Sustainable Public Procurement in Europe – Case Studies & Synthesis CSR HLG Meeting on 16 October 2007
Sustainable Public Procurement in EU Member States: Case Studies & Synthesis
Presentation given at the 16th Meeting of the EU High-Level Group on CSRBrussels, 16 October 2007
Reinhard Steurer
Gerald Berger
RIMAS - Research Institute for Managing SustainabilityVienna University of Economics and Business Administration
www.sustainability.eu www.sustainability.eu/csr-policies
Sustainable Public Procurement in Europe – Case Studies & Synthesis CSR HLG Meeting on 16 October 2007
Orientation
1. Context and general remarks …About the project, the survey, the case studies
2. Some survey results commemoratedTypes of instruments etc.
3. The three case studies The „legal framework“ on SPP in FranceThe „strategic framework“ on SPP in the UKGuidelines on SPP/GPP in Austria
4. ConclusionsSynthesis of survey & case study results
Sustainable Public Procurement in Europe – Case Studies & Synthesis CSR HLG Meeting on 16 October 2007
Orientation
1. Context and general remarks …About the project, the survey, the case studies
2. Some survey results commemoratedTypes of instruments etc.
3. The three case studies The „legal framework“ on SPP in FranceThe „strategic framework“ on SPP in the UKGuidelines on SPP/GPP in Austria
4. ConclusionsSynthesis of survey & case study results
Sustainable Public Procurement in Europe – Case Studies & Synthesis CSR HLG Meeting on 16 October 2007
Context
1. The project: „Analysis of national policies on CSR, in support of a structured exchange of information on national CSR policies and initiatives“ is commissioned by DG Employment (Tender No VT/2005/063; www.sustainability.eu/csr-policies)
2. The survey results: Presented at CSR HLG Meeting on 7 May 2007
3. Final report on SPP in Europe summarises survey results (part I), case studies (part II) and synthesis (part III)
4. The case studies & synthesis: Describe selected policy approaches in more detail Highlight relevant success factors and
challenges/obstacles Facilitate an in-depth discussion of different approaches
Sustainable Public Procurement in Europe – Case Studies & Synthesis CSR HLG Meeting on 16 October 2007
General remarks on the case studies
1. Cases selected based on survey, in cooperation with DG Employment (most relevant instruments in countries that make extensive use)
2. Cases considered … …but not selected also briefly described in final report • EKU Tool in Sweden (hybrid instrument: internet platform)• NAP on SPP in the Netherlands• Informational instruments in Denmark, in particular the websites
www.ski.dk (GPP) and http://www.udbudsportalen.dk/socialaftaler (the “Danish Public Procurement Portal on Social Clauses”)
3. Sources of information: • Documents (incl. websites) on the initiatives• 2 interviews per case (from ministries and procuring agency)• Interview partners and questions: Annex IV of final report
Sustainable Public Procurement in Europe – Case Studies & Synthesis CSR HLG Meeting on 16 October 2007
Orientation
1. Context and general remarks …About the project, the survey, the case studies
2. Some survey results commemoratedTypes of instruments etc.
3. The three case studies The „legal framework“ on SPP in FranceThe „strategic framework“ on SPP in the UKGuidelines on SPP/GPP in Austria
4. ConclusionsSynthesis of survey & case study results
Sustainable Public Procurement in Europe – Case Studies & Synthesis CSR HLG Meeting on 16 October 2007
Countries covered in the survey
Green: survey
Orange: other studies
Grey: not covered
Sustainable Public Procurement in Europe – Case Studies & Synthesis CSR HLG Meeting on 16 October 2007
Overview of 103 SPP initiatives found in the surveyOverview of 103 SPP initiatives found in the surveyEducational activities, e.g.
conferences, seminars, trainings; 3.9%
Government-sponsored guidelines; 13.6%
Information resources, e.g. websites, studies,
reports, etc.; 11.7%
Information/awareness raising campaigns; 1.9%
Networks/partnerships/agreements; 1.0%
Decrees, resolutions; 4.9%
Circulars; 4.9%
Action plans/programmes/strategies
for CSR; 27.2%
Platforms/centres/institutions; 5.8%
Informational instruments
Partnering instruments
Legal instruments
Hybrid instruments
Laws; 25.2%
Sustainable Public Procurement in Europe – Case Studies & Synthesis CSR HLG Meeting on 16 October 2007
Overview of SPP initiativesOverview of SPP initiativesEducational activities, e.g.
conferences, seminars, trainings; 3.9%
Government-sponsored guidelines; 13.6%
Information resources, e.g. websites, studies,
reports, etc.; 11.7%
Information/awareness raising campaigns; 1.9%
Networks/partnerships/agreements; 1.0%
Decrees, resolutions; 4.9%
Circulars; 4.9%
Action plans/programmes/strategies
for CSR; 27.2%
Platforms/centres/institutions; 5.8%
Informational instruments
Partnering instruments
Legal instruments
Hybrid instruments
Laws; 25.2%
Economic/financial instruments are missing, but…
Economic/financial instruments are missing, but…
Sustainable Public Procurement in Europe – Case Studies & Synthesis CSR HLG Meeting on 16 October 2007
Overview of SPP initiativesOverview of SPP initiativesEducational activities, e.g.
conferences, seminars, trainings; 3.9%
Government-sponsored guidelines; 13.6%
Information resources, e.g. websites, studies,
reports, etc.; 11.7%
Information/awareness raising campaigns; 1.9%
Networks/partnerships/agreements; 1.0%
Decrees, resolutions; 4.9%
Circulars; 4.9%
Action plans/programmes/strategies
for CSR; 27.2%
Platforms/centres/institutions; 5.8%
Informational instruments
Partnering instruments
Legal instruments
Hybrid instruments
Laws; 25.2%
Indirectly: All SPP initiatives foster CSR by
providing economic/ financial incentives
Sustainable Public Procurement in Europe – Case Studies & Synthesis CSR HLG Meeting on 16 October 2007
0
10
20
30
40
50
60
70
Target groups of SPP initiativesTarget groups of SPP initiatives
Public sector in general; 66.0%
Business; 10.7%
Regional and/or local level; 6.8%
National/federal level; 19.4%
not identified; 8.7%
Others; 1.9%
„Direct“ target group: 92.2% public sector
„Indirect“ target group 100% businesses
„Direct“ target group: 92.2% public sector
„Indirect“ target group 100% businesses
Sustainable Public Procurement in Europe – Case Studies & Synthesis CSR HLG Meeting on 16 October 2007
Focus of SPP initiatives: Environmental and/or social?Focus of SPP initiatives: Environmental and/or social?
Environmental & social
(47.6%)
Environmental only(41.7%)
Social only(6.8%)
Focus not identified (3.9%)
Sustainable Public Procurement in Europe – Case Studies & Synthesis CSR HLG Meeting on 16 October 2007
Orientation
1. Context and general remarks …About the project, the survey, the case studies
2. Some survey results commemoratedTypes of instruments etc.
3. The three case studies The „legal framework“ on SPP in FranceThe „strategic framework“ on SPP in the UKGuidelines on SPP/GPP in Austria
4. ConclusionsSynthesis of survey & case study results
Sustainable Public Procurement in Europe – Case Studies & Synthesis CSR HLG Meeting on 16 October 2007
Overview of SPP initiativesOverview of SPP initiativesEducational activities, e.g.
conferences, seminars, trainings; 3.9%
Government-sponsored guidelines; 13.6%
Information resources, e.g. websites, studies,
reports, etc.; 11.7%
Information/awareness raising campaigns; 1.9%
Networks/partnerships/agreements; 1.0%
Decrees, resolutions; 4.9%
Circulars; 4.9%
Action plans/programmes/strategies
for CSR; 27.2%
Platforms/centres/institutions; 5.8%
Informational instruments
Partnering instruments
Legal instruments
Hybrid instruments
Laws; 25.2%
The legal framework for SPP in France
The legal framework for SPP in France
Sustainable Public Procurement in Europe – Case Studies & Synthesis CSR HLG Meeting on 16 October 2007
EU Directives* on PP: Status of implementation
19: implemented
2 (Es, Lux): in preparation
1: not implemented
5: status unclear
* „Procurement directive“ 2004/18/EC „Utilities directive“ 2004/17/EC
Sustainable Public Procurement in Europe – Case Studies & Synthesis CSR HLG Meeting on 16 October 2007
The legal framework for SPP in France
Type Legal instruments: laws, ordinances, decrees, circulars
Key activities
• Public Procurement Contracts Code/PPCC (“Code des marches publics”): requirements for public procurement have to be defined “by taking into account the objectives of SD”
• Ordinance 2005-649 and decrees (target public entities with commercial purpose)
• Circulars on wood & energy efficiency (give guidance)
Timing 2005-2006
Responsibilities Ministry of Ecology/SD & Min. of Economy & Finance
WebsitePPCC:
http://www.minefi.gouv.fr/directions_services/daj/marches_publics/code2006/comparatif_cmp2006-cmp2004.pdf
Sustainable Public Procurement in Europe – Case Studies & Synthesis CSR HLG Meeting on 16 October 2007
Success factors & recommendations
Too early to assess the impact of the French legal framework on SPP, but the following points were mentioned:
Political backing and constitutional basis (“Charter for the Environment” as Annex to French Constitution)
Follow up: Procurers must state how they have integrated SD or justify why they did not (statistical analysis possible)
Legal framework rather than single law: General legal provisions are complemented with more specific guidelines (circulars)
Consultation of other public authorities and businesses
Sustainable Public Procurement in Europe – Case Studies & Synthesis CSR HLG Meeting on 16 October 2007
Challenges
Legal framework is an important basis for SPP, but fostering SPP also requires:
Training
Training
Training
Sustainable Public Procurement in Europe – Case Studies & Synthesis CSR HLG Meeting on 16 October 2007
Challenges
Legal framework is an important basis for SPP, but fostering SPP also requires:
Training of public procurers to help them understand the integrative nature of Sustainable Development
Training
Training
Sustainable Public Procurement in Europe – Case Studies & Synthesis CSR HLG Meeting on 16 October 2007
Challenges
Legal framework is an important basis for SPP, but fostering SPP also requires:
Training of public procurers to help them understand the integrative nature of Sustainable Development
Training of public procurers to help them implement the new legal requirements/possibilities
Training
Sustainable Public Procurement in Europe – Case Studies & Synthesis CSR HLG Meeting on 16 October 2007
Challenges
Legal framework is an important basis for SPP, but fostering SPP also requires:
Training of public procurers to help them understand the integrative nature of Sustainable Development
Training of public procurers to help them implement the new legal requirements/possibilities
Training of public procurers so that they understand the economics/efficiency of SPP
Sustainable Public Procurement in Europe – Case Studies & Synthesis CSR HLG Meeting on 16 October 2007
Orientation
1. Context and general remarks …About the project, the survey, the case studies
2. Some survey results commemoratedTypes of instruments etc.
3. The three case studies The „legal framework“ on SPP in FranceThe „strategic framework“ on SPP in the UKGuidelines on SPP/GPP in Austria
4. ConclusionsSynthesis of survey & case study results
Sustainable Public Procurement in Europe – Case Studies & Synthesis CSR HLG Meeting on 16 October 2007
Overview of SPP initiativesOverview of SPP initiativesEducational activities, e.g.
conferences, seminars, trainings; 3.9%
Government-sponsored guidelines; 13.6%
Information resources, e.g. websites, studies,
reports, etc.; 11.7%
Information/awareness raising campaigns; 1.9%
Networks/partnerships/agreements; 1.0%
Decrees, resolutions; 4.9%
Circulars; 4.9%
Action plans/programmes/strategies
for CSR; 27.2%
Platforms/centres/institutions; 5.8%
Informational instruments
Partnering instruments
Legal instruments
Hybrid instruments
Laws; 25.2%
The strategic framework for SPP in the UK
The strategic framework for SPP in the UK
Sustainable Public Procurement in Europe – Case Studies & Synthesis CSR HLG Meeting on 16 October 2007
Member States with National Action Plans on SPP/GPP
9: NAP adopted
7: NAP in preparation/ drafted
3: No (draft) NAP
8: Status unclear
Sustainable Public Procurement in Europe – Case Studies & Synthesis CSR HLG Meeting on 16 October 2007
The strategic framework for SPP in the UK
Type Hybrid instruments: strategies and action plans
Key activities
• UK Government Sustainable Procurement Action Plan (“the UK aims to be a leader in SPP by 2009”; it contains quantified goals on CO2, energy efficiency and waste reduction)
• Transforming Government Procurement (aims to build capacity and capability for SPP)
• SD Action Plans of Government Departments (assessed by SD Commission)
Timing First two: 2007; departmental plans: 2005
Responsibilities DEFRA (Environment Dep), Treasury, others
WebsiteUK Action Plan:http://www.sustainable-development.gov.uk/publications/pdf/SustainableProcurementActionPlan.pdf
Sustainable Public Procurement in Europe – Case Studies & Synthesis CSR HLG Meeting on 16 October 2007
Success factors & recommendations
Too early to assess the impact of the strategic framework, but the following points were mentioned:
Political commitment to make SPP a government priority
Experience and good track record in strategic management
Consultation of stakeholders (other departments and businesses)
Strategies on SPP should also aim to build evidence about the economic advantages of SPP
Sustainable Public Procurement in Europe – Case Studies & Synthesis CSR HLG Meeting on 16 October 2007
Challenges
“Value for money” (“cost-benefit ratio”) of SPP still not quantified …
… thus, potentially higher costs often regarded as unjustified strains on the budget
Building capacity and capability for SPP with guidelines, trainings etc.
Sustainable Public Procurement in Europe – Case Studies & Synthesis CSR HLG Meeting on 16 October 2007
Orientation
1. Context and general remarks …About the project, the survey, the case studies
2. Some survey results commemoratedTypes of instruments etc.
3. The three case studies The „legla framework“ on SPP in FranceThe „strategic framework“ on SPP in the UKGuidelines on SPP/GPP in Austria
4. ConclusionsSynthesis of survey & case study results
Sustainable Public Procurement in Europe – Case Studies & Synthesis CSR HLG Meeting on 16 October 2007
Overview of SPP initiativesOverview of SPP initiativesEducational activities, e.g.
conferences, seminars, trainings; 3.9%
Government-sponsored guidelines; 13.6%
Information resources, e.g. websites, studies,
reports, etc.; 11.7%
Information/awareness raising campaigns; 1.9%
Networks/partnerships/agreements; 1.0%
Decrees, resolutions; 4.9%
Circulars; 4.9%
Action plans/programmes/strategies
for CSR; 27.2%
Platforms/centres/institutions; 5.8%
Informational instruments
Partnering instruments
Legal instruments
Hybrid instruments
Laws; 25.2%
Guidelines for SPP/GPP in
Austria
Guidelines for SPP/GPP in
Austria
Sustainable Public Procurement in Europe – Case Studies & Synthesis CSR HLG Meeting on 16 October 2007
Guidelines on SPP/GPP in Austria
Type Informational instruments
Key activities
• General Government Guidelines on GPP from 1998; update from 2004 not adopted by government because of “unclear follow-up costs of GPP”
• “Check it” criteria catalogue for GPP: LIFE project, 11 modules provide detailed information on various product groups
• “Greening events”: guideline for sustainable event management that covers 10 environmental and 2 social topics, followed by similar initiatives
Timing 1998 – 2001 (“Check it”) – 2005 (“Greening Events”)
ResponsibilitiesEnvironment Ministry, in cooperation with other Ministries and, more recently, with Federal Procurement Agency
Website “Check it” (only document in English) http://www.ifz.tugraz.at/oekoeinkauf/index_en.php
Sustainable Public Procurement in Europe – Case Studies & Synthesis CSR HLG Meeting on 16 October 2007
Success factors & recommendations
Develop practical and easy to use guidelines …
… through a close cooperation between • sustainable development experts, • procurement practitioners and • businesses
Address the issue of “value for money” (also in guidelines)
Sustainable Public Procurement in Europe – Case Studies & Synthesis CSR HLG Meeting on 16 October 2007
Challenges
Develop practical and easy to use guidelines …
… through a close cooperation between • sustainable development experts, • procurement practitioners and • businesses
“Value for money” argument
Broaden focus from Green to Sustainable Public Procurement
Sustainable Public Procurement in Europe – Case Studies & Synthesis CSR HLG Meeting on 16 October 2007
Orientation
1. Context and general remarks …About the project, the survey, the case studies
2. Some survey results commemoratedTypes of instruments etc.
3. The three case studies The „legal framework“ on SPP in FranceThe „strategic framework“ on SPP in the UKGuidelines on SPP/GPP in Austria
4. ConclusionsSynthesis of survey & case study results
Sustainable Public Procurement in Europe – Case Studies & Synthesis CSR HLG Meeting on 16 October 2007
Conclusions
Policies on SPP are dominated by laws, action plans and guidelines
The number of SPP initiatives seems to relate to the actual GPP performance
SPP is dominated by GPP (8 of 16 NAPs focus on GPP)
Value for money is a guiding principle of public procurement and SPP
These 3 complementary instruments have
developed into a standard set of SPP policy-making
across the EU
These 3 complementary instruments have
developed into a standard set of SPP policy-making
across the EU
But: the effectiveness of the different SPP
instruments should be assessed in depth
But: the effectiveness of the different SPP
instruments should be assessed in depth
Sustainable PP should reflect economic, social and environmental aspects SD
Sustainable PP should reflect economic, social and environmental aspects SD
SPP initiatives should pro-actively use the value for money argument for their
own purposes
SPP initiatives should pro-actively use the value for money argument for their
own purposes
Sustainable Public Procurement in Europe – Case Studies & Synthesis CSR HLG Meeting on 16 October 2007
Conclusions II
SPP initiatives often fail because of a lack of relevant (legal) knowledge and expertise among procurers
Respective capacities for SPP can be built with many complementary informational instruments, such as campaigns, guidelines and trainings
High-level political commitment, the involvement of procurers and other stakeholders and bottom-up ownership are key success factors for SPP
Procurers must be educated and trained to implement laws and
NAPs on SPP
Procurers must be educated and trained to implement laws and
NAPs on SPP
But: these initiatives are only effective if they address the
needs and concerns of public procurers
But: these initiatives are only effective if they address the
needs and concerns of public procurers
NAPs and other strategic approaches to SPP should
focus also on how to secure these success
factors
NAPs and other strategic approaches to SPP should
focus also on how to secure these success
factors
Sustainable Public Procurement in Europe – Case Studies & Synthesis CSR HLG Meeting on 16 October 2007
[email protected] - Research Institute for Managing Sustainability
Vienna University of Economics and Business Administration
www.sustainability.euwww.sustainability.eu/csr-policies
Thanks for your support so far ---
and for the upcoming final study on SRI!
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