKHLPSOHPHQWDWLRQRIWKHUHJXODWLRQV RIWKHFODVVLFGLUHFWLYHWKHLVVXHRIDGMXVWLQJ3ROLVKQDWLRQDOOHJLVODWLRQWR the requirement of the EU law became of special importance. It is worth pay- LQJDWWHQWLRQWRFKDQJHVLQWKHDUHDRIUHJXODWLRQVFRQFHUQLQJWKHLVVXHVRI so called social aspects of public procurement.
7KHVXEMHFWRIWKHVWXG\DUHFKRVHQULJKWVDQGGXWLHVRIWKHORFDOJRYHUQ- PHQWXQLWVDVFRQWUDFWLQJDXWKRULWLHVLQWKHDUHDRIUHDOL]LQJVRFLDODVSHFWV LQWKHRUJDQL]DWLRQRISXEOLFSURFXUHPHQWDSSOLFDWLRQSURFHGXUHV)RUWKDW reason, in analyzed matter the concentration falls on so called classic con- WUDFWVZKLOHWKHLVVXHVFRQFHUQLQJVRFDOOHGVHFWRUFRQWUDFWVZHUHRPLWWHG DVWKH\UHIHUPDLQO\WRWKHVXEMHFWVRSHUDWLQJLQFHUWDLQDUHDVRIHFRQRP\
7KHJRDORIWKHZRUNLVWRSUHVHQWVHQVLWLYHDUHDVRISXEOLFSURFXUHPHQW DSSOLFDWLRQSURFHGXUHVFRYHULQJWKHSUREOHPRIVXEMHFWUHTXLUHPHQWVUH- TXLUHPHQWVDVWRVWDQGLQJDQGRIIHUVDVVHVVPHQWFULWHULDLQZKLFKWKHUH was revealed the necessity of a careful transposition of the classic directive UHJXODWLRQVFRQFHUQLQJVRFLDODVSHFWV7KHVWXG\FRQFHQWUDWHVRQVRFDOOHG social clauses, i.e. entries in documentation on public procurement placed E\WKHFRQWUDFWLQJDXWKRULW\ZKLFKLQFOXGHUHTXLUHPHQWVRIWKHFRQWUDFWLQJ DXWKRULW\FRQFHUQLQJVRFLDODVSHFWV
Financing Optimisation in Public Procurement Tasks
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)RUWKHQHHGVRIWKLVVWXG\WKHQRWLRQRIRSWLPLVDWLRQUHIHUVWRWKHFKRLFHV PDGHE\WKHFRQWUDFWLQJDXWKRULWLHVGXULQJWKHRUJDQL]DWLRQRISXEOLFSURFXUH- PHQWDSSOLFDWLRQSURFHGXUHVXQGHUWDNHQWRUHDOLVHJRDOVRIDZDUGLQJSXEOLF FRQWUDFWV7KLVFKRLFHV²LQDFFRUGDQFHZLWKRSWLPLVDWLRQUHTXLUHPHQWV²DUH WKHPRUHDSSURSULDWHWKHPRUHSRVVLEOHDSSURSULDWHUHDFKLQJDOOJRDOVRIWKH public procurement they make. In the accepted understand, optimization has a multi–criteria character.
7KHDQDO\VLVRIDOOWKHJRDOVRIWKHSXEOLFSURFXUHPHQWZKRVHUHDFKLQJLV WKHFULWHULDRIRSWLPLVDWLRQJRHVEH\RQGWKHIUDPHVRIWKLVVWXG\7KHREMHF- WLYHLVWRHPSKDVLVHWKHUHVHQWLQFUHDVHRIWKHPHDQLQJRIVRFLDOJRDOVLQ DZDUGLQJSXEOLFFRQWUDFWVDQGWKURXJKWKLVHPSKDVLVHWKHLPSRUWDQFHRIWKH FULWHULDDVDSUHPLVHRIRSWLPL]LQJÀQDQFLQJSXEOLFWDVNV
7KHLVVXHZDVQRWLFHGLQLQWKH5HFRPPHQGDWLRQVRIWKH&RXQFLORI 0LQLVWHUVRQWKHXVHRIVRFLDOFODXVHVLQSXEOLFSURFXUHPHQWE\WKHJRYHUQ- ment administration (6SUDZR]GDZF]RŒýNODX]XOHVSRâHF]QH). In the docu- PHQWWKH&RXQFLORI0LQLVWHUVUHLWHUDWHWKHLUFRQYLFWLRQWKDWOLPLWLQJVRFLDO SUREOHPVDQGFRQQHFWLQJHFRQRPLFJURZWKZLWKEHWWHUOLIHFRQGLWLRQVDUHWKH NH\WDVNVRIJRYHUQPHQWDGPLQLVWUDWLRQ7KHYLWDODPRXQWRISXEOLFPHDQV GHGLFDWHGDQQXDOO\E\WKHJRYHUQPHQWDGPLQLVWUDWLRQWRÀQDQFHWKHSXUFKDVH RISURGXFWVVHUYLFHVDQGEXLOGLQJZRUNVPD\KDYHDQLQÁXHQFHRQUHDOLVD- WLRQRIVRFLDODQGHFRQRPLFJRDOVRIWKH6WDWH,WDOVRMXVWLÀHVLQWHQVLÀHGDF- tions for a new approach to public procurement. The new approach to public SURFXUHPHQWPHDQVWKDWSXEOLFLQVWLWXWLRQVDUHREOLJHGQRWRQO\WRFRQGXFW SXEOLFH[SHQVHVDFFRUGLQJWRUHJXODWLRQVRQSXEOLFSURFXUHPHQWLQRUGHUWR SXUFKDVHJRRGVVHUYLFHVDQGEXLOGLQJZRUNVE\NHHSLQJWKHPRVWIDYRXULWH relation of quality to price, but they should also support the realisation of SXEOLFSROLFLHVLQFOXGLQJLQWKHUDQJHRIVRFLDOSROLF\6RFLDOO\UHVSRQVLEOH SXEOLFSURFXUHPHQWVHUYHVWDNLQJLQWRFRQVLGHUDWLRQGLIIHUHQWVRFLDODVSHFWV E\WKHFRQWUDFWLQJHJWKHSRVVLELOLW\RIHPSOR\PHQWDQGGHFHQWZRUNVRFLDO LQWHJUDWLRQDFKLHYLQJHTXDOLW\RIRSSRUWXQLWLHV,WVXSSRUWFUHDWLQJVRFLDOO\
DZDUHPDUNHWV%LQGLQJVWDWXWRU\UHJXODWLRQVJLYHWKHFRQWUDFWLQJDXWKRULWLHV WKHULJKWWRXVHVRFLDOFODXVHVE\GHVFULELQJDGGLWLRQDOUHTXLUHPHQWVFRQ- QHFWHGZLWKUHDOLVDWLRQRISXEOLFSURFXUHPHQWLQFOXGLQJWKHXQHPSOR\HGRU minors in order to prepare them vocationally, as well as the disabled.
Range of Social Clauses Use in Public Procurement
As shown in the preamble of the classic directive, public procurement SOD\VDNH\UROHLQWKH(XURSHVWUDWHJ\VHWRXWLQWKH&RPPLVVLRQ
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based instruments to be used to achieve smart, sustainable and inclusive JURZWKZKLOHHQVXULQJWKHPRVWHIÀFLHQWXVHRISXEOLFIXQGV5HSHDOLQJRIWKH previous directive and introduction of a new one is explained by the necessity WRLQFUHDVHWKHHIÀFLHQF\RISXEOLFVSHQGLQJV$OVRWKHUHLVHPSKDVL]HGWKH need to facilitate the participation of small and medium–sized enterprises 60(VLQSXEOLFSURFXUHPHQWDVZHOODVHQDEOLQJSURFXUHUVWRPDNHEHWWHU XVHRISXEOLFSURFXUHPHQWLQVXSSRUWRIFRPPRQVRFLHWDOJRDOV'LUHFWLYH (8SRLQWRIWKHSUHDPEOH
Indications included in the preamble to the classic directive have their continuation in a normative part. Within its frames, the main place is taken E\WKHLVVXHVRIUHJXODWLRQVRIDZDUGLQJSXEOLFFRQWUDFWV7KHGLUHFWLYHFRQVWL- WXWHV²QH[WWRWKHUXOHRIQRQ–discrimination, transparency and proportion- DOLW\²WKHUXOHDFFRUGLQJWRZKLFKPHPEHUVWDWHVDUHREOLJHGWRXQGHUWDNH DSSURSULDWHVWHSVZKLFKHQVXUHWKDWZKLOHUHDOLVLQJSXEOLFSURFXUHPHQWWKH SURFXUHUVZDWFKELQGLQJREOLJDWLRQVLQWKHVFRSHRIHQYLURQPHQWDOSURWHF- WLRQVRFLDODQGODERXUODZVHWLQWKH(XURSHDQDQGQDWLRQDOUHJXODWLRQVLQ FROOHFWLYHDJUHHPHQWVRULQWKHLQWHUQDWLRQDOHQYLURQPHQWDOSURWHFWLRQODZ international social law and international labour law2.
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Uses of Social Clauses within Subject Requirements
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PDWWHUGHVFULSWLRQE\LQGLFDWLQJWUDGHPDUNVSDWHQWVRUWKHRULJLQVRXUFH or a special process which characterizes products or services provided by a certain supplier, if it can lead to favouritism or elimination of some provid- ers or their products.
,QWHUHVWLQJLQWKHDUHDRIWKHFRQWUDFWLQJDXWKRULW\·VULJKWVDUHWKHUHJXOD- WLRQVRIWKHQHZFODVVLFGLUHFWLYHFRQFHUQLQJVRFDOOHGWHFKQLFDOVSHFLÀFD- tions which are an element of public procurement documentation prepared E\DFRQWUDFWLQJDXWKRULW\,QWHFKQLFDOVSHFLÀFDWLRQVWKHUHDUHGHVFULEHG UHTXLUHGIHDWXUHVRIEXLOGLQJZRUNVVHUYLFHVDQGVXSSOLHV,QWKHGLUHFWLYH WKHUHDUHDOORZHGDIHZZD\VRIIRUPLQJWHFKQLFDOVSHFLÀFDWLRQV7KHÀUVW EDVLFDOO\PHDQVIRUPLQJVSHFLÀFDWLRQVLQWKHFDWHJRULHVRISHUIRUPDQFHDQG IXQFWLRQDOUHTXLUHPHQWV7KHRWKHUZD\VPHDQIRUPLQJWHFKQLFDOVSHFLÀFD- WLRQVE\UHIHUULQJWRDSSURSULDWHQRUPVEXWE\MRLQLQJSHUIRUPDQFHDQGIXQF- WLRQDOUHTXLUHPHQWVZLWKWKHQRUPDWLYHRQHV'LUHFWLYH(8$UW 42). In the directive it is stated that in case when compulsory requirements FRQFHUQLQJDFFHVVLELOLW\DUHDFFHSWHGLQDOHJDOIRUPRIWKH8QLRQDWHFKQL- FDOVSHFLÀFDWLRQLVGHVFULEHG²DVIDUDVWKHDFFHVVLELOLW\IRUWKHGLVDEOHGRU GHVLJQLQJIRUDOOWKHXVHUVDUHFRQFHUQHG²E\UHIHUULQJWRWKHDFW'LUHFWLYH (8$UWVHFWLRQ
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3DUWLFXODUDWWHQWLRQVKRXOGEHJLYHQWRWKHUHJXODWLRQVGHVFULELQJH[FOX- VLRQRIWKHULJKWVRIDFRQWUDFWLQJDXWKRULW\FRQFHUQLQJWKHGHVFULSWLRQRIWKH procurement subject–matter. Pursuant to art. 29 section 2 of p.p.l., a con- WUDFWLQJDXWKRULW\PD\JLYHLQDSURFXUHPHQWVXEMHFW–matter’s description requirements connected with realisation of the procurement, which may in- FOXGHDPRQJRWKHUVVRFLDODVSHFWVDVSHFWVFRQQHFWHGZLWKLQQRYDWLRQRU HPSOR\PHQWHVSHFLDOO\FRQFHUQLQJWKHHPSOR\PHQWRIWKHXQHPSOR\HG pursuant to the act of 20 April 2004 on employment promotion and labour PDUNHWLQVWLWXWLRQVWKHPLQRUVDVGHVFULEHGLQWKHODERXUODZUHJXODWLRQV LQRUGHUWRSUHSDUHWKHPYRFDWLRQDOO\WKHGLVDEOHGSXUVXDQWWRWKHDFW RI$XJXVWRQYRFDWLRQDODQGVRFLDOUHKDELOLWDWLRQDQGHPSOR\PHQW RIWKHGLVDEOHGRWKHUSHRSOHWKDQGHVFULEHGLQSRLQWVRUSXUVXDQW WRWKHDFWRI-XQHRQVRFLDOHPSOR\PHQWRUWRDSSURSULDWHUHJXOD- tions of the European Union or European Economic Area member states 6]DEURĽVNLS
7KHFODVVLFGLUHFWLYHUHIHUVDOVRWRWKHSUREOHPRIVRFDOOHGODEHOOLQJOD- EHOV,QFDVHFRQWUDFWLQJLQVWLWXWLRQVDUHJRLQJWRSXUFKDVHEXLOGLQJZRUNV GHOLYHULHVRUVHUYLFHVRIVSHFLDOFKDUDFWHUHJVRFLDOWKH\PD\LQWHFKQL- FDOVSHFLÀFDWLRQVFRQWUDFWDZDUGLQJFULWHULDRUFRQGLWLRQVRIUHDOLVLQJWKH FRQWUDFWUHTXLUHDFHUWDLQODEHODVDSURRIWKDWEXLOGLQJZRUNVGHOLYHULHVRU VHUYLFHVKDYHWKHUHTXLUHGFKDUDFWHULVWLFV'LUHFWLYH(8$UW
7KHUHJXODWLRQWUDQVIHUULQJWKHSURYLVLRQVRIWKHGLUHFWLYHLVDWSUHVHQW art. 30a of p.p.l. It predicts that in case of procurement of special character, DFRQWUDFWLQJDXWKRULW\PD\LQFOXGHLQWKHFRQWUDFWVXEMHFW–matter descrip- WLRQLQWKHRIIHUDVVHVVPHQWFULWHULDRULQWKHFRQGLWLRQVRIUHDOLVLQJWKHSUR- FXUHPHQWVSHFLDOODEHOOLQJLIWKHIROORZLQJFRQGLWLRQVDUHMRLQWO\PHWUH- TXLUHPHQWVFRQFHUQLQJODEHOOLQJUHIHURQO\WRFULWHULDZKLFKDUHFRQQHFWHG
ZLWKWKHSURFXUHPHQWVXEMHFWDQGWKH\DUHDSSURSULDWHIRUGHVFULELQJWKH FKDUDFWHULVWLFVRIEXLOGLQJZRUNVGHOLYHULHVRUVHUYLFHVZKLFKDUHWKHVXEMHFW PDWWHURIWKHSURFXUHPHQWUHTXLUHPHQWVFRQFHUQLQJODEHOOLQJDUHEDVHG on criteria which are possible to be objectively checked and which are non–
GLVFULPLQDWRU\FRQGLWLRQVRIDZDUGLQJODEHOOLQJDUHDFFHSWHGLQRSHQDQG transparent procedure, in which all interested subjects can participate, in- FOXGLQJWKHVXEMHFWZKLFKEHORQJWRSXEOLFDGPLQLVWUDWLRQFRQVXPHUVVRFLDO partners, manufacturers, distributors and non–JRYHUQPHQWRUJDQL]DWLRQV ODEHOOLQJLVDFFHVVLEOHWRDOOLQWHUHVWHGSDUWLHVUHTXLUHPHQWVFRQFHUQ- LQJODEHOOLQJDUHGHVFULEHGE\WKHWKLUGSDUW\DQGWKHFRQWUDFWRUDSSO\LQJIRU ODEHOOLQJFDQQRWKDYHDGHFLVLYHLQÁXHQFHRQWKHP
Use of Social Clauses within the Frames of the Requirementsas to Standing
As mentioned before, the participation of contractors in the procurement SURFHHGLQJVLVDOVRFRQQHFWHGZLWKWKHQHHGWRYHULI\WKHLUDVWRVWDQGLQJ TXDOLÀFDWLRQVUHIHUULQJIRUH[DPSOHWRFHUWDLQTXDOLÀFDWLRQVSHUVRQQHOSR- WHQWLDOH[SHULHQFHWKH\KDYHEXWDOVRWKHODFNRIFLUFXPVWDQFHVGLVTXDOLI\LQJ WKHFRQWUDFWRUIURPWKHSDUWLFLSDWLRQLQWKHSURFXUHPHQWSURFHHGLQJV
In the content of the preamble to the classic directive there is also a refer- ence to the issue of exclusion of the contractors because of so called „social REOLJDWLRQVµ3XUVXDQWWRWKHUHFLWDORIWKHSUHDPEOHFRQWUDFWLQJLQVWLWX- tions should have the possibility to exclude contractors who turned out to be XQUHOLDEOHIRUH[DPSOHE\YLRODWLQJVRFLDOREOLJDWLRQVLQFOXGLQJUHJXODWLRQV FRQFHUQLQJDFFHVVLELOLW\IRUWKHGLVDEOHG
Pursuant to art. 57 section 4 item a) of the classic directive, institutions PD\H[FOXGHRUEHREOLJHGWRH[FOXGHIURPWKHSDUWLFLSDWLRQLQSURFHHGLQJV WREHDZDUGHGDSXEOLFFRQWUDFWZKHQWKHFRQWUDFWLQJDXWKRULWLHVE\DQ\
PHDQVPD\SURYHYLRODWLRQRIWKHDSSOLFDEOHREOLJDWLRQVDVGHVFULEHGLQ DUWVHFWLRQRIWKHGLUHFWLYHLHDPRQJRWKHUVWKHREOLJDWLRQVFRQFHUQ- LQJVRFLDOODZ
,QSSOWKHUHÁHFWLRQRIWKHUXOHLVDUWVHFWLRQLWHPVSHFLI\WKH SRVVLELOLW\RIWKHH[FOXVLRQRIDFRQWUDFWRUZKRZDVLVVXHGDÀQDODGPLQLV- WUDWLYHGHFLVLRQFRQFHUQLQJWKHYLRODWLRQRIREOLJDWLRQVUHVXOWLQJIURPWKH UHJXODWLRQVRIWKHODERXUODZHQYLURQPHQWDOSURWHFWLRQODZRUVRFLDOVHFXULW\
UHJXODWLRQVLIWRJHWKHUZLWKWKHGHFLVLRQWKHÀQHQRWOHVVWKDQ3/1ZDV JLYHQ6]DEURĽVNLS²
7KHLQGLFDWHGH[FOXVLRQSUHPLVHLVQRWREOLJDWRU\,WVXVHGHSHQGVRQ ZKHWKHUWKHFRQWUDFWLQJDXWKRULW\VSHFLÀHVVXFKSRVVLELOLW\LQWKHJLYHQSUR- FXUHPHQWSURFHHGLQJV
5HTXLUHPHQWVDVWRVWDQGLQJLQFOXGHDOVRSRVLWLYHFRQGLWLRQVRQIXOÀOOLQJ ZKLFKWKHSDUWLFLSDWLRQRIWKHFRQWUDFWRULQWKHSURFXUHPHQWSURFHHGLQJV depends.
In accordance with the content of the directive, employment and work are NH\HOHPHQWVZKLFKJXDUDQWHHHTXDOFKDQFHVDQGZKLFKKHOSWRLQWHJUDWH the society. That is why the role of sheltered workshops and of the subjects OHDGLQJVRFDOOHGÅVRFLDOHFRQRPLFDFWLYLW\µDUHQRWLFHG+RZHYHUWKHSDU- ticipation of such subjects in procurement in normal competition conditions LVGLIÀFXOW7KDWLVZK\WKHGLUHFWLYHVSHFLÀHVWKDWWKHPHPEHUVWDWHVPD\
VWLSXODWHWKDWWKHULJKWWRSDUWLFLSDWHLQSURFXUHPHQWSURFHHGLQJVRUWRSDUW RIWKHPLVJLYHQRQO\WRVXFKLQVWLWXWLRQVRUWRRWKHUVXEMHFWIURPWKHDUHDRI VRFLDOHFRQRP\7KHFRQWUDFWLQJDXWKRULW\VKRXOGDOVRKDYHWKHSRVVLELOLW\WR stipulate the necessity of contract realisation for the sheltered employment SURJUDPPHV'LUHFWLYH(85HFLWDORIWKHSUHDPEOH
'LUHFWLYH·VUHFLWDOVKDYHWKHLUH[SUHVVLRQLQDUWFRQFHUQLQJVRFDOOHG UHVHUYHGFRQWUDFWV$FFRUGLQJWRLWWKHPHPEHUVWDWHVPD\VWLSXODWHDPRQJ RWKHUVWKHSDUWLFLSDWLRQLQSURFXUHPHQWSURFHHGLQJVIRUWKHVKHOWHUHGZRUN- VKRSVDQGFRQWUDFWRUVZKRVHPDLQDLPLVVRFLDODQGYRFDWLRQDOLQWHJUDWLRQ of the disabled and disfavoured.
%DVHGRQWKH3XEOLFSURFXUHPHQWODZWKHH[DPSOHRIVXFKDVROXWLRQLV the possibility to make a stipulation that the public contract may be awarded only to sheltered workshops and other contractors whose activity, or activity RIWKHLURUJDQLVDWLRQDOXQLWVZKLFKDUHWRUHDOLVHWKHFRQWUDFWFRYHUVVR- FLDODQGYRFDWLRQDOLQWHJUDWLRQRISHRSOHZKRDUHPHPEHUVRIVRFLDOO\PDU- JLQDOLVHGJURXSVHVSHFLDOO\WKHGLVDEOHGXQHPSOR\HGSHRSOHGHSULYHGRI personal freedom or released from prisons, who have problems with the LQWHJUDWLRQZLWKWKHLUHQYLURQPHQWWKHKRPHOHVVUHIXJHHVSHRSOHXQGHU RUULJKWDIWHUZKRDUHUHJLVWHUHGDVVHHNLQJHPSOR\PHQWSHRSOHZLWKRXW employment, as well as the members of minority which is in an unfavourable situation, especially of national and ethnic minorities (Public procurement law, Art. 22 section 2).
Use of Social Clauses in Offers Assessment Criteria
$PRQJRIIHUVFRPSO\LQJZLWKWKHUHTXLUHPHQWVVHWE\DFRQWUDFWLQJDX- WKRULW\ÀOHGE\WKHFRQWUDFWRUVPHHWLQJWKHFRQGLWLRQVRISDUWLFLSDWLQJLQ
SURFHHGLQJVWKHFRQWUDFWLQJDXWKRULW\PDNHVWKHFKRLFHRIWKHPRVWDG- YDQWDJHRXVRIIHU7KHFRQWUDFWLQJDXWKRULW\XVHVRIIHUVDVVHVVPHQWFULWHULD EHLQJGLUHFWHGE\WKHUXOHVGHVFULEHGLQWKHSXEOLFSURFXUHPHQWUHJXODWLRQV
7KHEDVLFUXOHVRUGHULQJFRQWUDFWLQJDXWKRULW\·VXVHRIRIIHUVDVVHVVPHQW FULWHULDLVWKHUXOHRIDIUHHFKRLFHRIFULWHULDE\WKHFRQWUDFWLQJDXWKRULW\DQG WKHUXOHDFFRUGLQJWRZKLFKWKHFULWHULDKDYHWRUHIHUWRWKHVXEMHFW–matter RIWKHSURFXUHPHQW.HHSLQJWKHIUHHGRPRIFULWHULDFKRLFHUXOHDUWVHF- WLRQRISSOVKRZH[DPSOHFULWHULDRIWKHRIIHUVDVVHVVPHQWDPRQJZKLFK LWHQXPHUDWHVVRFLDODVSHFWVLQFOXGLQJYRFDWLRQDODQGVRFLDOLQWHJUDWLRQRI FHUWDLQJURXSVVRFDOOHGGLVIDYRXUHGSHRSOHZKRZHUHPHQWLRQHGDERYHLQ FRQQHFWLRQZLWKWKHUHTXLUHPHQWVDVWRVWDQGLQJ
The issue of offers assessment criteria is undertaken in the new classic GLUHFWLYH$UWLFOHFRQFHUQLQJFRQWUDFWDZDUGFULWHULDVWDWHVWKDWFRQWUDFW- LQJLQVWLWXWLRQVEDVHRIIHUDZDUGLQJRQWKHRIIHUZKLFKLVHFRQRPLFDOO\PRVW DGYDQWDJHRXVWKHZKLOHWKHHFRQRPLFDOO\PRVWDGYDQWDJHRXVRIIHULVGH- VFULEHGEDVHGRQSULFHRUFRVWXVLQJWKHDSSURDFKEDVHGRQFRVWHIIHFWLYH- ness, such as life–cycle–costs (Guidelines for Social Life Cycle Assessment of Products).
7KHHFRQRPLFDOO\PRVWDGYDQWDJHRXVRIIHUPD\HQFRPSDVVWKH%HVWUDWLR RITXDOLW\WRWKHSULFHZKLFKLVHVWLPDWHGEDVHGRQFULWHULDFRYHULQJGLIIHUHQW DVSHFWVLQFOXGLQJVRFLDORQHV
In accordance with provisions is necessary to analyse the feasibility of HVWDEOLVKLQJDFRPPRQPHWKRGRORJ\LQWKHDUHDRIWKHFDOFXODWLRQRIVRFLDO OLIHF\FOHFRVWVWDNLQJLQWRFRQVLGHUDWLRQWKHH[LVWLQJPHWKRGRORJLHVVXFK as „Guidelines for Social Life Cycle Assessment of Products” approved within WKH8QLWHG1DWLRQV(QYLURQPHQW3URJUDPPH*XLGHOLQHVIRU6RFLDO/LIH&\FOH Assessment of Products).
7KHLVVXHRIWKHFDOFXODWLRQRIOLIHF\FOHFRVWVLVXQGHUWDNHQLQDUWVHF- tions 3b–3d amended by p.p.l. Unfortunately, the content of the article does not refer to the social aspects.
Conclusions
$FFHSWLQJRQ)HEUXDU\E\WKH(XURSHDQ3DUOLDPHQWDQGWKH&RXQ- FLODQHZGLUHFWLYHFRQFHUQLQJSURFXUHPHQWDQGWKHQHFHVVLW\WRWUDQVSRVL- WLRQLWVSURYLVLRQVWRWKH3ROLVKOHJDOV\VWHPFDXVHGWKHDSSHDUDQFHRIYLWDO FKDQJHVLQWKHDUHDRISURFXUHPHQWUHIHUULQJWRVRFLDODVSHFWV7KHPRVWPR- PHQWRXVFKDQJHVDUHFRQQHFWHGZLWKWKHVSHFLÀHGLQUHJXODWLRQVSRVVLELOLW\
to describe a subject–PDWWHURIWKHFRQWUDFWLQFOXGLQJVRFLDOUHTXLUHPHQWV 1H[WFKDQJHFRQFHUQVSUHPLVHVFRQFHUQLQJFRQWUDFWRU·VH[FOXVLRQIURPSUR- FXUHPHQWSURFHHGLQJVDVDUHVXOWRIWKHYLRODWLRQRIVRFLDOREOLJDWLRQVDQG WKHSRVVLELOLW\RIIRUPLQJFRQGLWLRQVRISDUWLFLSDWLQJLQSURFHHGLQJVUHIHUULQJ WRWKHHPSOR\PHQWRIGLVIDYRXUHGSHRSOH&RPSOHWLQJWKHFKDQJHVLVWKH SRVVLELOLW\RIIRUPLQJRIIHUVDVVHVVPHQWFULWHULDUHIHUULQJWRVRFLDODVSHFWV ZKLFKLVVSHFLÀHGLQWKHDPHQGHGDFW
,WLVZRUWKHPSKDVLVLQJWKHIDFWWKDWDOOSUHVHQWHGFKDQJHVGRQRWLPSRVW REOLJDWLRQVRQWKHFRQWUDFWLQJDXWKRULWLHVEXWWKH\VSHFLI\WKHSRVVLELOLW\
RIXQGHUWDNLQJFHUWDLQDFWLRQVZLWKLQWKHRUJDQLVDWLRQRIWKHSURFXUHPHQW SURFHHGLQJV$WSUHVHQWFRQWUDFWLQJDXWKRULWLHVHDFKWLPHKDYHDFKRLFH ZKHWKHUWRLQWURGXFHVRFLDOFODXVHVWRJLYHQSURFHHGLQJRUQRW7KHLUSRVVLEOH LQWURGXFWLRQGHWHUPLQHVWKHFRXUVHRISURFXUHPHQWDSSOLFDWLRQSURFHHGLQJV LQÁXHQFHVWKHZD\FRQWUDFWRUV·RIIHUVDUHSUHSDUHGLQFOXGLQJSULFHVDQG contract realisation costs calculations. It means that social aspects remain a momentous, yet facultative premise of the optimisation of the public ex- penses within public contracts.
References
'LUHFWLYH(&RIWKH(XURSHDQ3DUOLDPHQWDQGRIWKH&RXQFLORI March 2004 on the coordination of procedures for the award of certain ZRUNVFRQWUDFWVVXSSO\FRQWUDFWVDQGVHUYLFHFRQWUDFWV2IÀFLDO-RXUQDORI WKH(XURSHDQ8QLRQ/RIS
'LUHFWLYH(8RQSXEOLFSURFXUHPHQWUHSHDOLQJGLUHFWLYH(&
2IÀFLDO-RXUQDORIWKH(XURSHDQ8QLRQ/RIS
'LUHFWLYH(8RQSURFXUHPHQWE\HQWLWLHVRSHUDWLQJLQWKHZDWHUHQHUJ\
WUDQVSRUWDQGSRVWDOVHUYLFHVVHFWRUVDQGUHSHDOLQJ'LUHFWLYH(&2I- ÀFLDO-RXUQDORIWKH(XURSHDQ8QLRQ/RISDVDPHQGHG (8523($VWUDWHJ\IRUVPDUWVXVWDLQDEOHDQGLQFOXVLYHJURZWK, http://
ec.europa.eu
Guidelines for Social Life Cycle Assessment of Products of United Nations Environment Programme, http://www.unep.fr/shared/publications/pdf/
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Iwin–*DU]\ĽVND-Nowe oblicze optymalizacji podatkowej w Polsce, )LQDQVH5\QNL)LQDQVRZH8EH]SLHF]HQLDSDUW
Panasiuk, A. (2007). 3XEOLF]QRSUDZQHRJUDQLF]HQLDSU]\XG]LHODQLX]DPyZLHĽ publicznych%\GJRV]F]2ÀF\QD:\GDZQLF]D%UDQWD
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Recommendations of the Council of Ministers on the use of social clauses in SXEOLFSURFXUHPHQWE\WKHJRYHUQPHQWDGPLQLVWUDWLRQKWWSVZZZX]SJRY pl/baza-wiedzy/analizy-systemowe/sprawozdawczosc-klauzule-spoleczne 6SUDZR]GDZF]RŒýNODX]XOHVSRâHF]QHKWWSVZZZX]SJRYSOED]DZLHG]\DQD-
OL]\V\VWHPRZHVSUDZR]GDZF]RVFNODX]XOHVSROHF]QHDFFHVVHGU 6]DEURĽVNL 6 .ODX]XOH VSRâHF]QH Z ]DPyZLHQLDFK SXEOLF]Q\FK
D]UyZQRZDŮRQ\UR]ZyMORNDOQ\:DUPLĽVNR0D]XUVNL.ZDUWDOQLN1DXNRZ\
1DXNL6SRâHF]QH,VVXH
The Act on act change – Public Procurement Law and some other acts']8 -RXUQDORI/DZRILWHP