sou · H7B325 · 2019-06-04 00:00:00 — Vi föreslår att det i uthyrningslagen införs två nya bestämmelser som ger svenska kundföretag en skyldighet att lämna information till bemanningsföretag. Ett kundföretag som avser att sända ut en inhyrd arbetstagare till ett annat land inom EES eller ska informera bemannings- företaget om åtgärden, om den sker inom ramen för en gränsöver- skridande tjänsteutövning som kundföretaget ska bedriva i det andra landet. Informationen ska lämnas senast innan åtgärden vidtas, eller annars så snart det kan ske. Kundföretag ska vidare informera ett bemanningsföretag som utstationerar arbetstagare till kundföretaget om vilka villkor som kund- företaget tillämpar på de områden som omfattas av likabehandlings- principen i 6 § uthyrningslagen. En skyldighet att lämna sådan in- formation föreslås dock bara gälla om bemanningsföretaget begär det och informationen ska då lämnas senast efter att begäran lämnades. Vi föreslår att de föreslagna lagändringarna ska träda i kraft den 30juli 2020 med vissa övergångsbestämmelser. Enligt en sådan över- gångsbestämmelse ska i fråga om vägtransportsektorn utstationer- ingslagen och uthyrningslagen i dess nuvarande lydelse tillämpas till dess en lagstiftningsakt om ändring av och rådets direktiv /22/EG vad gäller tillsynskrav och om fastställande av särskilda bestämmelser med avseende på direktiv /71/EG och direk- tiv 2014/67/EU för utstationering av förare inom vägtransportsektorn börjar tillämpas. Kort om utstationeringsdirektivet och det svenska genomförandet Utstationeringsdirektivet antogs 1996 och genomfördes i genom utstationeringslagen. –med viss förenkling – att vissa angivna typer av arbets- och anställ- ningsvillkor i ett land ska tillämpas på utstationerade arbetstagare som utför arbete i landet, även om ett annat lands lag är tillämplig på anställningsförhållandet. Med en utstationerad arbetstagare avses i utstationeringslagen en arbetstagare som vanligen arbetar i ett annat land men som sänds till för att utföra arbete i samband med att hans eller hennes arbetsgivare utför en gränsöverskridande tjänst här i landet. För att det ska röra sig om en utstationering enligt lagen ska arbetsgivaren vara etablerad i ett annat land än . I utstationeringslagen pekas vissa lagreglerade villkor ut som sådana som arbetsgivare ska tillämpa på sina arbetstagare vid en ut- stationering i . Villkoren motsvarar de områden som anges i utstationeringsdirektivets s.k. ”hårda kärna”. När det gäller villkor om lön i denna ”hårda kärna” finns ingen lagreglering i svensk rätt. Vid det ursprungliga genomförandet av utstationeringsdirektivet förutsattes att det utan särskilda begränsningar var tillåtet att vidta stridsåtgärder mot utstationerande tjänsteföretag i syfte att teckna sedvanliga kollektivavtal, bl.a. med villkor om lön. Efter att i den s.k. Lavaldomen haft synpunkter på det svenska genomförandet av utstationeringsdirektivet gjordes vissa ändringar i framför allt utstationeringslagen, den s.k. lex . Ändringarna innebar bl.a. att vissa särskilda förutsätt- ningar infördes för att svenska arbetstagarorganisationer ska få vidta stridsåtgärder i syfte att reglera villkoren för utstationerade arbets- tagare. En sådan förutsättning har varit att endast minimi- lön och, med viss förenkling, minimivillkor på övriga områden inom utstationeringsdirektivets ”hårda kärna” får genomdrivas med stöd av stridsåtgärder. För att få genomdrivas med stöd av sådana åtgärder ska villkoren ha hämtats ur ett centralt kollektivavtal som i tillämpas på motsvarande arbetstagare i den aktuella branschen. När det gäller utstationerade uthyrda arbetstagare ska villkoren vara hämtade ur ett kollektivavtal som tillämpas i hela på motsvarande arbetstagare i uthyrningsbranschen och som respek- terar det skydd för arbetstagarna som regleras i och rådets direktiv /104/EG om arbetstagare som hyrs ut av bemanningsföretag (bemanningsdirektivet). I sådana fall är inte de villkor som får krävas med stöd av stridsåtgärder begränsade till miniminivå. gäller de särskilda förutsättningarna för att vidta stridsåtgärder i utstationeringslagen endast när arbetsgivaren är etable- rad inom EES eller . I utstationeringslagen finns ett antal regler som syftar till att under- lätta för utländska tjänsteutövare att ta reda på vilka villkor som kan komma att bli tillämpliga vid en utstationering i . Exempelvis är svenska arbetstagarorganisationer skyldiga att ge in sådana villkor i kollektivavtal som får genomdrivas med stöd av stridsåtgärder till , där de hålls tillgängliga för var och en att ta del av. En viss situation jämställs med utstationering Genom ändringsdirektivet ska en situation som inte har reglerats i utstationeringsdirektivet anses utgöra en utstationering. Det rör sig om det fallet att en uthyrd arbetstagare av kundföretaget, dvs. någon annan än arbetsgivaren, sänds ut till ett annat land för att utföra arbete där för kundföretagets räkning. Om förutsättningarna i övrigt är uppfyllda för det ska i sådana fall arbetsgivaren anses ha utstationerat arbetstagaren och alltså vara skyldig att tillämpa de regler i värdlandet som är tillämpliga vid en utstationering där. Ett kundföretag som på det beskrivna sättet sänder en inhyrd arbetstagare till ett annat land ska informera arbetstagarens arbets- givare om åtgärden. Villkoren i utstationeringsdirektivets ”hårda kärna” Genom ändringsdirektivet har begreppet minimilön i utstationer- ingsdirektivets ”hårda kärna” i artikel 3.1 ersatts med begreppet lön. En lön enligt direktivet ska innefatta alla komponenter som är obligatoriska enligt det system som respektive medlemsstat använ- der för att fastställa lönen. Vidare har till den ”hårda kärnan” lagts villkor för inkvartering samt villkor om ersättning för utgifter för resa, kost och logi för arbetstagare som är borta från hemmet av yrkesmässiga skäl. När det gäller den senare typen av ersättningar klargörs att det ska röra sig om utgifter som utstationerade arbetstagare har ådragit sig under själva utstationeringen, dvs. för exempelvis resor till och från arbetet inom värdlandet. Genom ändringsdirektivet har vidare tydliggjorts att frågan om en utstationerad arbetstagares eventuella rätt till ersättning för utgifter som faktiskt har uppkommit till följd av utstationeringen ska avgö- ras enligt den nationella lagstiftning eller praxis som är tillämplig på anställningsförhållandet, dvs. i normalfallet utsändningslandets regler. Likabehandling av utstationerade uthyrda arbetstagare När det gäller utstationerade uthyrda arbetstagare anges i det änd- rade utstationeringsdirektivet att sådana arbetstagare ska ha rätt till samma arbets- och anställningsvillkor som inhemska uthyrda arbets- tagare har rätt till enligt likabehandlingsprincipen i bemanningsdirek- tivets artikel 5. Ett kundföretag som anlitar ett bemanningsföretag från ett annat medlemsland ska informera företaget om vilka villkor på relevanta områden som det tillämpar. Villkoren vid långvarig utstationering Genom ändringsdirektivet ska även andra arbets- och anställnings- villkor utöver de som finns i utstationeringsdirektivets hårda kärna tillämpas av arbetsgivaren när en utstationering har pågått (långvarig utstationering). Om arbetsgivaren gör vad som kallas en motiverad anmälan ska dessa ytterligare villkor börja tillämpas först efter 18 månaders utstationering. När det avgörs hur länge en utstationering har pågått ska flera arbetstagares utstationer- ingstid läggas samman om de för arbetsgivarens räkning har ersatt varandra för att utföra samma arbete på samma plats. Vissa villkorstyper undantas och ska alltså inte enligt utstatio- neringsdirektivet tillämpas heller vid långvarig utstationering i värd- landet. Det rör sig dels om villkor som rör ingående och upphörande av anställningsavtal, inklusive konkurrensklausuler, dels villkor om kompletterande tjänstepensionssystem. Information om villkor m.m. Genom ändringsdirektivet har utstationeringsdirektivet tillförts vissa bestämmelser som handlar om offentliggörande av information om vilka villkor som kan bli tillämpliga vid en utstationering i landet, om samarbete mellan myndigheter nationellt och mellan medlems- staterna samt om övervakning, kontroll och efterlevnad av att den reglering som i respektive medlemsstat genomför utstationerings- direktivet följs. I denna del kan särskilt nämnas ett krav på att information om lönekomponenter som används när en lön i den mening som avses i utstationeringsdirektivets ”hårda kärna” fastställs ska offentliggöras på en officiell nationell webbplats, i fall . Detsamma gäller information om vilka villkor som ska tillämpas vid en långvarig utstationering i värdlandet. Om det inte på den enda officiella webbplatsen anges vilka villkor som ska tillämpas vid en utstationering ska den omständigheten enligt nationell lagstiftning eller praxis kunna beaktas när sanktioner för överträdelser av de nationella bestämmelser som genomför utsta- tioneringsdirektivet fastställs. This Commission of Inquiry was tasked with submitting proposals as to how Directive (EU) 2018/957 of Parliament and of the Council amending Directive 96/71/EC concerning the posting of workers in the framework of the provision of services (hereinafter the ‘Amending Directive’) should be implemented in Swedish law. Under the Commission of Inquiry’s Terms of Reference, one objective of this work has been to achieve equal treatment, as far as possible, between posted (non-resident) workers and resident workers while respecting the free movement of services. In accordance with the Terms of Reference, the starting point for our deliberations and proposals has been the Swedish labour market model and the current system that implements the Posted Workers Directive in . The Commission of Inquiry’s proposals A specific situation is to be equated with posting We propose an amendment to the Posting of Workers Act which would mean that a measure by a service provider other than the worker’s employer that entails sending the worker to is equated with ‘a posting’ under the Act. For this to occur, the worker’s employer is to have hired out the worker or otherwise placed the worker at the disposal of the company that sends him or her to . Both of these companies are to be established in a country other than , but they may be established in the same country or in different countries. In all other respects, the situation is to be such that the user undertaking’s measure to send the worker to would have constituted a posting if the user undertaking had been the worker’s employer. Regardless of the type of service to be provided by the undertaking that has in fact sent the worker to , in all cases this situation is to be equated with the worker having been hired out or otherwise placed at the disposal of the recipient of the service in . If the conditions under this provision are met, in applying the Posting of Workers Act, the employer shall be deemed to be the person that has posted the worker in . Industrial action may be taken to enforce demands for remuneration and some allowances/reimbursements We have assessed that the substantive changes in the Posted Workers Directive’s ‘hard core’ in Article 3(1) first paragraph through the Amending Directive relate exclusively to terms and conditions of employment in areas where there are no laws, regu- lations or administrative provisions in . terms and conditions in these areas that may come into question in relation to a posting in are thus solely to be found in collective agree- ments. Consequently – for the purpose of implementing this part of the Amending Directive – we propose changes in the Posting of Workers Act only with regard to the conditions under which Swedish trade unions may take industrial action with the aim of enforcing the terms and conditions of employment for posted workers contained in collective agreements. The concept of “minimum rate of pay” is replaced by “remuneration” We propose that Swedish trade unions – under the same conditions otherwise as those that apply today – may take industrial action aimed at bringing about a regulation by collective agreement of the terms and conditions applying to posted workers for remuneration, instead of a minimum rate of pay, as is the case today. However, the remuneration demanded with the aid of industrial action is not to exceed the remuneration that an employer who is bound by the central collective agreement from which the remuneration demand derives is required to pay in an equivalent situation. In the same as is the case today, it will be up to Swedish trade unions to determine what remuneration may be demanded with the aid of industrial action as a last resort in relation to com- panies posting workers in . The amendments in this part of the Posted Workers Directive give expression to the principle that foreign companies who post workers in are to be treated in the same way as Swedish employers in an equivalent situation; something that our proposal for their implementation also means. Conditions concerning reimbursement of certain types of expenditure during a posting We propose that industrial action – under otherwise the same conditions as today – may be taken to enforce demands for terms and conditions where applicable relating to accommodation pro- vided by the employer, and those relating to allowances for or the reimbursement of expenditure to cover , board and lodging expenses. Where there are terms and conditions in a Swedish central collective agreement that entitle workers to accommodation and defining how this accommodation is to be arranged, then these terms and conditions, provided that the requirements are otherwise met, may be enforced with the aid of industrial action against a company posting workers in . The same applies to any terms and conditions relating to allowances for or reimbursement of expenditure to cover , board and lodging expenses. However, according to our proposal, such terms and conditions may only be enforced with the aid of industrial action if they are designed so as to give an entitlement to an allowance or reimbursement when the posted worker to and from his or her regular place of work in , and when he or she is sent by the employer to work at a different workplace than his or her regular place of work during the posting period. Determination of whether the employer has paid the correct remuneration We propose that Article 3(7) in the amended Posted Workers Directive is implemented in Swedish law by stating in the Posting of Workers Act that the remuneration which the employer has paid as allowances or reimbursement for expenditure actually incurred by the worker as a consequence of the posting, i.e., typically for travelling to or from and for increased living expenses a result of the posting itself, shall not be counted in determining whether the worker has received remuneration commensurate with what the Posted Workers Directive provides for. We also propose – in line with Article 3(7) third paragraph in the amended Posted Workers Directive – that all paid remuneration shall be deemed to constitute allowances for or reimbursement of expenses incurred by the worker as a consequence of the posting unless the employer can, on request, demonstrate which part of the remuneration constitutes the worker’s wage or salary, and which part constitutes allowances for or reimbursement of the worker for expenditure that he or she has actually incurred as a consequence of the posting. The principle of equal treatment in theAgency Work Act is to apply to posted temporary agency workers in We find that the amended provisions on equal treatment of posted temporary agency workers in the Posted Workers Directive make it necessary to make the principle of equal treatment in Section 6 of the Agency Work Act applicable to posted workers in . This means that posted temporary agency workers in are to be entitled inter alia to the same remuneration as the user undertaking applies to equivalent workers who are employees of the undertaking. The exemptions from the application of the principle of equal treat- ment afforded under the Agency Work Act, for example in cases where the worker is a permanent employee of the temporary agency and has the right to pay between assignments, shall also apply in the case of a posting. On the same basis as afforded to Swedish companies, it is to be possible to derogate from the principle of equal treatment by signing a collective agreement with a trade union. We are not proposing any changes in the conditions under which Swedish trade unions may take industrial action aimed at bringing about a regulation by collec- tive agreement of the terms and conditions applying to posted temporary agency workers. Additional terms and conditions of employment regulated in statute are to be applied in the case of long-duration postings We propose that, in addition to the statutory provisions already applicable under the current rules, employers of workers who have been posted in for more than 12 months are to apply the statutory terms and conditions of employment applicable for equiv- alent workers in . We propose that exemptions shall apply in the case of procedures, formalities and conditions of the conclusion and termination of employment contracts. Where an employer submits a motivated notification to the Swedish Work Environment Authority, the additional terms and conditions shall begin to apply only after the posting has lasted for 18 months. This notification is to state which worker(s) it refers to, and provide reasons why the time limit should be extended. The notification must be submitted to the Swedish Work Environment Authority no later than the day on which the worker(s) referred to in the notification have been posted in for 12 months. We have determined that the additional statutory terms and conditions which may be applicable in the case of long-duration postings are relatively few, and in all probability generally of less practical importance. These are primarily provisions in the legisla- tion governing legal rights to leave, where posted workers of long duration should have the same entitlements under the same condi- tions as resident workers to leave for, for example, urgent family reasons. We have also assessed that certain rules in lagen (1982:80) om anställningsskydd (the Employment Protection Act), such as an employer’s obligation to provide information to employees while under contract and the employee’s right to pay during a lay-off, are terms and conditions of employment which are to apply to long- duration posted workers in . Scope to enforce collective agreement terms and conditions expanded for long-duration postings As part of the implementation of the amended Posted Workers Directive’s rules concerning long-duration postings, we propose that, under certain specified conditions, it shall be permitted to resort to industrial action to enforce terms and conditions of employment other than those that under the Posting of Workers Act may otherwise be enforced with the aid of industrial action against a company posting workers in . In the same way as is the case today, this rule shall apply only when industrial action is taken against companies from other countries within the EEA or . Services are to be provided or have been provided for more than 12 months We propose that a fundamental prerequisite for the expansion of the right to take industrial action shall be that the service that a company posting workers in is to perform for a user undertaking in is provided or has been provided for more than 12 months. If the service is to be provided for a shorter period of time than this, it is our assessment that it is not justified, in view of the freedom to provide services within the EU, to hinder the provision of a service by means of industrial action in order to enforce terms and con- ditions which are not applicable anyway. The same conditions for demands as apply today In addition to the service being performed or having been performed for a certain period of time, we propose that the basic prerequisites for taking industrial action against employers posting workers in that apply today shall also apply when the demands being made relate to the terms and conditions for long-duration posted workers. The terms and conditions so enforced shall thus also be taken from the same type of collective agreement and, where there is also regulation in statute, the terms and conditions are to afford the workers greater protection than the terms and conditions under that regulation. Furthermore, the terms and conditions are to be designed in such a way that they do not hinder the application of any better terms and conditions that the posted worker may have recourse to, for example under a collective agreement in their home or under their employment contract. Special demands concerning terms and conditions for long-duration postings Our proposal places special demands in two respects on the design of collective agreement terms and conditions if they are to be enforceable with the aid of industrial action as a last resort. One such demand is that the terms or conditions are to be applied only to those workers of the employer who have been posted in for more than 12 months. The terms and conditions are to be designed so that they become applicable only after a posting of 18 months’ duration in cases where the employer has submitted a motivated notification to the Swedish Work Environment Authority which results in the application of the statutory terms and conditions applicable to long-duration postings being postponed (see above). Another special demand placed on these terms and conditions which, under our proposal, would be enforceable with the aid of industrial action, is that they do not relate to procedures, formalities and conditions of the conclusion and termination of employment contracts, non-competition or supplementary occupational retirement pension schemes. In other words, these are terms and conditions that under the amended Posted Workers Directive are to be exempt from application to posted workers, even when the posting is of long duration. The worker’s entitlement to the terms and conditions in collective agreements It is proposed that the entitlement to the terms and conditions in a collective agreement that a posted worker under certain conditions has under today’s rules shall also apply to the terms and conditions in the collective agreement which the trade union has the right to enforce though industrial action in the case of long-duration postings. Such cases are where, under the current rules, a posted worker has the right as an individual to invoke some of the terms and conditions in a collective agreement even though he or she is not a member of the contracting trade union. Trade unions’ right to certain documents It is proposed that the obligation that an employer posting workers in has under the current rules concerning the provision of certain documents to Swedish trade unions on request, under the same conditions in all other respects, shall also apply to documents needed to check compliance with the terms and conditions in the collective agreement applicable to long-duration posted workers. The periods that two or more workers have been posted in to be aggregated in certain cases We propose, in line with the amended Posted Workers Directive, that the time that two or more workers have been posted in in order to perform the same work at the same place is to be aggregated when determining the length of time that a worker has been posted in . Such an aggregation of time is prompted when determining whether the statutory conditions applicable to long-duration postings in are to apply to a specific worker.