PERFORMANCE OF PUBLIC TASKS BY COMPANIES OF LOCAL GOVERNMENT UNITS

Central European Review of Economics & Finance Vol. 19, No. 3 (2017), pp. 19–30.

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PERFORMANCE OF PUBLIC TASKS BY COMPANIES OF LOCAL GOVERNMENT UNITS

The present article focuses on the issue of the provision of services of general economic interest by companies of local government units. Various parts discuss the basic requirements for entrusting the provision of this type of services to commercial companies, with particular reference to phenomena observed on a practical basis. It also addresses the aspects of diagnosed activities that bear signs of defectiveness, while stressing the importance of practices regarded as model. Collection and sum- mary of conditions for the preparation and ordering the services from the sphere of public tasks was DFFRPSDQLHGE\WKHUHÁHFWLRQRQLQGLYLGXDOVROXWLRQVZKRVHFXOPLQDWLRQDUHWKHREVHUYDWLRQVUHODW- ing to the recent changes in the national legislation and practice observed in other Member States.

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Keywords: local government units, public services.

Introduction

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type of services in favor of the residents of an administratively–separated DUHD(QVXULQJWKHLUSURYLVLRQLVRISDUWLFXODULPSRUWDQFHIRUPHHWLQJWKH

basic needs of individuals, as well as effective implementation of the public DXWKRULW\)ROORZLQJWKHFULWHULDRIDVSHFLDOPHWKRGWRUHJXODWHWKHVHVHU- YLFHVWKH\FDQEHGLYLGHGLQWRVHYHUDOJURXSVQDPHO\DFWLYLWLHVIRUWKHLP- SOHPHQWDWLRQRIWKHSXEOLFDXWKRULW\VRFLDOVHUYLFHVDQGVHUYLFHVRIJHQHUDO

economic interest.

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the public authority includes all activities related to the implementation of

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M.A., Solicitor.

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cohesion and social exclusion (Implementation of the Community Lisbon Program,6HUYLFHVRIJHQHUDOHFRQRPLFLQWHUHVWVKDOOEHXQGHUVWRRG

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interest, which would not be provided or would be provided under different conditions, when it comes to quality, safety, affordability, equal treatment or public access, on the market without public intervention (Quality frameworks for services of general interest,

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of 24 July 2003 on C–$OWPDUN7UDQV*PE+5HJLHUXQJVSUlVLGLXP

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of the provision of services of public interest by the company of the local JRYHUQPHQWXQLWZLWKSDUWLFXODUUHIHUHQFHWRWKHPRVWFRPPRQPLVWDNHVLQ

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Rules for the provision of services of public interest by companies of local government units

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of services to be provided applies to services of public interest. The next VWHSLVWKHFRQFOXVLRQRIDQDSSURSULDWHDJUHHPHQWWKDWSURSHUO\JRYHUQV

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amount of compensation.

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the conditions related to the services that can potentially be considered as state aid.

Service of public interest

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interest, which would not be provided (or would be provided under different conditions, in terms of quality, safety, affordability, equal treatment or public access) on the market without public intervention.

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of local conditions in the essential dimension. Thus, the solutions adopted LQWKLVUHJDUGVKDOOEHWDLORUHGWRWKHQHHGVRIWLPHDQGSODFH7KHUHIRUH

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WKHTXHVWLRQRIZKHWKHUWKHIDFWRIUHPDLQLQJRIWKHVHUYLFHRQHRIWKHHOH- ments of a sample calculation, mentioned above, makes it possible to order its provision in the so–called in–house procurement and on the principles of GHURJDWLRQRUH[HPSWLRQWRWKHUXOHVFRQFHUQLQJVWDWHDLG,QWKHRSLQLRQRI

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which shall be stressed, and which would not be provided or would be pro- vided under different conditions, without public intervention. In the current economic environment there is a number of service providers, referred to in

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this would ensure the adequate level of its provision. The last of these criteria applies in particular to the parameters, such as: quality, safety, affordability, HTXDOWUHDWPHQWDQGSXEOLFDFFHVV,WLVLPSRUWDQWWRJHQHUDOO\YHULI\WKHIDFW

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In the opinion of the author of this paper, in the course of analyses referred to above, which shall be written on paper, it is necessary to determine the level at which the service shall be provided. The current technical conditions DOORZIRUWKHDFKLHYHPHQWRIKLJKTXDOLW\RIWKHSURYLVLRQRIPXQLFLSDOVHU- YLFHVDQGWKXVWKHORFDOFRPPXQLW\PD\KDYHDOHJLWLPDWHH[SHFWDWLRQDVWR

the quality of services provided. Therefore, this analysis shall cover not only the determination whether the competition existed in the relevant market, EXWZKHWKHULWLVSRVVLEOHWRDFKLHYHUHOHYDQWSUHFLVHO\GHÀQHGFRQGLWLRQV

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service as the service likely to be the so–called in house procurement and

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Business aspects, organizational aspects and economic efficiency aspects

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itself, but the considered manner of its provision. They are connected with the said uniqueness of the solution, in relation to the use of the competitive mode.

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in the data, personalized local conditions.

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Company as an internal operator

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ment of the Court of 24 July 2003 on C–280/00, the internal operator will be

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in relation to the company.

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and the act as the parties to the civil law relationship. In the other Member 6WDWHVWKHUHODWLRQVKLSVDUHGLIIHUHQWO\GHYHORSHGEXWWKH3ROLVKOHJDORUGHU

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JRYHUQPHQWXQLWVWRSHUIRUPQRQ–rational acts from an economic point of view, but reasonable in relation to the demands of ownership. In the opin- LRQRIWKHDXWKRURIWKLVSDSHUWKLVLVDUHODWLYHO\VLJQLÀFDQWSUREOHPZKLFK

needs to be discussed in a separate statement.

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Object of economic activity of the company of the local government unit

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unit to not conduct other economic activity than the one covered by fund- LQJDVSDUWRIWKHFRQVWUXFWLRQRIHQWUXVWPHQW2QWKHEDVLVRIWKHVSHFLÀF

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to network sectors, there were formulated the requirements for the separa- WLRQRIWKHHQWLW\RSHUDWLRQVSKHUHLQWKHÀHOGRIVHUYLFHVRISXEOLFLQWHUHVW

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of competition protection standards.

Method of determination of the company’s remuneration

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FODVVLÀFDWLRQRIWKHSKHQRPHQRQRISURYLVLRQRIVHUYLFHVRIJHQHUDOHFR- nomic interest to the economic activity sphere and its clear distinction from social services of a clearly non–economic nature, this position lost its base.

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the company’s operation by public entities, but as mentioned earlier, only in terms of the provision of services of public interest. This means that the company must be entitled to receive the compensation for the costs actually incurred. In such cases, the remuneration is most commonly determined based on the cost calculation drawn up in advance, which is subject to the VXEVHTXHQWYHULÀFDWLRQ:KHQWKHH[SHFWHGFRVWVRIWKHVHUYLFHDUHKLJKHU

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respectively, in the case of lower costs of the service, the company shall PDNHWKHDSSURSULDWHUHLPEXUVHPHQW1RWLQJLQWKLVUHJDUGUHTXLUHVDIDXOW\

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audit after the period of the provision of the service or after the lapse of the VSHFLÀHGSHULRGIRULWVSURYLVLRQ

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the position of control authorities, the cost of the provision of the service of public interest by the company shall be lower than in the case of commis- VLRQLQJWKHSURYLVLRQRIWKHVHUYLFHXQGHUWKHFRPSHWLWLYHSURFHGXUH,QRWKHU

words, the provision of the service of public interest by the company, in terms RIFRVWVVKDOOEHRSWLPDOZLWKUHVSHFWWRWKHLQWHUHVWRIWKHORFDOJRYHUQPHQW

unit. As pointed out earlier, the determination of costs is the provision of the VHUYLFHDWWKHDSSURSULDWHOHYHOWDLORUHGVSHFLÀFDOO\WRWKHOHJLWLPDWHH[SHFWD- tions of members of the local community.

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relation to the service provision cost. It shall be stressed that in accordance ZLWKWKHSRVLWLRQH[SUHVVHGLQSUDFWLFHWKHFRPSDQ\VKDOODFKLHYHWKHSURÀW

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on the relevant market with the same features.

Transferring the local government unit’s assets to companies

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relationship. It shall be clearly noted that if the company actually holds the assets as the owner, it must have the appropriate empowerment in this re- JDUG,WVEDVLVLVXVXDOO\WKHFRQWUDFWXDOUHODWLRQVKLSVSHFLI\LQJWKHSRZHUV

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results in the faulty practice. In particular, in the case of infrastructure sec- tors, it is necessary to ensure the maintenance of assets in a non–deterio- UDWHGFRQGLWLRQZKLOHPDLQWDLQLQJWKHLQWHJULW\DQGHIÀFLHQF\RILWVXVHLQ

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certain assets to companies without the proper control over its use in an ef- ÀFLHQWPDQQHUDQGLQDFFRUGDQFHZLWKWKHSXUSRVHRIWKHWUDQVIHU,QVXFK

situations, it is recommended to introduce the effective control mechanisms, EDVHGLQSDUWLFXODURQWKHULJKWVRIWKHRZQHUVKLSVXSHUYLVLRQWKDWZLOOHQ- DEOHWKHHQIRUFHPHQWRIWKHVRXQGPDQDJHPHQWRIDVVHWVIURPWKHFRPSDQ\

DQGLWVXVHRQO\IRUWKHSURYLVLRQRIVHUYLFHVRIJHQHUDOHFRQRPLFLQWHUHVW

7KHSRVWXODWHGVROXWLRQLVWRVSHFLI\WKHEHVWSUDFWLFHFDWDORJLQWKHÀHOG

RIPDQDJHPHQWDGPLQLVWUDWLRQRIHQWUXVWHGSXEOLFDVVHWVRUWRDSSRLQW

DGYLVRU\WHDPVRIDQLQWHUGLVFLSOLQDU\QDWXUHZLWKLQWKHXQLWVH[HUFLVLQJWKH

substantive supervision.

Summary

7KHSURYLVLRQRIVHUYLFHVRISXEOLFLQWHUHVWE\FRPSDQLHVRIORFDOJRYHUQ- PHQWXQLWVUHPDLQVWKHPDWWHUVXEMHFWHGWRQXPHURXVUHJXODWLRQVPRVWO\

developed on the basis of practice and established based on the belief as to ZKHWKHUWRLQFUHDVHWKHOHJDOFHUWDLQW\LQ$OWPDUN,DQG,,SDFNDJHV

. In oppo- sition to the belief that is practiced, the preparation and provision of services RIJHQHUDOHFRQRPLFLQWHUHVWE\FRPSDQLHVLQTXHVWLRQLQDFFRUGDQFHZLWK

the requirements outlined in this paper, is not a simple task devoid of risk.

6XEVWDQWLYHSURYLVLRQVLQWKLVUHJDUGVWHPIURPWKHEDVLVRQWKHSULQFLSOHRI

the uniqueness of these solutions and the model of competitive modes for DZDUGLQJRIFRQWUDFWVIRUVXFKVHUYLFHV

The selection of the so–called in house procurement, in the system of HQWUXVWLQJDQGFRPSHQVDWLRQRIFRVWVLVEXUGHQHGZLWKDGGLWLRQDOULVNV

3

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SURYLVLRQRISXEOLFVHUYLFHVJUDQWHGWRHQWHUSULVHVREOLJHGWRPDQDJHWKHVHUYLFHVRIJHQHUDO

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VWDWHDLGLQWKHIRUPRIFRPSHQVDWLRQIRUWKHSURYLVLRQRISXEOLFVHUYLFHVJUDQWHGWRHQWHUSULV- HVREOLJHGWRSURYLGHWKHVHUYLFHVRIJHQHUDOHFRQRPLFLQWHUHVW2IÀFLDO-RXUQDORIWKH(8RI

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IRUVWDWHDLGLQWKHIRUPRIFRPSHQVDWLRQIRUWKHSURYLVLRQRISXEOLFVHUYLFHV2IÀFLDO-RXUQDO

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WKH(XURSHDQ8QLRQUXOHVLQWKHÀHOGRIVWDWHDLGIRUWKHVHUYLFHVRIJHQHUDOHFRQRPLFLQWHUHVW

2IÀFLDO-RXUQDORIWKH(8RI&

ZKLFKDUHQRWGLVFXVVHGLQWKLVSDSHUVXFKDVIRUH[DPSOHRYHUVWDIÀQJLQHI- ÀFLHQF\LQWKHDFKLHYHPHQWRIVHWJRDOVH[WHQGLQJEH\RQGWKHSXEOLFXWLOLW\

sphere by companies, local jurisdiction or jurisdiction of tasks that can be SHUIRUPHGE\ORFDOJRYHUQPHQWXQLWV7KHVHSKHQRPHQDKRZHYHUUHPDLQ

outside the discussion of this paper.

The prerequisite condition for the performance of public tasks in the de- VFULEHGPRGHLVWRXQGHUVWDQGLWVQDWXUHDQGW\SHRIOHJDOVWDQGDUGVLQ

ZKLFKLWZDVHVWDEOLVKHG7KHUHJXODWLRQVLQWKLVUHJDUGZHUHGHYHORSHGRQ

WKHEDVLVRIWKHSURYLVLRQVIDOOLQJZLWKLQWKHVFRSHRIWKHDFTXLVRIWKH(XUR- SHDQ8QLRQGRPLQDWHGE\WKHWHOHRORJLFDOLQWHUSUHWDWLRQUDWKHUWKDQWKHOLQ- JXLVWLFLQWHUSUHWDWLRQDVLQWKHFDVHRIWKH3ROLVKOHJDORUGHU:RUWKQRWLQJDUH

DOVRWKHWUHQGVREVHUYHGLQRWKHU0HPEHU6WDWHVZKHUHWKHUHLVDJUDGXDO

ZLWKGUDZDORIWKHLQWHUYHQWLRQRISXEOLFHQWLWLHVDQGPLQLPL]LQJRIWKHVFRSH

of services included in the area of public utilities. This corresponds to the FRQYLFWLRQRIWKHOHDGLQJUROHRIVHUYLFHVRIIHUHGRQWKHFRPSHWLWLYHPDUNHW

as well as the strict application of the state aid rules.

In the context of the Polish economic reality, there comes to the develop- ment of municipal companies and increase of the scope of services provided E\WKHP,WFRUUHVSRQGVWRWKHOHJLVODWRU·VDWWHPSWVWRDFTXLUHIRUH[DPSOH

the so–called in houseSURFXUHPHQWVVSHFLÀHGLQWKHSURYLVLRQVRIWKH3XE- lic Procurement Act, while the directives referred to in the amendment of the

$FWRI-XQHVLWXDWHWKHFRQWUDFWVHQWLUHO\RXWVLGHWKHSXEOLFSURFXUH- ment sphere.

Taken the analyzed solutions as a whole, in the opinion of the author of WKLVSDSHUWKH\DUHWKHLQWHUHVWLQJVROXWLRQDQGRIWHQWKHRQO\VROXWLRQWR

quickly provide services of public interest to the local community, in addi- tion to services provided at the appropriate level. It is necessary, however, to PHHWDOOWKHUHTXLUHPHQWVLQWKLVUHJDUGVRWKHUHDUHQRVLWXDWLRQVOLPLWLQJ

the economic development, as a result of the appropriation of the areas of

JDLQIXODFWLYLW\E\SXEOLFHQWLWLHV

References

'LUHFWLYHRIWKH(XURSHDQ3DUOLDPHQWDQGRIWKH&RXQFLO(8RI

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'LUHFWLYHRIWKH(XURSHDQ3DUOLDPHQWDQGRIWKH&RXQFLO(8RI)HE- UXDU\RQSURFXUHPHQWVE\HQWLWLHVRSHUDWLQJLQVHFWRUVRIZDWHUPDQDJH- PHQWHQHUJ\WUDQVSRUWDQGSRVWDOVHUYLFHVUHSHDOLQJ'LUHFWLYH(&

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