the oecd perspective: public procurement outside the ue …. patrimonio... · 2019-03-22 · the...
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The OECD perspective :Public procurement outside the UE frameworkframework
A New framework for public procurement
Paulo MaginaHead of the Public Procurement UnitPublic Sector Integrity Division, Public Governance Directorate
Madrid, 10 April 2018
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The OECD
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Spanning a variety of policy areas:Better policies for better lifes
3
The OECD provides a forum where countries compare and exchange policy experiences, identify good practices, discuss emerging challenges and adopt recommendations for better policies.
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35 member countries, 3 accession 5 Key partners
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OECD - Fast Facts
35
5
€370 Million
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Part of a global community
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THE CRITICAL ROLE OF PUBLIC PROCUREMENT: PUBLIC PROCUREMENT:
WHY IT MATTERS ?
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MEX
IRL
CHE
USA
PRT
ITA
ESP
TUR
GRC
OECD
LUX
LVA
POL
KOR
AUS
SVN
29.1
2015
2009
2007
11.9
Government procurement as share of GDP and of total govt. expenditures
Public Procurement matters…6.4 trillion EUR spending in OECD
SVN
CAN
AUT
GBR
ISL
NOR
EST
DNK
ISR
BEL
CZE
FRA
NZL
DEU
SWE
HUN
JPN
SVK
FIN
NLD
CRI
RUS
LTU
ZAF
COL
in terms of GDP in terms of general government expenditure
0 5 10 15 20 25 30 35 40 45(%)05101520
(%)
Source: OECD National Accounts Statistics. (2017)
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…managed at all levels of government
63.2
80
100
Central government (2015) Sub-central government (2015)
General government procurement by levels of government
36.8
63.2
0
20
40
60
NZ
L
IRL
GR
C
ISR
PR
T
SV
K
TU
R
HU
N
LU
X
ES
T
SV
N
LV
A
GB
R
ISL
NO
R
CZ
E
KO
R
PO
L
AU
T
FR
A
NLD
OE
CD
DN
K
ME
X
US
A
SW
E
JPN
FIN
CH
E
DE
U
ITA
ES
P
BE
L
CA
N
CR
I
LT
U
CO
L
Source: OECD National Accounts Statistics. (2017) 9
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Public procurement has high implications for public service delivery
Health
30%
Economic affairs
17%
Structure of general government procurement spending in OECD countries (2015)
17%
Education
12%
Defence
10%Social
protection
10%
General public
services
9%
Public order and
safety
4%
Environmental
protection
3%
Recreation, culture
and religion
3%
Housing and
community
amenities
2%
Source: OECD National Accounts Statistics. (2017) 10
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Public procurement has high implications for public service delivery (cont’d)
Structure of general government procurement spending (2015)
Source: OECD National Accounts Statistics. (2017)
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THE OECD WORK:
IMPROVING PP STANDARDS
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For over a decade the OECD has supported governments in reforming their public procurement systems to ensure long-term sustainable and inclusive growth and trust in government by:
1) Providing international standards on public procurement;
The OECD work on Public Procurement
2) Undertaking hands-on peer reviews that provide assessment of public procurement systems, either national or sectorial, and tailored proposals to address implementation gaps in specific contexts: USA, Chile, Germany, Greece, Korea, Colombia, Mexico, Peru, etc.;
3) Bringing together a community of practice on procurement to shape directions for future reforms: the Leading Practitioners; 13
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4) Organising policy dialogue on the co-operation between government and the private sector also in the framework of the G8 and G20;
5) Collecting analytical, useful and reliable evidence across OECD countries on the performance of public
The OECD work on Public Procurement
across OECD countries on the performance of public procurement operations as well as the impact of procurement on broader public policy objectives: Green, Innovation, SMEs;
6) Coordinating the MAPS revision through leading a diversified working group composed of many MDBs, IOs, developing partners and countries.
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The OECD’s experience in working with public procurement shows that a sound procurement system includes:
a) procurement rules and procedures that are simple, clear and ensure access to procurement opportunities;
Main findings from the OECD work
and ensure access to procurement opportunities;
b) effective institutions to conduct procurement procedures and conclude, manage and monitor public contracts;
c) appropriate electronic tools;
d) suitable, in numbers and skills, human resources to plan and carry out procurement processes; and
e) competent contract management.15
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The 2015 Recommendation on Public Procurement : 12 integrated principles
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Assessment tools, MAPS Key
performance indicatorseProcurement
Supporting countries by building evidence
Strategic use:• Green• SME• Innovation
Professionalisation
G@G:Government at a
Glance
17
� Toolbox - innovative, practical, collaborative solutions
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SUSTAINABILITY &STRATEGIC PUBLIC STRATEGIC PUBLIC
PROCUREMENT
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Development of PP Strategy/ Policy to support secondary policy objectives (2016)
Never been developed
Has been rescinded4%
24%
55%96%
Green Public Procurement
3%
24%
66%97%
Support to SMEs
Developed by some
procuring entities
Developed at the central
level
Developed at the central
level and by some
procuring entities
19
17%7%
45%
7%
38%
10%
55%
Support to responsible business
conduct
17%
24%
48%
11%
83%
Support to procure innovative
goods and services
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Countries increasingly use procurement to achieve broader policy objectives
Mandatory Use of Public Procurement for Secondary Policy Objectives
50%
60%
70%
80%
90%
100%
No, it is not mandatory and
targets are not in place51.5%
50%
60%
70%
80%
90%
100%
20
goods and services
0%
10%
20%
30%
40%
50%
Green public
procurement
Support to Small
and Medium
Enterprises
Support to
procure
innovative
goods and
services
targets are not in place
No but it Is subject to
defined targets
Yes, it is mandatory but
targets are not defined
Yes, it is mandatory and
targets are defined
45%
21%
<2016>
30.3%
12.1%
0%
10%
20%
30%
40%
50%
Green public
procurement
Support to
Small and
Medium
Enterprises
Support to
procure
innovative
goods and
services
Yes, it is
mandatory
<2012>
59%
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% of countries that measure the results of their public procurement to boost…
Measuring results: Strategic procurement
…Green Objectives …SMEs…Innovative Goods &
Services
21
Austria
Japan
Korea
Sweden
Turkey
Australia
Belgium
Canada
DenmarkEstonia
Finland
Germany
Ireland
Latvia
Mexico
Netherlands
New Zealand
Norway
Spain
Yes:
26%
No:
74%
AustraliaChile
Germany
Hungary
Ireland
Israel
Japan
Korea
Mexico
NetherlandsSlovak
Republic
SwedenTurkeyAustria
Belgium
Canada
Denmark
Estonia
Finland
Greece
Latvia
New Zealand
Norway
Portugal
SloveniaSpain
Yes:
50%No:
50%
AustriaChile
Denmark
Finland
Germany
Hungary
Iceland
Israel
Japan
Korea
Latvia
Poland
PortugalSlovak
RepublicSlovenia
Spain
Sweden
Turkey
Belgium
Canada
Estonia
Greece
Ireland
Mexico
Netherlands
New ZealandNorway
Yes:
67%
No:
33%
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EFFICIENCY ENABLERS
BENCHMARK ONBENCHMARK ONCENTRAL PURCHASING
BODIES
22
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Central Purchasing Bodies in OECD
IcelandKorea
Mexico
Portugal
Slovenia
TurkeyNorway
Slovak Republic
Spain
Sweden
JapanNetherlands
One CPB at the central level
22%
NO CPB7%
Australia
Austria
Canada
Chile
Denmark
Estonia
Greece
IrelandIsraelLatvia
New Zealand
Poland
Belgium
Finland
Germany
Hungary
Italy
More than one CPB at the central level
41%
CPBs at the central and
regional level30%
Source: 2016 OECD Survey on Public Procurement (29 OECD countries)23
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No CPB:
12.1%State-owned
Enterprise:
15.1%
Legal status of CPBs
Ireland
Under Ministry:
27.3%
Government Agency:
45.5%
Source: 2014 OECD Survey on Public Procurement24
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Framework agreements established by the CPBs are subject to…
AustraliaAustria
Canada
Chile
Denmark
EstoniaSlovak Republic
France
Germany
Greece
IrelandSweden
Mandatory
use by all CAs
(8%)
Voluntary use
(19%)
… however, regardless of the arrangements, CPBs need to keep the terms of their instruments competitive with respect to the market.
Finland
Hungary
Iceland
Israel
Italy
LatviaMexicoNew Zealand
Norway
Poland
Portugal
Slovenia
Spain
Korea
Mandatory use by
CAs at the central
level (73%)
25
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Use of central purchasing
60%
80%
100%
Use of central purchasing in OECD countries (2016)
0%
20%
40%
PC, Printers Stationery
and Paper
Medical
goods and
services
Fuel Telephony Software Travel Energy Cleaning
services
Surveil lance
services
Public works
and
constructions
Canteens Consulting
Central purchasing is used Framework agreements are used in central purchasing
26
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MAPS:
METHODOLOGY FOR ASSESSING
METHODOLOGY FOR ASSESSING
PROCUREMENT SYSTEMS
27
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End of a two -year journey
Spring 2015 Revision launchedJuly 2016 First draft of the revised tool
Summer 2016 Consultation: public feedback Winter 2016/17 Testing in Chile, Norway, Senegal
28
Winter 2016/17 Testing in Chile, Norway, SenegalFall 2017 Revised core MAPS finalisedFall 2018 Global launch of the final tool
2018 MAPS Secretariat
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What is the new MAPS?
Methodology for Assessing Procurement Systems
• Ambitious, universal tool for all countries to evaluate how well their public procurement systems worksystems work
• Used in the past 10 years in developing countries (over 90 assessments)
• Revision process in place since April 2015, linked to international standards, e.g. OECD Public Procurement Recommendation also aligned with the UN Sustainable Development Goals (SDGs)
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• SDG Target 12.7– “Promote public procurement practices that are
sustainable, in accordance with national policies and priorities”
� MAPS Indicator 3(a): Sustainable Public Procurement
MAPS and the SDGs
� MAPS Indicator 3(a): Sustainable Public Procurement
+ Optional Module
• SDG Target 16.6– “Develop effective, accountable and transparent
institutions at all levels”
� MAPS Indicators 5, 6, 8, 12, 13
30
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• Harmonized tool…to conduct an assessment of PP systems
• Universal tool, mutually reliable
Characteristics of the new MAPS
• Universal tool, mutually reliable…for all countries: Considers country context and political environment
• Reform tool…to develop systems: Initiate improvements, encourage dialogue, monitor progress
31
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The MAPS Analytical Framework
MAPS
Pillar I Pillar II Pillar III Pillar IV
Sup
plem
enta
ry M
odul
es
32
Legal, Regulatory and Policy Framework
3 indicators, 18 sub-indicators
Institutional Framework
and Management
Capacity
5 indicators, 14 sub-indicators
Procurement Operations and Market Practices
2 indicators, 6 sub-indicators
Accountability, Integrity and Transparency
4 indicators, 17 sub-indicators
Ana
lysi
s of
Cou
ntry
Con
text
Use
r's G
uide
Glo
ssar
y
Sup
plem
enta
ry M
odul
es
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ONGOING PROJECTS IN EU COUNTRIES:
- STRATEGIC PROCUREMENT- LITHUANIA- GERMANY- GERMANY- FINLAND
COMING: COMPETENCY FRAMEWORK; GREECE; MALTA
33
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• Initiative launched by the Directorate-General for Regional and Urban Policy- DG REGIO
• The project (implemented by the OECD) aims at promoting the use of strategic procurement in the context of Cohesion Policy :
The project
context of Cohesion Policy :
� Green public procurement (GPP) �Socially responsible public procurement �Public procurement for innovation �Better access for SMEs
34
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• Managing authorities
• Relevant authorities responsible for public procurement in all Member States implementing ESIF funded projects.
Targets
implementing ESIF funded projects.
35
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1- Providing practical “hands-on” support to implement or promote strategic public procurement such as:• assist contracting authorities to run the pre-market
consultation, • define selection and award criteria,• select procurement procedure,
How to promote the strategic use of Public Procurement?
• select procurement procedure, • ensure good governance and coordination during the
implementation phase
2- Developing support material to help Member States implementing Strategic public procurement
36
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Selection criteria:
• Project should receive co-financing from ERDF orCohesion Fund (approved/secured)
• Timing: tender procedure should not yet have been
How to promote the strategic use of Public Procurement?
• Timing: tender procedure should not yet have beenlaunched; the tender procedure should be initiated withthe issuance of the tender in the next 2 to 14 months
�It requires sending the expression of interest [email protected] 20 April 2018.
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For more information on OECD work on public
procurement
http://www.oecd.org/gov/public-procurement/
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Lithuania: an OECD/ European Commission partnership
• The European Commission in the area of
public procurement under Regulation (EU)
2017/825 on the establishment of the
Structural Reform Support Programme
("SRSP Regulation) has agreed to provide ("SRSP Regulation) has agreed to provide
financial support to the OECD to provide
technical support to Lithuania in the area of
public procurement.
39
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• To improve the efficiency of the national procurement system by raising the level of competency of the public buyers at the central and local level
Objectives of the Project
• To rationalize the system for procurement of R&D services in order to achieve higher economic impact in Lithuania.
40
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Description of the Action’s components
Evaluation of training needs, definition of training priorities and the development of training programs
41
Development an integrated system for public procurement of R&D services