The procurement function has become more complex than ever, requiring staff not only to have high-level skills in implementing public procurement procedures, but also to be able to deal with issues related to the entire public procurement cycle. In particular, they are expected to possess technical knowledge and skills, such as knowledge of the regulatory framework and drafting tender documents, as well as non-technical skills, such as project management and communicating with a non-expert audience, in order to perform their duties to the best of their ability. This requirement is further reinforced by the increasing use, worldwide, of public procurement as a strategic tool to pursue wider policy objectives, and in particular in France objectives arising from the rich regulatory framework concerning sustainable development (see Chapter 2). (OECD, 2023[1])
Promoting Strategic and Green Public Procurement in France
Abstract
Furthermore, the notion of public procurement implies the expertise of stakeholders that go beyond the strict definition of public buyer. Adequate capacity of public procurement staff is a key element in guaranteeing a sound procurement system and ensuring efficiency and value for money in the use of public funds. The OECD Recommendation devotes a principle to the capacity of public procurement staff. It invites countries to develop a procurement workforce that is capable of continuously optimising the use of public funds in an efficient and effective manner. (OECD, 2015[2]) In addition, the PNAD itself recommends harnessing the power of training to achieve the objective of 100% of procurement procedures including an environmental consideration. (Gouvernement français, 2022[3])
This chapter discusses the initiatives implemented in France to build the capacity of those involved in the state procurement function. It identifies the main challenges and provides key recommendations on building staff capacity in two main areas: 1) training; and 2) practical tools.
Building the capacity of public procurement staff requires an appropriate training system. Some countries have introduced mandatory training courses to enhance the skills of their public procurement officers. In 2020, 35% of OECD countries required public procurement officers to take certain training courses. In Chile, for example, the ChileCompra portal provides mandatory training aligned with the certification framework. This training is a prerequisite for buyers to be able to access the e-procurement system. Most countries offer optional training. However, an OECD report notes that although many countries offer training in public procurement, public procurement officials need more opportunities for training in advanced topics, particularly environmental issues. (OECD, 2023[4])
4.1.1. Strengthening the green public procurement ecosystem requires optimising the role of training
Rationalising and promoting the current training offer
Although training courses on the subject of green procurement exist in France, few buyers decide to take them, seemingly due to a lack of visibility or accessibility. In fact, according to an OECD survey of more than 550 buyers, two-thirds of them have taken a training course related to public purchasing in the last two years. However, of these two-thirds, only 25% had taken training directly related to green procurement, which means that in total only 17% of those surveyed had taken part in training on green procurement (see Figure 4.1).
Source: (OCDE, 2024[5])
The training offer, however, is very broad, with many options available to civil servants working in the State procurement function in France. These courses are provided by several entities (see Figure 4.2), however, there is currently no centralised source of information on the various training options, with each entity promoting its own courses. A centralisation of information on training courses was considered for a time, but abandoned because of the complexity of harmonising the practices and the different cultures of eleven ministries. Consideration could be given to the possibility of centralising information, taking into account the lessons learned from this previous attempt.
The DAE is the leading figure when it comes to training the State's procurement function. Decree 2016-247 of 3 March 2016 creating the DAE states that the DAE shall define the training strategy for those involved in the State's procurement function and shall steer the training on offer in this area, proposing any measures likely to enhance the professionalisation of procurement officers and to structure their career paths within the framework of a procurement branch common to the State's departments and its public bodies. (Gouvernement français, 2016[7])
To this end, and in close collaboration with the IGPDE, which implements some of these courses, the DAE offers two types of training:
A certifying training programme: this interministerial accredited programme covers ministries as well as 124 State bodies. This training offer is designed for three levels: 1) Level 1 for Procurement Officers and Supply experts; 2) Level 2 for Procurement Officers; 3) Level 3 for Procurement Managers and specialised procurement officers. According to statistics provided by the DAE, more than 1,550 employees have been certified from 2018 to 2023.
On demand training modules: these are modular courses designed to enhance specific skills in procurement techniques. It offers basic and advanced modules, as well as modules focusing on cross-cutting procurement skills such as corporate knowledge and green procurement. The content is also accredited as compliant with interministerial procurement strategies.
The content of these training courses, particularly with regard to the environmental dimension, will be discussed in greater detail in the section 4.1.2 below.
These two training programmes are delivered by framework agreement holders working for various training organisations and by occasional in-house trainers. The procurement certification training programmes have been awarded to service providers under an interministerial framework agreement awarded in 2020 (Lot 1) and 2021 (Lots 2 to 8). As a result, 4 contractors are delivering these courses, mainly at the IGPDE (which offers around a third of the courses). The on demand courses can be provided by all the State's internal training bodies, such as the IGPDE, the ministerial training centres (Centre de Formation de la Défense, Sous-Direction du Recrutement et de la Formation, écoles académiques de la formation continue, etc.), the network of civil service training schools, and occasional in-house trainers (civil servants who, regardless of their status, grade or assignment, possess specific knowledge and know-how that they make available to their assigned structure or to another inter-directorate structure). External service providers holding training contracts other than those holding framework agreements may also provide these training courses.
Regardless of the organisation providing the training, the content of the courses must be reviewed and approved by the DAE in an accreditation process. The training strategy for procurement professionals dated 22 July 2016 describes this accreditation process at two levels: 1) the first level focuses on content analysis and is based on the module sheet and training materials of the course: the accreditation can only be granted if the course contents comply with the interministerial objectives; 2) if the course contents do not comply with the interministerial objectives in the first analysis, the assessment of a training session can be planned with the agreement of the training provider, the aim being to check that the course contents really do meet the expected educational objectives and that they are aligned with the interministerial procurement strategies.
In addition to these two courses, the DAE is also managing the “Public Procurement” series on MENTOR, the e-learning platform for civil servants run by the DGAFP. (Direction des Achats de l’État, 2024[6]) This platform hosts 10 procurement training modules. However, as the results of the survey show, this platform remains underused, with only 1% of respondents having used it in the last two years. This lack of use can potentially be explained by the fact that not all ministries are members of the platform. Having a dedicated administrator to lead and promote the ‘Public Procurement’ series would be a good way to ensure that more people take part in the various modules.
Finally, the choice of training organisation depends largely on the training plan of the ministries. Public buyers who wish to receive the trainings that were selected as part of their organisation's annual appraisal of employees can submit their requests to the human resources departments of their organisation, which may or may not accept them depending on their budget availability and/or ministerial priorities. The survey conducted by the OECD reveals a wide variety in the choice of training organisation, with a preference for the IGPDE (see Figure 4.3).
Source: (OCDE, 2024[5])
However, the survey and the fact-finding missions carried out by the OECD revealed that many procurement officers - particularly in the regions - deplore a lack of visibility and communication about the range of training courses on offer, particularly in the environmental field. In fact, only 168 buyers have benefited from one or more training courses focusing on the environmental aspects of procurement over the last two years. Most of the personnel trained come from the Ministry of the Economy, Finance and Industrial and Digital Sovereignty.
This lack of visibility leads some buyers to opt for training provided by green networks/desks, private training, or to organise their own in-house training, as is the case for some regional procurement platforms, which developed their own training modules. Disseminating and communicating about existing training courses, particularly those on green procurement, to the various stakeholders in the State's procurement function could help to promote these courses and ensure greater participation by buyers. The promotion of these training courses at local level could also be strengthened in order to respond to the challenges identified by buyers in the regions.
In addition, the fragmentation of training providers can lead to disparities in access to training, depending on the ministry or even the entity. While some decentralised departments, such as those of the Ministry of National Education or the Ministry of the Armed Forces, have free access to certain training courses, particularly those leading to certification, through their respective Ministerial Procurement Managers, other ministries do not necessarily offer such training for their employees. This means that staff have to attend training courses run by other ministries and, as they are not under their supervision, have to set aside a budget to attend these courses. Certain public bodies, such as the Établissements Publics Industriels et Commerciaux (“public industrial and commercial establishments” or EPICs), are also excluded from free training within their own supervisory Ministry, as the supervision of an EPIC does not include its employees. In addition to this disparity in the availability of training by Ministry, there is also the risk of differences in the content and quality of training among the various training bodies, despite the DAE's accreditation. In Latvia, for example, the Procurement Monitoring Bureau (PMB) is responsible for providing training in public procurement. As such, in cooperation with the School of Public Administration, PMB launched in 2003, a training programme for procurement specialists, one of the modules being “Strategic procurement planning and Management", which includes also planning of green public procurement. PMB also developed a free-of-charge online module on strategic public procurement. (Procurement Monitoring Bureau of Latvia, 2024[8]) In Poland, the Office for Public Procurement has launched a “Professionalisation of public procurement staff” project to provide common training for some 1,963 staff (see Box 4.1).
This project implemented by the PPO of Poland aims at professionalising public procurement by supporting public officials involved in the process of preparation, awarding, supervision and control of public procurement at the public administration (central and local governments) as well as at control and audit institutions in Poland.
As part of this project activities, the following training modules were offered:
Open electronic training on the PPO website
Two-day training courses on the public procurement process
Two-day training courses on sustainable public procurement (green public procurement and socially responsible procurement)
The project was implemented by the PPO over the period 2020-2023 and included various forms of training activities. In total, 86 training courses, 14 conferences and 5 seminars were organised, attended by 5,914 people.
Consideration could therefore be given to designating a single training body for green procurement, accessible to all those involved in the State's procurement function, regardless of the organisation to which they belong, thus ensuring an equal level of training for all buyers. This body could be responsible for providing a common core of training, both face-to-face and online via the State's MENTOR platform.
Taking account of geographical location and cost in the development of training opportunities
The decentralised State services in France's regions account for a significant proportion of the State's purchasing. In 2022, out of a total State expenditure of approximately 22.5 billion euros (central administration and decentralised services, excluding public bodies), the regions represented an expenditure of more than 8 billion euros. (Direction des Achats de l’État, 2024[6]) However, those involved in the State's procurement function in the regions have little access to existing training. The PNAD itself stresses that despite the existence of a variety of tools available to purchasers, their level of knowledge varies widely. (Gouvernement français, 2022[3]) Analysis of the self-assessment carried out by 555 buyers on 26 distinct skills (see Annex A) also illustrates the different levels of skills depending on whether the buyers are at the central level of a ministry or in a decentralised department (see Figure 4.4).
Note: This figure summarises the responses for both knowledge and skills for each competency.
Source: (OCDE, 2024[5])
There are two main reasons why regional personnel do not participate as much in the various training courses, and therefore do not develop their skills as much.
First, the issue of territoriality was raised by many of the stakeholders interviewed. Indeed, most of the training courses take place in Paris, particularly for the certification programmes offered by the IGPDE. The various stakeholders met with in the regions raised travel as an issue for attending courses, in terms of travel time and costs in addition to the cost of the course itself. These obstacles have given rise to initiatives within different decentralised services to ensure a minimum level of awareness of green procurement among buyers, such as an online game to raise buyers' awareness environmental issues developed by the Centre Val de Loire regional procurement platform, or regular legislative monitoring within the University of Tours.
For smaller organisations, these problems are compounded by the need to mobilise staff over several days for the purpose of attending training, as some organisations may have only one buyer per organisation, and their absence would lead to an interruption in the procurement function.
A European Commission report stresses that training in public procurement must be offered in a variety of geographical locations to make it easily accessible and reduce the cost of participation. (European Commission, 2016[10]) In order to solve this problem, the DAE could start thinking about the possibility, for certain training modules, of providing regional training, using for example, in coordination with the DGAFP, the regional interministerial support platforms for human resources management (PFRH) and the regional procurement platforms (PFRA) or the training bodies operating in the regions. A prior assessment of training needs in the regions could be carried out first in order to ensure optimum participation of those involved in the procurement function.
In Spain, for example, specialised training programmes in the field of public procurement, training seminars and e-learning courses are organised by the Institute of Public Administration and regional training schools for public procurement officers on subjects such as transparency, competition, green procurement and innovation procurement. In Italy, the Institute for Innovation and Transparency in Public Procurement and Environmental Compatibility (ITACA) plays a leading role in training and professionalisation in the Italian regions to promote and ensure coordination among the regions and between the local/regional level and central institutions (see Box 4.2).
Created in 1996 on the initiative of the Italian regions, the Institute for Innovation and Transparency in Public Procurement and Environmental Compatibility (ITACA) is a non-profit association whose founding members are the regions and autonomous provinces of Italy. Its aim is to implement actions to promote and guarantee effective coordination between the regions.
In collaboration with the Ministry of Sustainable Infrastructure and Mobility, ITACA is committed to providing a legal support service for contracting authorities, with the aim of promoting uniformity in the interpretation of public procurement regulations, as well as providing operational solutions to contracting authorities.
ITACA is also committed to building the capacity of the staff of the Regions and Autonomous Provinces and of public administrations more generally - from a legal, technical and economic point of view - through training. To this end, ITACA works in collaboration with the relevant regional training offices and the regional public procurement observatories, in order to offer and guarantee consistent, high-quality training both on a territorial basis, through regional structures and resources, and on a national basis. The training offered is also based on the use of interactive and distance learning tools and methodologies.
Source: (OECD, 2023[11])
An alternative to regional training courses would be to offer e-learning or distance learning courses to regional stakeholders. Although the DAE already offers e-learning courses on the MENTOR training platform, the range is limited to 10 modules, none of which focuses on environmental considerations. The DAE could also expand its future range of face-to-face, distance learning and e-learning courses to ensure that a greater number of regional staff are able to participate. An alternative would be to record the face-to-face/distance training courses and publish them online so that buyers can view them on demand.
In addition, the cost of training seems to be a significant barrier to participation. While employees can attend training courses offered by their own ministry free of charge, they cannot attend training courses offered by other ministries free of charge. For example, employees of the Ministry of the Economy, Finance and Industrial and Digital Sovereignty (MEFSIN) can attend training courses offered by the IGPDE free of charge, as the IGPDE is the dedicated training institute for the MEFSIN. Even if the IGPDE accepts to receive agents from other ministries, in particular agents from decentralised services such as those under the responsibility of the regional procurement platforms, the agents must provide for financing by their administrative department in order to be able to attend.
In addition, employees of State administrative bodies (other than ministries and their services) can access the IGPDE training programmes, but they will be billed for them, even if they fall under the authority of the MEFSIN, as the supervision of an administrative body excludes their employees from being affiliated to it. The cost of the training will then depend on the training provider; for example, for an occasional in-house trainer, the cost is estimated at between €50 and €100 per day and per employee, for an external service provider, the cost is estimated at between €100 and €150 per day and per employee, and the cost of attending training given by a contractor under the interministerial framework agreement is estimated at between €200 and €300 per day and per employee (including certification). (Direction des Achats de l’État, 2024[6])
Faced with these training costs, many buyers have indicated that their organisation's budgetary constraints do not allow them to attend these courses. Training courses focusing on public procurement are not seen as a priority in some organisations, and the budget is therefore allocated to other training topics. This problem also arises for public bodies when staff are not affiliated to the ministry that supervises the body.
Two strategic levers could be used to overcome these challenges. The DAE could fund certain training courses, especially those relating to green procurement, so that all buyers can be made aware of the environmental issues involved in procurement. Another alternative would be to centralise the training budget at DAE level for all those involved in the State's procurement function, as is the case for other sectors such as IT. In countries such as Lithuania and Peru, the authorities responsible for public procurement policy have decided to offer all or part of their training courses free of charge (see Box 4.3).
Free training courses offered by the Public Procurement Office in Lithuania
The Public Procurement Office (PPO) is an independent government agency responsible for the overall implementation of the public procurement policy defined by the Lithuanian Ministry of Economy and Innovation. The PPO is the main body providing training, advice and methodological assistance in the field of public procurement in Lithuania. At present, 18 full-time PPO employees act as trainers. Some of them act as trainers as part of their day-to-day work, while others organise training sessions on a particular subject on an ad hoc basis. Contracting authorities are the main target of these training sessions. In 2017, the PPO offered 42 training courses to train 2,607 employees of contracting authorities in 2017 (against an annual target of 1,500 people). All training provided by the PPO is free of charge. The content of the training courses is decided according to the needs of the agents.
Online training modules in Peru
The Government Procurement Supervising Agency (OSCE) is in charge of the capacity development of the public procurement workforce in Peru. Its sub-directorate on capacity development develops training offers. OSCE also manages the certification process of the public procurement workforce for total four levels (Basic, Intermediate, Advanced, and Executive). OSCE has made considerable efforts to develop different training modalities (face-to face as well as online) in order to increase access to public procurement information and training.
OSCE has established a “virtual classroom” website (Aula Virtual de OSCE, AVO), which provides access to online courses for public procurement officials as well as suppliers. For example, the course for public procurement officers covers whole the public procurement process (tender planning, pre-tendering stage, tender stage, contract management). Access to AVO is free and without any restriction, ensuring optimal accessibility to training opportunities. In addition to the AVO website, OSCE administers its YouTube Channel (AULA OSCE) which is linked to the AVO. The uploaded videos cover wide ranges of public procurement topics such as procurement methods, tender documents, contract management, ethics in procurement.
Source: (OECD, 2019[12])
In addition, awareness-raising activities could be carried out among senior managers to make them aware of the importance of giving greater consideration to the procurement function in skills development programmes at ministerial level, so that the various bodies have a sufficient budget to enable them to attend the various training courses.
Extending capacity building opportunities to other key players in public procurement
While procurement officers and other direct players in the government's procurement function are the cornerstone of the system, other players who are not part of the procurement function as such should also be taken into account when building capacity on green procurement. At the forefront of this ecosystem are the technical experts.
Their influence on the effectiveness of public procurement and its environmental objectives is often predominant. In some organisations, the technical expert also plays the role of buyer. However, for many other organisations, these two functions are separate. It is therefore essential that technical experts are also included in the training strategy for State procurement when they do not have the dual role of technical expert and purchaser, and that they have access to different training modules depending on their needs.
This need for training of technical experts has been raised by many buyers, who point out that the integration of environmental considerations must come from the initiative of the technical experts, who are at the origin of the definition of the need. Buyers can therefore propose and encourage green procurement, but they are not responsible for expressing needs or monitoring suppliers. Furthermore, 45% of the technical experts surveyed by the OECD highlighted the need for training in green public procurement.
Opening up certain training modules to technical experts would represent an interesting opportunity to build their capacities and thus strengthen the green public procurement ecosystem. The creation of a module dedicated to the buyer/technical expert duo would also provide a better understanding of their role in the inclusion of environmental considerations in procurement.
In addition to dedicated training, other alternatives can be used to strengthen the knowledge and skills of prescribers. Initiatives such as on-the-job training, mentoring and job swapping (see Table 4.1) can help achieve these objectives. (OECD, 2023[4])
One buyer who responded to the OECD survey raised this possibility. As a specialist in digital procurement, this buyer mentioned that he was familiar with software eco-design, unbeknownst to the technical departments. He expressed the wish to be able to acquire technical skills in environmental issues so that he could then advise and support the technical departments. (OCDE, 2024[5])
A communication campaign aimed at all stakeholders at central level, as well as at decentralised departments and public bodies, could also be implemented to raise awareness with the widest possible audience. This communication campaign can take several forms. In the Philippines, for example, conscious of the potential reluctance of certain stakeholders to consider environmental issues in public procurement, the government has developed an environmental public procurement roadmap with a list of distribution channels that can be used to raise awareness among stakeholders (see Box 4.4).
The Philippines GPP Roadmap recognizes that “the first-time introduction of GPP is usually confronted with skepticism and various concerns. A well-designed approach that is sensitive to these sentiments and is carefully aware that issues have to be solved, is necessary.” The Roadmap outlines arguments that respond to stakeholders’ concerns: GPP is a measure of prudence; VfM is the guiding principle; suppliers’ readiness is a largely fulfilled condition; more capacity and better awareness has to be created; and verification of green supplies is no different than verification of conventional supplies.
The Roadmap sets out a list of outreach channels that can be leveraged to raise the wider public’s awareness and buy-in of GPP, including:
Print media through press articles and media kits that convey stories and testimonials on the advantages and benefits of green purchasing for the wider public, and broadcast media through occasional broadcast plugs or press releases;
Meetings with particular audiences or media briefings on specific themes;
Internet promotion on relevant websites as an interactive medium to disseminate information and gather data and feedback;
Informational materials (e.g. posters, newsletters, brochures), audio-visuals, and e-mails to reach as many stakeholders as possible.
Source: (World Bank, 2021[13])
4.1.2. Ensuring the relevance of training content
The DAE is currently in the process of renewing its training offer through the launch of procurement procedures for two framework agreements, one for certifying courses and the other for on-demand courses. This renewal includes a strengthening of the training offer for green procurement, but in order for this offer to benefit as many people as possible, it is essential to take into account the issues discussed above, such as geographical location, cost and target audience.
Targeting both training opportunities and priority buyer groups
The results of the survey highlight certain major trends: 1) an assessment of specific skills that sometimes falls far short of what is expected; and 2) the importance of the number of years of experience in building skills. As discussed below, these two factors can have a major impact on the professionalisation strategy adopted by the DAE.
An analysis of the self-assessment carried out by 555 buyers on 26 different competencies (see Figure 4.5) reveals a level of competency below the level expected for implementing green procurement.
Note: Responses from 555 respondents. This graph summarises the responses on both knowledge and skills for each competency.
Source: (OCDE, 2024[5])
For example, on the specific competency on environmental procurement, buyers have an average level close to 0 (corresponding to ‘I have no knowledge/skills’) whereas the expected level is 3 (corresponding to an ‘advanced’ level). Similarly, for the competency relating to the ability to draft evaluation criteria, the average level is between basic and intermediate, while an expert level is required to include the environmental aspect. A more detailed description of the various competencies is given in Annex A. The results of the survey thus present an opportunity for the DAE to target the competencies where buyers have identified the greatest gaps in order to put in place an effective training offer.
Furthermore, as Figure 4.6 below shows, a linear rise in competency assessment can be observed as the number of years of experience increases.
Note: Responses from 555 respondents
Source: (OCDE, 2024[5])
This finding could lead to a reflection on the priority given to certain training participants. Encouraging access to training for people with the fewest years of experience in public procurement could help to improve the skills of those buyers who feel they need it most, particularly with regard to existing tools. This strategy can be implemented by various means, from a campaign to raise awareness of the existence of a training offer for new entrants to the function to the decision to make it compulsory to take a training course within a year of taking up the position. These efforts should be made in cooperation with the various ministries.
The environmental dimension in training courses is still too limited at present
An analysis of part of DAE's current training offer reveals a wide choice of modules for the various job profiles. There are 62 training packages offered in collaboration with the IGPDE, covering a wide range of topics such as pricing, public-private partnerships, information systems, supplier relationship management, as well as all the certifying courses (buyer, purchasing manager, supply expert). However, there are still very few courses dealing with green procurement. Of these 62 courses, only 15 include the environmental dimension in their content or in the skills targeted (see Table 4.2).
In addition to the number of training courses available, the OECD survey highlights the fact that the content of training courses is often not sufficiently tailored to buyers' needs (see Figure 4.7), particularly in terms of green public procurement.
Note: Responses from 555 respondents
Source: (OCDE, 2024[5])
When asked why such training programmes are not adapted to the needs of buyers, the respondents highlighted the fact that training on green procurement is still too theoretical and does not tackle the practical difficulties involved in integrating it effectively into a contract. In particular, the respondents pointed out that green procurement training courses are often fairly basic, dealing with the concepts of sustainable development or the regulations without going into more detail on certain more concrete aspects of the entire public procurement cycle. (OCDE, 2024[5])
A study carried out in 2021 by the World Bank on the practices adopted to promote green public procurement shows that the capacity-building programmes that can be considered effective involve: (World Bank, 2021[13])
Defining a clear target group and respond to its technical needs, concerns, and constraints.
Addressing both skills and the development of green mindsets.
Drawing on local examples and show practical applications.
Integrating opportunities for experiential learning, including through pilot tenders.
Offering specialised training on TCO and LCC tools and product and service categories.
Providing for peer learning.
More and more countries are introducing practical training courses on green public procurement, including modules on life-cycle costing, how to use the various ecolabels and certifications to evaluate bids, and the purchase of second-hand goods.
In Belgium, for example, training on social and environmental procurement is provided as part of a larger programme of public procurement training for public procurement practitioners at the federal level. In 2022, two general training sessions on the integration of the three pillars of sustainable development (economic, social, environmental) in public procurement were delivered in the two national languages. The session dedicated to GPP focused on specific product categories and covered the use of green criteria, eco-labels and ISO-standards in public tenders, as well as the use of environmental management systems, LCC methodologies and circular economy principles. (OECD, 2024[14])
In 2024, the OECD also supported Croatia in the organisation of a training of trainers programme on innovation public procurement, involving three distinct practical cases that take place throughout the procurement life cycle (see Box 4.5).
The use of public procurement for innovation is still limited in Croatia. In 2020, two innovation procurement procedures were carried out in the country, according to the 2020 Annual Statistical Report on Public Procurement in Croatia. These two individual procedures represented only 0.01% (approximately EUR 700,000) of the total volume of public procurement. The innovation partnership procedure has not been used at all.
As part of a technical support project funded by the European Commission, the OECD developed a 3.5-day training programme for some fifteen trainers. The programme consisted of half a day devoted to the theory of innovation procurement, and the rest of the training devoted to three practical cases for three groups of trainers who were asked to solve them as the modules progressed. The case studies were based on real examples of negotiated competitive procedure, competitive dialogue and innovation partnership that took place in Norway. Each module was dedicated to a stage in the procurement life cycle (from needs analysis to contract monitoring) with practical exercises to solve.
The training programme was praised by the trainers, who then reproduced it for other public bodies.
Source: Author
This type of training could therefore be transposed to France for green procurement and presents an opportunity for the DAE to incorporate concrete case studies into its new training programme, which would cover various themes (biodiversity, decarbonisation, circular economy, global cost, reduction of greenhouse gases, etc.) and incorporate these themes throughout the life cycle of public procurement, up to the monitoring of these environmental implications during the performance of the contract.
Another way of incorporating practical exercises on environmental aspects would be to offer modules by purchasing category, with concrete examples for the two areas of environmental considerations targeted by the Climate and Resilience Law and the PNAD (administrative or technical clauses and award criteria). This approach to structuring training courses was also widely supported by the respondents, 85% of whom said they preferred training by purchasing category. Structuring training by procurement category would also enable the mobilisation of technical experts, who are by definition more interested in specific products or services than in general training on public procurement.
This need for training by procurement category can also be explained by the fact that buyers are generally highly specialised in certain procurement categories. The DAE's range of training courses leading to certification also offers specialisations for certain procurement categories, such as real estate, IT, etc. These courses are level 3, and are only accessible to buyers who already have level 2 certification, thus limiting access to certain agents in the State procurement function. This category-based approach is all the more necessary given the diverse legal framework in France, where several laws aim to include environmental considerations in various product categories. For example, the European Commission has created a training toolbox for green procurement, in which several modules by procurement category are offered (see Box 4.6).
The European Commission is making available a training toolkit on green public procurement, designed for use in training courses and workshops. Each module is accompanied by a PowerPoint presentation, notes for the trainer and a reference guide. There are six core modules and ten sector-specific modules focusing on specific product and service categories including:
Indoor cleaning services
Computers, Monitors, Tablets and Smartphones
Food, Catering services and Vending machines
Furniture
Imaging equipment, Consumables and Print services
Office building Design, Construction and Management
Paints, Varnishes and Road Markings
Road Design, Construction and Maintenance
Road lighting and Traffic signals
Road transport
Textiles products and services
Training materials have also been developed as part of several EU-funded projects on green public procurement. The PRIMES GPP training kit (https://primes-eu.net/use-our-findings/training-material/) includes slides, interactive exercises and evaluation sheets on topics such as life cycle costing, innovative public procurement, ecolabels and joint procurement.
Source: (European Commission, n.d.[15])
A range of training courses on specific procurement categories offered to the largest possible number of players in the State procurement function, other than those leading to certification, would help to maximise efforts to build the capacity of the entire public procurement ecosystem on specific issues. These training courses could be based on the tool-sheets for each procurement category currently being developed by the DAE.
Another key theme to be addressed in these training courses is the security of supply. In the context of green public procurement, securing supplies represents a challenge, raising questions about the resilience of supply chains in the face of environmental and economic constraints. The transition to green public procurement introduces increased complexity into the security of supply, particularly due to dependency on limited sources, vulnerability to climatic conditions, and price fluctuations. These factors can compromise the continuous availability of green products and services, underlining the need to actively analyse and manage the risks associated with sustainable supply chains.
An analysis of DAE's training courses shows that, with the exception of the supply expert certification course, there is little or no coverage of the issue of security of supply, despite the fact that it is crucial to green procurement. To meet these challenges, future training courses could include this dimension in the various training modules, particularly those relating to green procurement. These modules could explain the various strategies for securing supply chains, such as diversifying sources of supply to reduce dependency on a limited number of suppliers and limit the risk of shortages; establishing long-term contracts and developing strategic partnerships with suppliers to stabilise supplies and costs, while encouraging innovation and the continuous improvement of green products and services; and certifying and regularly auditing suppliers to ensure that they comply with environmental and social criteria, thereby ensuring the sustainability of the supply chain.
In addition to professionalisation and training efforts, many countries have developed a wide range of practical tools to facilitate the integration of environmental considerations for buyers. These tools can take various forms, such as standardised environmental criteria (e.g. selection or award criteria) and advice on how to incorporate them into public tenders, eco-labels or eco-certifications, life cycle costing (LCC) tools, environmental footprint calculators and databases. France has already developed some of these tools, but could draw on international best practice to develop others and provide better support for buyers.
4.2.1. Several practical tools on green procurement exist, but there are still very few of them
It is important for public buyers to have practical tools available in addition to theoretical training when integrating environmental considerations into their procurement processes. Theoretical training provides an essential basis of knowledge about environmental issues and regulations, but is not sufficient on its own to ensure effective implementation. Practical tools, such as guides, checklists, model criteria, clauses and technical specifications, Excel spreadsheets for calculating carbon footprint or life cycle costs, help to translate the theoretical principles learned in training into concrete, measurable actions. These practical tools also play an essential role in standardising and simplifying procurement processes, enabling environmental considerations to be integrated more seamlessly.
To this end, the European Commission has developed a range of tools to simplify the integration of GPP for public buyers (see Box 4.7).
The European Commission has developed several tools to help public buyers integrate GPP into their procurement processes. First, the EU Ecolabel is the official EU voluntary label for environmental excellence of goods and services. It is the only pan-European ISO 14024 Type 1 ecolabel and has been operating for over 33 years. It is implemented by the European Commission in cooperation with the Member States (EU Ecolabel Competent Bodies). The EU Ecolabel criteria were also established for 25 categories of products, such as paper, detergents, furniture or cleaning services. These criteria were established through a science-based process, involving open and transparent consultation of stakeholders. Criteria are addressing environmental impacts during the whole life cycle of the products.
To promote the use of the EU Ecolabel in public procurement, the European Commission has developed “Practical Guides for the use of the EU Ecolabel in green public procurement”. The Practical Guides help procurers in formulating technical specifications and award criteria by identifying the relevant EU Ecolabel criteria to be inserted in the procurement call.
Such guides have been developed for the following product categories:
Hard covering products (2024)
Absorbent hygiene products (2024)
Graphic paper (2025)
Tissue paper and tissue products (2025)
In France, a number of practical tools - mainly guides - were initially developed to help buyers better understand and integrate environmental issues. These guides also complement the various guides developed by the European Union. However, two problems have been identified with these guides. First, some buyers are unaware of their existence. In fact, the OECD survey revealed that out of 555 buyers surveyed, 155 buyers, i.e. almost a third, were not aware of any guide or practical document (see Figure 4.8).
Note: Responses from 555 respondents.
Source: (OCDE, 2024[5])
The DAE and DAJ could improve promotion of the various guides that have been developed, and jointly ensure uniform distribution of these tools, particularly in the regions. In this respect, the platform developed by the CGDD offers a unique opportunity to promote them and encourage access to these resources.
In addition to a lack of familiarity with these guides, most respondents also pointed to the lack of practicality of these tools. In fact, only around one hundred out of 555 respondents rated three of the guides as useful in the OECD survey, and fewer than 50 rated the rest as useful. The stakeholders interviewed during the fact-finding missions also pointed out that some guides are useful, but too long and impractical for everyday use.
The tools targeting sustainable procurement, such as the green clause tool, are considered too general and do not meet buyers' needs. The development of tools that would help buyers translate environmental considerations into practice in their procurement processes would therefore be beneficial. The DAE has already taken the initiative of developing tool-sheets simplifying the possibilities for integrating environmental considerations into each procurement category. These sheets could be supplemented by other tools such as Excel spreadsheets that automatically calculate carbon footprint, energy savings, life cycle costs or greenhouse gas emissions.
A database of suppliers and sustainable products bringing together suppliers committed to sustainable practices could also prove to be a valuable tool for public buyers, to facilitate the search for products and services that meet environmental criteria. This database could also be based on the existing APPACH information system and its database of 80,000 suppliers. Some countries and institutions have already taken the initiative to develop such tools. The European Commission, for example, has developed life cycle costing tools for five procurement categories. In Latvia, the Ministry of Smart Administration and Regional Development has also developed user-friendly LCC calculation tools for twelve procurement categories, and a more complex calculation tool for construction works. (Ministry of Smart Administration and Regional Development of Latvia, 2020[19]) In the Netherlands, the Ministry of Infrastructure and the Environment has developed the DuboCalc calculation tool to assess the environmental impact of civil engineering works (see Box 4.8).
Life cycle costing tools developed by the European Commission
The European Commission has developed five sector-specific life-cycle costing tools to facilitate the use of consistent life-cycle costing across Member States. The tools cover five procurement categories including: vending machines, imaging equipment, computers and monitors, and indoor and outdoor lighting. For each procurement category, the European Commission has developed an Excel spreadsheet to calculate the cost, as well as a user guide explaining how to use the tool.
The Excel spreadsheet allows for easy calculation of:
Initial acquisition costs (purchase and installation);
Operating and maintenance costs (particularly energy, given that computers are energy-consuming products with considerable operating costs);
Other costs (such as residual value); and
Environmental externality costs, i.e. those associated with climate change/CO2 emissions due to energy consumption during operation.
Netherland’s DuboCalc calculation tool
In the Netherlands, sustainable public procurement has been a longstanding policy goal, with the decision of the Dutch House of Commons to reach 100% sustainable public procurement by 2015. In response, the Department of Public Works of the Ministry of Infrastructure and the Environment (Rijkswaterstaat) introduced several approaches to make its procurements more sustainable, such as the calculation tool DuboCalc and the CO2 Performance Ladder.
To operationalise sustainable procurement, the software DuboCalc calculates the environmental impact of material use of infrastructure projects. The calculation is based on LCA of construction materials. It takes into account the embedded environmental impacts of materials during their lifecycle (e.g. material extraction, production, demolition and recycling). The energy consumed by the infrastructure is calculated, too.
DuboCalc calculates environmental impacts based on a system of shadow prices, which includes 17 different types of environmental impacts (e.g. CO2 emissions, land use, water use). The final result of the calculation is the Environmental Cost Indicator (ECI value). The tool is applied in works tenders that are typically based on the scheme ‘Design-Build-Finance and Maintain’. Furthermore, tenders are based on functional requirements, thus giving suppliers the possibility to innovate and determine the most sustainable design. Namely, suppliers use the tool during the tender preparation and are able to test multiple designs to identify the most sustainable version, i.e. with the lowest ECI value.
DuboCalc tool is used in all major projects at Rijkswaterstaat and has been progressively applied by large public entities in the Netherlands, too. Given the complexity of the tool, it is more difficult to apply by smaller entities such as municipalities. However, recently the so-called DuboCalc Light has been in used by smaller municipalities. It consists mainly of a list of materials that have high negative environmental impacts and are therefore excluded from the project. This simplified version of DuboCalc can be used for projects of EUR 10 000 or upwards.
An important foundation for the calculations is the underlying database, i.e. the National Environmental Database. This database includes the reference data for the environmental impacts of construction materials. It has a dedicated governance structure (National Environmental Database Foundation - NMD) that is tasked with maintaining and regularly updating the database.
Source: (OECD, 2024[14])
Finally, discussions with the various stakeholders have highlighted systematic difficulties in monitoring green clauses. Practical tools can also be developed to help monitor these clauses, such as a desktop tool/information system for monitoring the implementation of these clauses. This system could be based on easily verifiable key performance indicators linked to the contractor's right to claim payment. These indicators could be developed for certain procurement categories. Key performance indicators or other forms of compliance monitoring must, however, take into account the time and resources that will be required to apply them in practice. It may be preferable to include a smaller number of such indicators that can be meaningfully applied if monitoring a long list of environmental commitments is not realistic. (World Bank, 2021[13])
4.2.2. Setting up a help desk to support buyers in their day-to-day green procurement operations
A help desk is a contact point centre to assist contracting authorities and/or economic operators in clarifying their inquiries related to their daily tasks of public procurement. It is an efficient tool to provide quick and tailor-made information. This function is essential because public procurement regulations are complex and can be modified frequently. A help desk can contribute to ensuring legal compliance and solving recurrent issues of daily procurement tasks, such as the choice of procedure and award criteria. (OECD, 2023[4])
In France, there is no free help desk dedicated as such to assisting buyers with the inclusion of green considerations. Although the green desks offer free expertise and support, membership of these networks for more in-depth support is usually subject to a fee (See section 3.2.3). Many stakeholders in the State procurement function who responded to the OECD survey, as well as those met during the fact-finding missions, expressed the desire for such a help desk to be set up.
Some have suggested the creation of an interministerial department specialising in green clauses, with technical and administrative experts who could discuss the various issues and produce standard clauses or analyses based on the different procurement categories. Other stakeholders also insisted on regional specificities being taken into account with the creation of regional help desks. However, this option raises evident questions of both financial and human resources.
At central level, the DAE has already acquired additional human resources, in particular three environmental experts, to support buyers in including environmental considerations in their procurement processes. The capacity of these additional human resources to meet the needs of buyers will largely depend on the volume of requests submitted and also on the nature of the support offered. After an initial phase of implementation and stabilisation of demand, it will certainly be necessary to analyse the rate of use of this service by buyers in order to assess the adequacy of the resources allocated to this centralised help desk. Furthermore, experience in other countries shows that it is not always necessary to internalise the required resources. Other countries, such as Belgium and Norway, have opened helpdesks dedicated to sustainable public procurement (see Box 4.9). (OECD, 2024[14])
Belgium
Bruxelles Environnement is a public institution with a wide range of competences in environmental, animal welfare and energy policy. Since 2009, Bruxelles Environnement has been offering training, a helpdesk, newsletters, and other practical tools to Brussels public buyers. The helpdesk is free of charge, and is run by an external service provider under a public contract. These service providers are also assigned other tasks related to sustainable public procurement, with the title of “sustainable public procurement facilitators”. They provide training and direct support to public authorities to help them implement sustainable public procurement processes.
The helpdesk generally responds to questions from public authorities within 3 working days. The advice offered by the helpdesk is not limited to the award criteria, but also covers the period prior to the launch of the contract (needs analysis and market research), through to the award and execution of the contract. The helpdesk can also provide assistance with the review of specifications and covers all procurement categories.
Norway
The Norwegian Agency for Public and Financial Management (DFØ) supports and advises on the implementation of public procurement rules. In 2021, DFØ launched a helpdesk to meet buyers' needs for assistance with environmental and innovative public procurement. The helpdesk is one of DFØ's most popular services. The service is free and open 5 days a week. In view of this success, the assistance offered by the helpdesk has been extended to include all types of questions about public procurement.
Lithuania
In Lithuania, a web page on “frequently asked questions” regarding green public procurement has been created. In addition, e-mail and telephone consultations are provided by the Ministry of the Environment on policy issues and by the Public Procurement Office, which provides specific advice and consultation on the use of GPP criteria.
As discussed in section 3.2.1, if the DAE were to take on a similar role, it would be necessary to assess the volume and complexity of requests received to ensure that the resources allocated to this helpdesk are adequate. The DAE could use the legal information unit for public purchasers (CIJAP), set up by the MEFSIN, as a reference base to meet the needs of State buyers, even though the issues involved are different. In 2014, 86% of questions asked to the CIJAP were answered the same day. Most questions that are not answered the same day are dealt with in writing within 48 hours. For questions requiring a more detailed legal interpretation, the request is forwarded to a specialised ‘Advice to Buyers’ unit in MEFSIN's Legal Affairs Directorate (the DAJ). The DAJ generally responds in writing within 45 days. Overall, the CIJAP has been very busy, handling 35,000 requests a year.
Beyond help desks, another solution provided by countries to support GPP professionalisation and promote implementation is through a dedicated competence centre. A competence centre is an organisation/organisational structure that has been assigned the task by its government and has a mandate according to national law to encourage wider use of strategic procurement (green public procurement, socially responsible public procurement and/or innovation procurement). Its function includes, among others, providing practical and/or financial assistance to contracting authorities in the preparation and/or implementation of procurement procedures, providing training course, administering the digital platform to connect the public sector and private sector, organizing networking events to connect the public sector and the private sector on specific themes etc. (OECD, 2024[14])
Two concrete examples of the role and functions of these centres of expertise can be found in Germany and Finland (see Box 4.10).
KNB in Germany
Since 5 December 2011, the Competence Centre for Sustainable Procurement (KNB) at the Procurement Office of the Federal Ministry of the Interior has been the central point of contact for all the federal ministries, states, local governments and other government offices responsible for procurement. The KNB carries out different tasks and activities:
Provides information, training and advise on sustainable public procurement to federal, state and local government procurement offices and other public agencies via phone or e-mail as well as on-site training.
Works with other organizations to prepare procurement guidelines and information brochures, as well as newsletters on sustainable procurement;
Develops and proposes new ideas for sustainable public procurement in collaboration with representatives from public administration, industry, NGOs and association.
KNB also operates a web-based information platform that serves as an information, communication and network hub, helps building up a national expert network, and supports communication with companies and NGOs. The platform provides key information, documents, important dates for sustainable procurement, which are available online to staff of public procurement offices and to other interested persons. Moreover, through this platform, KNB can address questions on the use of LCC for different product groups (e.g. from motor vehicles and consumer electronics to household appliance).
KEINO in Finland
KEINO is a network-based competence center for sustainable and innovative public procurement in Finland and it started operating in March 2018. KEINO is part of the Government Program’s implementation, and it is funded and steered by the Ministry of Economic Affairs and Employment. Moreover, the strategic management of KEINO is supported by a Secretariat, which is appointed separately from the representatives of the ministries and a broad-based cooperation group.
KEINO offers support to public procurement practitioners in Finland through Change Agents (KEINO-muutosagentti in Finnish) operating at the regional level, which serve as local contact point. Change Agents are paid by KEINO, but they are part of each Agent's employees.
The priorities of Keino’s activities in 2022–2023 included, among others, the implementation of ecosystem agreements with cities, and refining lessons learned into practical tools and operating models for procurement units.
Source: (OECD, 2024[14])
As the German, Finnish, Belgian and Norwegian examples show, the DAE has a range of options for strengthening support for State buyers in terms of integrating environmental considerations into public procurement.
References
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