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Central Public Procurement Structures and Capacity in Member States of the European Union

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Central Public Procurement Structures and Capacity in Member States of the European Union SIGMA Papers No. 40 Central Public Procurement Structures and Capacity OECD in Member States of the European Union https://dx.doi.org/10.1787/5kml60qdqq0n-en Unclassified GOV/SIGMA(2007)4 Organisation de Coopération et de Développement Economiques Organisation for Economic Co-operation and Development 30-Mar-2007 ___________________________________________________________________________________________ English - Or. English PUBLIC GOVERNANCE AND TERRITORIAL DEVELOPMENT DIRECTORATE Unclassified GOV/SIGMA(2007)4 SIGMA - A JOINT INITIATIVE OF THE OECD AND THE EUROPEAN UNION, PRINCIPALLY FINANCED BY THE EU CENTRAL PUBLIC PROCUREMENT STRUCTURES AND CAPACITY IN MEMBER STATES OF THE EUROPEAN UNION SIGMA PAPER No. 40 This study provides an analysis of the functions, structures and capacity of the central public procurement bodies of Member States. Twenty-two separate overviews of public procurement systems in the 22 participating Member States were produced on the basis of national responses to a detailed questionnaire. An in-depth review of these country system overviews provided the comparative analysis portion of this study, which discusses from different angles the various models in place in Member States. For further information please contact Mr. Peder Blomberg, Sigma; Tel: (33 1) 45 24 85 51 - Email: [email protected] English - Or. English JT03224737 Document complet disponible sur OLIS dans son format d'origine Complete document available on OLIS in its original format GOV/SIGMA(2007)4 SIGMA Support for Improvement in Governance and Management A joint initiative of the OECD and the European Union, principally financed by the EU CENTRAL PUBLIC PROCUREMENT STRUCTURES AND CAPACITY IN MEMBER STATES OF THE EUROPEAN UNION SIGMA PAPER NO. 40 This document has been produced with the financial assistance of the European Union. The views expressed herein can in no way be taken to reflect the official opinion of the European Union, and do not necessarily reflect the views of the OECD and its member countries or of the beneficiary countries participating in the Sigma Programme. 2 GOV/SIGMA(2007)4 THE SIGMA PROGRAMME The Sigma Programme — Support for Improvement in Governance and Management — is a joint initiative of the Organisation for Economic Co-operation and Development (OECD) and the European Union, principally financed by the EU. Working in partnership with beneficiary countries, Sigma supports good governance by: • Assessing reform progress and identifying priorities against baselines that reflect good European practice and existing EU legislation (the acquis communautaire) • Assisting decision-makers and administrations in setting up organisations and procedures to meet European standards and good practice • Facilitating donor assistance from within and outside Europe by helping to design projects, ensuring preconditions and supporting implementation. In 2007 Sigma is working with the following partner countries: • New EU Member States — Bulgaria and Romania • EU candidate countries — Croatia, the former Yugoslav Republic of Macedonia and Turkey • Western Balkan countries — Albania, Bosnia and Herzegovina (State, Federation of BIH, and Republika Srpska), Montenegro, Serbia and Kosovo (governed since June 1999 by the UN Interim Administration Mission in Kosovo – UNMIK) • Ukraine (activities financed by Sweden and the UK). The Sigma Programme supports reform efforts of partner countries in the following areas: • Legal and administrative frameworks, civil service and justice; public integrity systems • Public internal financial control, external audit, anti-fraud, and management of EU funds • Public expenditure management, budget and treasury systems • Public procurement • Policy-making and co-ordination • Better regulation. For further information on Sigma, consult our website: http://www.sigmaweb.org Copyright OECD, 2007 Application for permission to reproduce or translate all or part of this material should be made to: Head of Publications Service, OECD, 2 rue André Pascal, 75775 Paris Cedex 16, France. 3 GOV/SIGMA(2007)4 FOREWORD The Member States of the EU need organisational structures to carry out public procurement functions. These tasks range from the drafting of relevant legislation and development of public procurement policies to the training of procurement officers and publication of contract notices. The majority of EU Member States has central public procurement bodies within their governmental structures. Although differing in terms of responsibilities, functions and tasks, these bodies have several features in common. In comparison with the fairly uniform picture found in the new Member States, the 15 “old” Member States show a more diversified picture. The perceived differences in how central procurement functions have been organised in Member States give rise to a number of basic issues, such as: • the main reasons for the differences between Member States in the establishment of organisational models and functions; • the feasibility of identifying advantages and disadvantages of certain models in organising some of the key responsibilities linked to central procurement functions, taking into consideration the specific circumstances applicable to the new Member States and candidate countries. For the new Member States, the emergence of central public procurement bodies is seen to have contributed strongly to the successful recent development and comparably favourable position of the public procurement systems in these countries. All of the key stakeholders of a public procurement system — including parliament, government, contracting entities, the private sector and citizens — rely extensively on how well public procurement bodies support the development of a sound and efficient national procurement system. The availability of sufficient administrative capacity, whatever organisational model or system is in place, will remain equally important for all current and future Member States. This is particularly the case in view of the foreseen changes that will take place within the next decade in terms of the legislative and regulatory framework, technological development, public sector development, capacity-strengthening and performance measurement, integrity enhancement, and international co-ordination and co-operation. This study provides an analysis of the functions, structure, status within the government, and capacity of the central public procurement bodies of Member States. It does not attempt to evaluate their respective advantages/disadvantages or to recommend particular institutional arrangements. Twenty-two separate overviews of public procurement systems in the 22 participating Member States were produced on the basis of national responses to a detailed questionnaire. An in-depth review of these country system overviews provided the comparative analysis portion of this study, which discusses the various models in place in Member States, in particular the background and rationale for the use of a particular institutional model. It is Sigma’s view that a better understanding and knowledge of the organisation and capacity of central public procurement structures and capacity in EU Member States will serve as an inspiration and assist current and future EU candidate countries and other Sigma partner countries in their efforts to set up or reform their public procurement systems. 4 GOV/SIGMA(2007)4 Methodology This study was carried out by the Sigma Project Team and reviewed by a Peer Team. The necessary data was collected by means of a detailed questionnaire, which was sent in 2006 to Contact Points in the 25 EU Member States at the time as well as to Bulgaria and Romania (EU accession in January 2007). The study reflects the situation in Member States as at August 2006. All Member States have been given the opportunity to comment on the individual country reports (see Appendix). Members of the Sigma Project Team were Mr. Martin Trybus, Mr. Peder Blomberg and Mr. Piotr-Nils Gorecki. A Peer Team was established with the purpose of providing comments on the methodology, the questionnaire, and the draft and final reports. This team was composed of Mr. Tomi Hytonen (Finland), Mrs. Gabriele Herlemann (Germany), Mr. Marian Lemke (Poland), and Mrs. Lourdes Camacho (Portugal). A Network of Contact Points within Member States’ public administrations was created, with the task of providing the Sigma Project Team with the requested documentation and information on how central procurement organisation was structured and perceived. The majority of Contact Points was selected from among members of the European Public Procurement Network (PPN), which is an international co-operation network of public procurement expert officials, involving all EU Member States, EEA Members, Switzerland, EU candidate countries and other European countries. The Sigma Project Team prepared a detailed questionnaire, which was sent to the network of Contact Points for completion. Insofar as possible, the Sigma Project Team and the Peer Team analysed the material as a basis for the preparation of the individual country reports and the comparative analysis. A total of 22 questionnaires were returned to the Sigma Project Team between March and August 2006, namely by Austria, Bulgaria, Cyprus, the Czech Republic, Estonia, Finland, France, Germany, Hungary, Ireland, Italy, Latvia, Lithuania, Luxembourg, Malta, Poland, Portugal, Romania, the Slovak Republic, Slovenia, Sweden and the United Kingdom. A number of remarks need to be made with
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