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SOCIAL CLAUSES IN PUBLIC PROCUREMENT OF THE TASKS OF GOVERNMENT UNITS. Articles. Articles. Articles. Articles. Articles.

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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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Keywords: 3XEOLFSURFXUHPHQW*RYHUQPHQWXQLWV2SWLPLVHÀQDQFLQJ

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.

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The issue of public procurement is presently undertaken mainly by the DFWRI-DQXDU\²3XEOLFSURFXUHPHQWODZKHUHLQDIWHUUHIHUUHGWRDV SSO7KHDFWKDVEHHQELQGLQJDVRI0DUFK6RIDUWKLVOHJDODFWKDV EHHQFKDQJHDOPRVWWLPHVDOVRLQWKHFRQQHFWLRQZLWKWKHQHFHVVLW\RI LPSOHPHQWLQJGLUHFWLYH(&RIWKH(XURSHDQ3DUOLDPHQWDQGRIWKH

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7KHVXEMHFWRIWKHVWXG\DUHFKRVHQULJKWVDQGGXWLHVRIWKHORFDOJRYHUQ- PHQWXQLWVDVFRQWUDFWLQJDXWKRULWLHVLQWKHDUHDRIUHDOL]LQJVRFLDODVSHFWV LQWKHRUJDQL]DWLRQRISXEOLFSURFXUHPHQWDSSOLFDWLRQSURFHGXUHV)RUWKDW reason, in analyzed matter the concentration falls on so called classic con- WUDFWVZKLOHWKHLVVXHVFRQFHUQLQJVRFDOOHGVHFWRUFRQWUDFWVZHUHRPLWWHG DVWKH\UHIHUPDLQO\WRWKHVXEMHFWVRSHUDWLQJLQFHUWDLQDUHDVRIHFRQRP\

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Financing Optimisation in Public Procurement Tasks

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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.

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(8)

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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

(9)

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

(10)

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\

(11)

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/

'7,[[3$–JXLGHOLQHVBV/&$SGIDFFHVVHGU

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

(12)

3XEOLFÀQDQFHVODZ']8-RXUQDORI/DZRILWHPDVDPHQGHG 3XEOLFSURFXUHPHQWODZFRQVROLGDWHGWH[W']8-RXUQDORI/DZRI

LWHPDVDPHQGHG

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

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