2024-03-062023/24:FiU34 · p.6FiUEconomy & finance

Number of Subcontractors and Reasonable Terms

Wage and working-condition requirements for subcontractors in public procurement

What's at stake: Long chains of subcontractors make it harder to monitor working conditions, for example on construction sites, which can contribute to undeclared work, tax evasion and wage undercutting. The decision therefore affects both the employees on publicly procured projects and what conditions taxpayer-funded contracts place on contractors.

Case texts and AI reasoning are AI-translated from the Swedish originals; the Swedish text is authoritative.

What the vote decides

The question is whether existing legislation and support material are enough to counter wage undercutting among subcontractors, or whether contracting authorities should actively be given - and required to use - more powers to set conditions and limit how many layers of subcontractors may be used.

Yes Yes — the committee proposal

The committee rejects the motions and notes that legislation on contractor liability for wage claims in subcontractor chains already exists. The support material produced by the Procurement Authority has, in the committee's view, helped increase knowledge of sustainability risks in supply chains and of how contracting authorities can manage them.

No No — the reservations

Reservation 8 (V)

The reservation (V) calls for order and control in public procurement so that public funds do not go to companies that undercut wages and conditions. It calls for contracting authorities to be allowed to require not only collective-agreement-level pay, working hours and holiday, but also insurance, pensions and other leave. It also calls for limiting the number of subcontractor tiers to two as a general rule, to strengthen coordination and oversight and counter undeclared work and wage undercutting in long subcontractor chains.

Summarised from the committee report. Party labels in the summary come from the report, not from the vote.

VSMPCLKDMSD
YesNoAbstainAbsent

What do the votes mean here?

Yes The committee proposal: rejecting the motions (keeping things as they are).

No Backing the counter-proposal: reservation 8 by V.

Abstain The party marks a position of its own that is not one of the two final alternatives.

What each plan points to — and how the party voted

For each party: the vote its own election manifesto and party programme point to in this case, next to how the party actually voted. A plan can only point to Yes or No; a party can also abstain.

PlanVoteConfidenceEvidence
Vown reservationNoNo 0/20/0/4follows the planconfidence: highexplicit
SNoAbstain 0/0/93/13departs from the planconfidence: highnot addressed
MPNoYes 15/0/0/3departs from the planconfidence: highnot addressed
CYesYes 19/0/0/5follows the planconfidence: mediumnot addressed
LYesYes 13/0/0/3follows the planconfidence: mediumnot addressed
KDYesYes 16/0/0/3follows the planconfidence: mediumnot addressed
MYesYes 60/0/0/8follows the planconfidence: mediumnot addressed
SDYesYes 61/0/0/11follows the planconfidence: lownot addressed

Committee proposal

The Riksdag rejects the motions 2023/24:439 by Ciczie Weidby et al. (V) demands 20-24 and 2023/24:2647 by Mikael Damberg et al. (S) demand 1.

Original (Swedish)

Riksdagen avslår motionerna 2023/24:439 av Ciczie Weidby m.fl. (V) yrkandena 20-24 och 2023/24:2647 av Mikael Damberg m.fl. (S) yrkande 1.

Riksdag decision: The Riksdag said no to approximately 50 proposals in motions about public procurement from the general motion period 2023. The motions deal, among other things, with how the public procurement regulatory framework is designed, social criteria and animal protection. The Riksdag refers, among other things, to the fact that the motion demands are to a certain extent met.

Counter-proposals

Plan vs actual vote

Every party, in chamber order: what its own plan pointed to, how it voted, and the reasoning behind both. Highlighted rows are where the two differ — but a vote that follows the plan is a result too, so the reasoning is there for every party.

VVänsterpartietNoNofollows the planexplicit

The plan establishes that employers evade responsibility through chains of contracts with subcontractors and that the law shall prevent exactly such responsibility evasion.

Plan documents: party programme · 2022 manifesto

Reasoning and quotes

The plan establishes that employers evade responsibility through chains of contracts with subcontractors and that the law shall prevent exactly such responsibility evasion. Limiting the number of layers of subcontractors and being able to require collectively agreed terms, insurance and pensions in procurement is the same commitment. According to the plan, procurement should be used strategically to strengthen labour rights and working conditions.

Original (Swedish)

Planen slår fast att arbetsköpare friskriver sig från ansvar genom kedjor av kontrakt med underleverantörer och att lagen ska förhindra just den ansvarsfriskrivelsen. Att begränsa antalet underentreprenörsled och kunna ställa krav på kollektivavtalsenliga villkor, försäkringar och pensioner i upphandling är samma åtagande. Upphandlingen ska enligt planen användas strategiskt för att stärka arbetsrätt och arbetsvillkor.

  • stop responsibility evasion in contract chainsdecisive»Lagen ska stärka fackens inflytande över arbetsmiljön och förhindra arbetsgivarens praktiska ansvarsfriskrivelse genom olika kedjor av kontrakt.« (party programme ↗)“The law shall strengthen the unions' influence over working conditions and prevent employers' practical responsibility evasion through various chains of contracts.”
  • subcontractor chains as a problem»Arbetsköpare friskriver sig från ansvar genom kedjor av kontrakt med underleverantörer.« (party programme ↗)“Employers evade responsibility through chains of contracts with subcontractors.”
  • strategic procurement for working conditions»Den offentliga upphandlingen omfattar mycket stora ekonomiska värden. Den måste användas strategiskt av upphandlare på olika nivåer för att garantera och stärka arbetsrätt och arbetsvillkor.« (party programme ↗)“Public procurement involves very large economic values. It must be used strategically by procurers at different levels to guarantee and strengthen labour rights and working conditions.”
  • collective agreement requirement in procurement»Vänsterpartiet ställer krav på kollektivavtal vid offentliga upphandlingar.« (2022 manifesto ↗)“The Left Party requires collective agreements in public procurement.”
SSocialdemokraternaNoAbstaindeparts from the plannot addressed

The election manifesto demands that public procurers are models for sound competition and that workplace crime is fought, and the party programme makes collective agreements a necessary prerequisite in working life and wants to prevent social dumping.

Plan documents: 2022 manifesto · party programme

Reasoning and quotes

The election manifesto demands that public procurers are models for sound competition and that workplace crime is fought, and the party programme makes collective agreements a necessary prerequisite in working life and wants to prevent social dumping. The counter-proposal's demand for collectively agreed terms including insurance and pension as well as limited subcontractor layers is the same commitment in procurement terms. Strong labour law protection shall protect employees throughout the chain.

Original (Swedish)

Valmanifestet kräver att offentliga upphandlare är föredömen för sund konkurrens och att arbetslivskriminaliteten bekämpas, och partiprogrammet gör kollektivavtal till en nödvändig förutsättning i arbetslivet och vill förhindra social dumping. Motförslagets krav på kollektivavtalsenliga villkor inklusive försäkringar och pension samt begränsade underentreprenörsled är samma åtagande i upphandlingsledet. En stark arbetsrättslig lagstiftning ska skydda de anställda i hela kedjan.

  • sound competition in procurementdecisive»Krafttag mot arbetslivskriminaliteten. Arbetslivs kriminalitet ska inte finnas på svensk arbetsmarknad och offentliga arbetsgivare och upphandlare ska vara föredömen i att verka för en sund konkurrens.« (2022 manifesto ↗)“Action against workplace crime. Workplace crime shall not exist on the Swedish labour market and public employers and procurers shall be models in working for sound competition.”
  • collective agreements as basic requirement»Kollektivavtal är en nödvändig förutsättning för legitimiteten i arbetslivets spelregler och för arbetsfreden.« (party programme ↗)“Collective agreements are a necessary prerequisite for legitimacy in working life's rules of the game and for labour peace.”
  • prevent social dumping»Vi vill utveckla en europeisk politik för full sysselsättning, som bygger på respekt för löntagarnas rättigheter och förhindrar social dumping.« (party programme ↗)“We want to develop a European policy for full employment, based on respect for employees' rights and preventing social dumping.”
  • labour law protection»En stark arbetsrättslig lagstiftning behövs som skydd för de anställda.« (party programme ↗)“Strong labour law protection is needed as protection for employees.”

flags: citat_migrerat

The plan takes no explicit position on what the committee actually decided — often because the committee's reason was procedural. The stance is derived and fully cited, but it does not show the party broke a commitment.

MPMiljöpartietNoYesdeparts from the plannot addressed

The plan requires that demands on social conditions and working environment are set in public procurement and values the collective agreement model as the basis for conditions in the labour market.

Plan documents: party programme · 2022 manifesto

Reasoning and quotes

The plan requires that demands on social conditions and working environment are set in public procurement and values the collective agreement model as the basis for conditions in the labour market. The counter-proposal's demands for collective agreement-compliant conditions, insurance and pensions and a limitation of the number of subcontracting levels aim precisely to stop low-wage competition and undeclared work in procurement chains. The plan also wants it to be difficult and unprofitable to operate outside the rules.

Original (Swedish)

Planen kräver att krav på sociala villkor och arbetsmiljö ställs i upphandlingar och värnar kollektivavtalsmodellen som grund för villkoren på arbetsmarknaden. Motförslagets krav på kollektivavtalsenliga villkor, försäkringar och pensioner samt en begränsning av antalet led av underentreprenörer syftar just till att stoppa låglönekonkurrens och svartarbete i upphandlingskedjor. Planen vill dessutom att det ska vara svårt och olönsamt att driva verksamhet vid sidan av reglerna.

  • social demands in public procurementdecisive»I upphandlingar ska krav ställas vad gäller miljö, sociala villkor samt arbetsmiljö.« (party programme ↗)“In public procurement, requirements should be set regarding environment, social conditions and working environment.”
  • the collective agreement model»Vi värnar den svenska modellen där arbetsmarknadens parter gemensamt förhandlar fram vad som ska gälla på arbetsmarknaden genom kollektivavtal.« (party programme ↗)“We value the Swedish model where the parties of the labour market jointly negotiate what should apply on the labour market through collective agreements.”
  • reasonable working conditions»Det är också viktigt att åstadkomma rimliga arbetsvillkor och trygga anställningsformer i det som i dag är kvinnodominerade branscher.« (party programme ↗)“It is also important to create reasonable working conditions and secure employment arrangements in what today are female-dominated sectors.”
  • against undeclared work»Det ska vara dyrt, jobbigt och svårt att vara kriminell.« (2022 manifesto ↗)“It should be expensive, difficult and hard to be criminal.”

The plan takes no explicit position on what the committee actually decided — often because the committee's reason was procedural. The stance is derived and fully cited, but it does not show the party broke a commitment.

CCenterpartietYesYesfollows the plannot addressed

The plan wants the labour market's rules of play to be set by the parties as much as possible instead of through legislation, and wants the administrative burden on small and newly started businesses to decrease.

Plan documents: party programme · 2022 manifesto

Reasoning and quotes

The plan wants the labour market's rules of play to be set by the parties as much as possible instead of through legislation, and wants the administrative burden on small and newly started businesses to decrease. Restricting the number of tiers of sub-contractors in the regulations and expanding the requirements catalogue in procurement goes in the opposite direction and risks excluding precisely the smaller businesses. The plan therefore speaks against the counter-proposal's demands.

Original (Swedish)

Planen vill att arbetsmarknadens spelregler i mesta möjliga mån sätts av parterna i stället för genom lagstiftning, och att den administrativa bördan för små och nystartade företag minskar. Att i regelverket begränsa antalet led av underentreprenörer och bygga ut kravkatalogen vid upphandling går i motsatt riktning och riskerar att stänga ute just de mindre företagen. Planen talar därför emot motförslagets krav.

  • the parties before legislationdecisive»Centerpartiet förespråkar en modell där spelreglerna för arbetsmarknaden i mesta möjliga mån fastställs mellan« (party programme ↗)“The Centre Party advocates a model where the labour market's rules of play are set to the greatest extent possible between”
  • regulatory simplification for small businesses»Rensa upp i regelträsket för entreprenörer, stora som små. Vi vill införa en ny och förenklad företagsform för mikroföretag, så att fler ska våga testa att driva företag.« (2022 manifesto ↗)“Clean up the regulatory thicket for entrepreneurs, large and small. We want to introduce a new and simplified business form for microenterprises, so that more people dare to try running a business.”
  • competition-neutral regulations»Viktigt är också att näringslivet får konkurrensneutrala regelverk som möjliggör utveckling på en« (party programme ↗)“It is also important that the business sector gets competition-neutral regulations that enable development on a”

flags: citat_blockerat

LLiberalernaYesYesfollows the plannot addressed

The plan is based on conditions on the labour market being mainly determined through agreements and not in law, and that the regulatory burden for small businesses shall be reduced.

Plan documents: party programme

Reasoning and quotes

The plan is based on conditions on the labour market being mainly determined through agreements and not in law, and that the regulatory burden for small businesses shall be reduced. The counter-proposal instead wants to steer conditions on insurance and pensions via procurement requirements and limit the number of subcontractor layers, which raises thresholds and stands in tension with the demand for competition on fair terms. The plan's objection to undeclared work is not enough to support such a detailed intervention.

Original (Swedish)

Planen bygger på att villkoren på arbetsmarknaden i huvudsak bestäms genom avtal och inte i lag, och på att regelbördan för små företag ska minska. Motförslaget vill i stället styra villkor om försäkringar och pensioner via upphandlingskrav och begränsa antalet underentreprenörsled, vilket höjer trösklarna och står i spänning med kravet på konkurrens på rättvisa villkor. Planens motvilja mot svartjobb räcker inte för att bära ett så pass detaljerat ingrepp.

  • agreements before statutory regulationdecisive»Den svenska arbetsmarknadsmodellen, där villkoren i huvudsak bestäms genom« (party programme ↗)“The Swedish labour market model, where conditions are mainly determined through”
  • reduced regulatory burden for small businesses»Regelbördan för små företag ska minska« (party programme ↗)“The regulatory burden for small businesses shall be reduced”
  • competition on fair terms»säkerställer konkurrens på rättvisa villkor« (party programme ↗)“ensures competition on fair terms”
  • prevent undeclared work»systemet för arbetskraftsinvandring inte ska missbrukas för till exempel svartjobb« (party programme ↗)“the system for labour immigration shall not be abused for example undeclared work”
KDKristdemokraternaYesYesfollows the plannot addressed

The plan rejects state direction of wage formation and places the formulation of conditions on the labour market's parties.

Plan documents: party programme

Reasoning and quotes

The plan rejects state direction of wage formation and places the formulation of conditions on the labour market's parties. Requirements for collective agreement conditions and a limit on the number of subcontracting levels in procurement is such direction and moreover places new thresholds on smaller businesses, contrary to the requirement for small business perspective. The plan conversely wants to counter disloyal competition, which partly speaks in the other direction.

Original (Swedish)

Planen avvisar statlig styrning av lönebildningen och lägger villkorens utformning på arbetsmarknadens parter. Krav på kollektivavtalsenliga villkor och tak för antalet underentreprenörsled i upphandlingar är en sådan styrning och lägger dessutom nya trösklar på mindre företag, tvärtemot kravet på småföretagarperspektiv. Planen vill däremot motverka illojal konkurrens, vilket delvis talar åt andra hållet.

  • no state wage controldecisive»Statlig styrning av lönebildningen i form av inkomstpolitik avvisas.« (party programme ↗)“State direction of wage formation in the form of income policy is rejected.”
  • small business perspective on rules»Direkta företagssubventioner avvisas. Tillkommande lagar bör prövas ur ett småföretagarperspektiv.« (party programme ↗)“Direct company subsidies are rejected. Incoming laws should be tested from a small business perspective.”
  • parties' responsibility for conditions»Utformningen ska göras av arbetsmarknadens parter.« (party programme ↗)“The design shall be done by the labour market's parties.”
  • counter disloyal competition»effektiv konkurrenspolitik motverkar oligopol, monopol och illojal konkurrens.« (party programme ↗)“effective competition policy counters oligopoly, monopoly and disloyal competition.”
MModeraternaYesYesfollows the plannot addressed

The plan's commitment to companies is to remove one-third of red tape and administrative costs, not to add new conditional requirements in procurements.

Plan documents: 2022 manifesto · party programme

Reasoning and quotes

The plan's commitment to companies is to remove one-third of red tape and administrative costs, not to add new conditional requirements in procurements. Requiring collectively agreed insurance and pensions and in the main limiting subcontractor chains to two levels instead increases regulatory burden and shuts out smaller companies. The plan therefore speaks against what the counter-proposal requires.

Original (Swedish)

Planens åtagande mot företagen är att avlägsna en tredjedel av regelkrånglet och administrationskostnaderna, inte att lägga till nya villkorskrav i upphandlingar. Att kräva kollektivavtalsenliga försäkringar och pensioner och att i huvudregel begränsa underentreprenörsleden till två ökar tvärtom regelbördan och stänger ute mindre företag. Planen talar därför emot det motförslaget kräver.

  • reduced red tape for companiesdecisive»Ta bort en tredjedel av företagens administrationskostnader och en tredjedel av regelkrånglet« (2022 manifesto ↗)“Remove one-third of companies' administrative costs and one-third of red tape”
  • bureaucracy hinders entrepreneurship»Men höga skatter, krångliga tillståndsprocesser och byråkrati sätter käppar i hjulet för innovation och tillväxt.« (2022 manifesto ↗)“But high taxes, complicated permit processes and bureaucracy put sticks in the wheels of innovation and growth.”
  • strong business freedom»Äganderätten och näringsfriheten ska ha ett starkt skydd i« (party programme ↗)“Property rights and freedom to conduct business shall have strong protection in”
  • free business sector creates prosperity»Sveriges välstånd bygger på ett dynamiskt och livskraftigt näringsliv.« (2022 manifesto ↗)“Sweden's prosperity is built on a dynamic and vigorous business sector.”
SDSverigedemokraternaYesYesfollows the plannot addressed

The plan warns that unnecessarily strict conditions in procurement exclude smaller actors and wishes to simplify rules and reduce small businesses' administrative burden.

Plan documents: 2022 manifesto

Reasoning and quotes

The plan warns that unnecessarily strict conditions in procurement exclude smaller actors and wishes to simplify rules and reduce small businesses' administrative burden. The counter-proposal adds more mandatory condition requirements and limits the number of subcontracting levels, which pulls in the opposite direction. The fact that the plan defends the Swedish model partly speaks for the proposal, but the decisive commitment is regulatory simplification for smaller businesses.

Original (Swedish)

Planen varnar för att onödigt stränga villkor i upphandlingar stänger ute mindre aktörer och vill förenkla regler och avlasta småföretagens administrativa börda. Motförslaget lägger till fler obligatoriska villkorskrav och begränsar antalet underentreprenörsled, vilket drar i motsatt riktning. Att planen försvarar den svenska modellen talar delvis för förslaget, men det avgörande åtagandet är regelförenkling för mindre företag.

  • conditions exclude small businessesdecisive»Onödigt stränga villkor i branschstandarder och i upphandlingar gör det ofta svårt för mindre aktörer att slå sig in på marknaden.« (2022 manifesto ↗)“Unnecessarily strict conditions in industry standards and in procurement often make it difficult for smaller actors to enter the market.”
  • regulatory simplification for small businesses»Verka för regelförenkling och avlasta småföretagens administrativa börda« (2022 manifesto ↗)“Work for regulatory simplification and reduce small businesses' administrative burden”
  • cost-effective rules»Nya regler ska vara kostnadseffektiva och befintliga regler behöver ses över.« (2022 manifesto ↗)“New rules shall be cost-effective and existing rules need to be reviewed.”
  • the Swedish model is valued»Försvara den svenska modellen« (2022 manifesto ↗)“Defend the Swedish model”

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Sources and documents

Documents under consideration

Source: The Swedish Parliament