OF THE TASKS OF GOVERNMENT UNITS

Central European Review of Economics & Finance Vol. 19, No. 3 (2017), pp. 31–42.

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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

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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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contracts. A civil law character of public procurement does not, however, de- WHUPLQHDWRWDOIUHHGRPRIWKHFRQWUDFWLQJSDUWLHVLQWKLVDUHD7KHLVVXHRI

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The issue of public procurement is presently undertaken mainly by the DFWRI-DQXDU\²3XEOLFSURFXUHPHQWODZKHUHLQDIWHUUHIHUUHGWRDV

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sector directive. As the European Parliament and the Council approved the FODVVLFDOGLUHFWLYHDQGVHFWRUGLUHFWLYHWKHUHLVDQREOLJDWLRQWRLQWURGXFH

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of procurement contracts. The new solutions would take into consideration LQSXEOLFSURFXUHPHQWLVVXHVFRQQHFWHGZLWKREVHUYLQJVRFLDOUHJXODWLRQV,Q

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the requirement of the EU law became of special importance. It is worth pay- LQJDWWHQWLRQWRFKDQJHVLQWKHDUHDRIUHJXODWLRQVFRQFHUQLQJWKHLVVXHVRI

so called social aspects of public procurement.

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reason, in analyzed matter the concentration falls on so called classic con- WUDFWVZKLOHWKHLVVXHVFRQFHUQLQJVRFDOOHGVHFWRUFRQWUDFWVZHUHRPLWWHG

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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

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Financing Optimisation in Public Procurement Tasks

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public procurement they make. In the accepted understand, optimization has a multi–criteria character.

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relation of quality to price, but they should also support the realisation of SXEOLFSROLFLHVLQFOXGLQJLQWKHUDQJHRIVRFLDOSROLF\6RFLDOO\UHVSRQVLEOH

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minors in order to prepare them vocationally, as well as the disabled.

Range of Social Clauses Use in Public Procurement

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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(VLQSXEOLFSURFXUHPHQWDVZHOODVHQDEOLQJSURFXUHUVWRPDNHEHWWHU

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international social law and international labour law².

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Uses of Social Clauses within Subject Requirements

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section 2 p.p.l., which implies it is forbidden to describe a public procurement subject–matter in a way which may hinder fair competition, as well as the norm from art. 29 section 3 of p.p.l. which includes prohibition of subject–

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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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42). In the directive it is stated that in case when compulsory requirements FRQFHUQLQJDFFHVVLELOLW\DUHDFFHSWHGLQDOHJDOIRUPRIWKH8QLRQDWHFKQL- FDOVSHFLÀFDWLRQLVGHVFULEHG²DVIDUDVWKHDFFHVVLELOLW\IRUWKHGLVDEOHGRU

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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

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art. 30a of p.p.l. It predicts that in case of procurement of special character, DFRQWUDFWLQJDXWKRULW\PD\LQFOXGHLQWKHFRQWUDFWVXEMHFW–matter descrip- WLRQLQWKHRIIHUDVVHVVPHQWFULWHULDRULQWKHFRQGLWLRQVRIUHDOLVLQJWKHSUR- FXUHPHQWVSHFLDOODEHOOLQJLIWKHIROORZLQJFRQGLWLRQVDUHMRLQWO\PHWUH- TXLUHPHQWVFRQFHUQLQJODEHOOLQJUHIHURQO\WRFULWHULDZKLFKDUHFRQQHFWHG

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on criteria which are possible to be objectively checked and which are non–

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transparent procedure, in which all interested subjects can participate, in- FOXGLQJWKHVXEMHFWZKLFKEHORQJWRSXEOLFDGPLQLVWUDWLRQFRQVXPHUVVRFLDO

partners, manufacturers, distributors and non–JRYHUQPHQWRUJDQL]DWLRQV

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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\

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DUWVHFWLRQRIWKHGLUHFWLYHLHDPRQJRWKHUVWKHREOLJDWLRQVFRQFHUQ- LQJVRFLDOODZ

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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

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of the disabled and disfavoured.

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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

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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

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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

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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

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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]HQLDSDUW

Panasiuk, A. (2007). 3XEOLF]QRSUDZQHRJUDQLF]HQLDSU]\XG]LHODQLX]DPyZLHĽ

publicznych%\GJRV]F]2ÀF\QD:\GDZQLF]D%UDQWD

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

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