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Strategic Use of Public Procurement in Promoting Green, Social and Innovation Policies” Final Report

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Strategic Use of Public Procurement in Promoting Green, Social and Innovation Policies” Final Report Study on “Strategic use of public procurement in promoting green, social and innovation policies” Final Report DG GROW Framework Contract N°MARKT/2011/023/B2/ST/FC for Evaluation, Monitoring and Impact Assessment of Internal Market DG Activities Written by PwC December – 2015 EUROPEAN COMMISSION Directorate-General for Internal Market, Industry, Entrepreneurship and SMEs Directorate G— Single Market for Public Administrations Unit G.4 — Innovative and E-Procurement E-mail: [email protected]@ec.europa.eu European Commission B-1049 Brussels EUROPEAN COMMISSION Study on “Strategic Use of Public Procurement in promoting green, social and innovation policies” Final Report 2015 Directorate-General for Internal Market, Industry, Entrepreneurship and SMEs Strategic use of public procurement in promoting green, social and innovation policies Europe Direct is a service to help you find answers to your questions about the European Union. Freephone number (*): 00 800 6 7 8 9 10 11 (*) The information given is free, as are most calls (though some operators, phone boxes or hotels may charge you). LEGAL NOTICE This document has been prepared for the European Commission however it reflects the views only of the authors, and the Commission cannot be held responsible for any use which may be made of the information contained therein. More information on the European Union is available on the Internet (http://www.europa.eu). Luxembourg: Publications Office of the European Union, 2015 © European Union, 2015 Reproduction is authorised provided the source is acknowledged. Printed in Belgium TABLE OF CONTENTS EXECUTIVE SUMMARY .................................................................................. 4 GLOSSARY OF ACRONYMS ............................................................................ 9 1. INTRODUCTION ................................................................................... 10 1.1. Background and context of strategic public procurement ............................. 10 1.2. Objectives and scope of the study ............................................................ 13 2. METHODOLOGICAL APPROACH ............................................................ 16 2.1. Desk research ........................................................................................ 16 2.2. TED data analysis ................................................................................... 17 2.3. Semi-structured interviews ...................................................................... 19 3. NATIONAL FRAMEWORKS OF STRATEGIC PUBLIC PROCUREMENT ....... 22 3.1. Level of institutionalisation of strategic public procurement ......................... 22 3.2. Mandatory vs. voluntary .......................................................................... 25 3.3. Use of Targets ....................................................................................... 28 4. SUPPORT ACTIONS TO STRATEGIC PUBLIC PROCUREMENT ................. 31 4.1. Specific support bodies at national level .................................................... 31 4.2. Guidance and tools ................................................................................. 33 4.3. Awareness-raising through training, networks and EU projects ..................... 36 5. PRACTICES OF STRATEGIC PUBLIC PROCUREMENT ............................. 40 5.1. Estimated magnitude of strategic public procurement ................................. 40 5.2. Analysis of links with national policy frameworks ........................................ 46 5.3. Most commonly used criteria and considerations ........................................ 52 5.4. Type of contracting authority ................................................................... 54 5.5. Type of contract ..................................................................................... 56 5.6. Type of procedure .................................................................................. 57 5.7. Incidence of EU co-funding ...................................................................... 58 5.8. Incidence of aggregated procurement ....................................................... 59 5.9. Main sectors of strategic public procurement ............................................. 62 5.10. Deterrent impacts of strategic public procurement ...................................... 65 6. MONITORING AND EVALUATION OF STRATEGIC PUBLIC PROCUREMENT .................................................................................... 68 6.1. Monitoring systems in place ..................................................................... 68 Strategic use of public procurement in promoting green, social and innovation policies 6.2. Targets and monitoring ........................................................................... 71 6.3. Type of monitoring ................................................................................. 72 6.4. Commonly used monitoring indicators ....................................................... 74 6.5. Publication of monitoring results .............................................................. 76 6.6. Evaluations and impact assessment studies ............................................... 77 6.7. National Monitoring results ...................................................................... 78 6.8. National databases on public procurement ................................................. 83 7. IN-DEPTH COUNTRY REPORTS ............................................................. 88 8. CASE STUDIES ..................................................................................... 90 8.1. ÖkoKauf Wien – GPP policy in the City of Vienna ........................................ 90 8.2. Transport for London – Responsible Procurement Policy .............................. 91 8.3. City of Barcelona – The “BCN Open Challenge” competition ......................... 93 9. CONCLUSIONS AND RECOMMENDATIONS ............................................ 96 9.1. Barriers and challenges ........................................................................... 96 9.2. Lessons learnt and recommendations ....................................................... 97 10. APPENDIX .......................................................................................... 105 10.1. Bibliography ........................................................................................ 105 10.2. Detailed methodology for TED data analysis ............................................ 107 10.3. List of key words .................................................................................. 120 10.4. Interview guide .................................................................................... 123 10.5. In-depth country reports ....................................................................... 124 Strategic use of public procurement in promoting green, social and innovation policies LIST OF TABLES Table 1: Estimated magnitude of strategic public procurement based on TED database ................................................................................................................ 6 Table 2: Types of information collected ...............................................................17 Table 3: Value of TED notices as share of total procurement ..................................18 Table 4: Formalised policies in strategic public procurement ..................................24 Table 5: MS with an integrated approach GPP and SRPP ........................................25 Table 6: Mandatory or voluntary approaches to strategic public procurement ...........28 Table 7: Use of targets in strategic public procurement .........................................30 Table 8: Specific support bodies .........................................................................31 Table 9: Examples common guidance for strategic public procurement ....................33 Table 10: Select examples of tools ......................................................................35 Table 11: Comparison of the dataset used for the present study with the 2013 Public Procurement Indicators report. ....................................................................41 Table 12: Estimated magnitude of strategic public procurement in number and value by Member State .......................................................................................44 Table 13: Link GPP policy and uptake .................................................................47 Table 14: Link SRPP policy and uptake ................................................................48 Table 15: Link PPI policy and uptake ...................................................................49 Table 16: Link between presence of targets and level of uptake .............................51 Table 17: Link between mandatory strategic public procurement policies and levels of uptake ......................................................................................................51 Table 18: Most common key terms for GPP ..........................................................53 Table 19: Most common search terms for SRPP ....................................................54 Table 20: Most common search terms for PPI .......................................................54 Table 21: Role of central purchasing body in strategic public procurement ...............62 Table 22: Most common CPV codes in for GPP ......................................................64 Table 23: Most common CPV codes in SRPP .........................................................64
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