Beruflich Dokumente
Kultur Dokumente
Procurement Strategy
Photo: Andreas Ulvdell/Folio (Cover), Maskot/Folio (Page 8, 12, 16, 18, 20, 22, 24), Thyra Brandt/Folio (Page 8, 14)
Production: Ministry of Finance/Communications Department
Engelsk översättning framtagen i samarbete med Upphandlingsmyndigheten/English translation made in cooperation with The National Agency for Public Procurement
As the Minister responsible for
public procurement in Sweden,
I have noted that more guidance is
required before public procurement
is the strategic tool that the Swedish
Government wants it to be.
The contracting authorities and enti- National Public Procurement Strategy
ties need to take greater responsibility is actually implemented by the con-
for procuring more strategically and tracting authorities and entities. The
for using tax assets in the best possi- Government expects results and will
ble way. Here I see an important task follow this development closely.
for the Government to be clear that
the governmental authorities have
that responsibility. It is the Govern-
ment’s hope that what is stated in the
Orientation objectives................................................................... 11
Sweden’s public sector faces a series efficiency and quality in the public of public administration strengthens
of major challenges. Changes in the sector, at the same time as meeting democracy. The Swedish public ad-
world around us, for example in Sweden’s international obligations ministrative model, with far-reaching
climate, the environment, demo- within the EU, the WTO and our delegation of responsibilities to coun-
graphic trends and migration flows, free trade agreements. ty councils and municipalities, con-
as well as changes in citizens’ expec- tributes to efficient, development-led
tations of service, are making great The expenditure of Sweden’s public central government administration.
demands of how the public sector sector will play a crucial role in the Another important prerequisite is a
functions. Efficient public procure- country’s national implementation of coordinated form of administration,
ment is crucially important to an the UN’s 2030 Agenda for long-term characterised by a holistic approach
efficient social service provision that sustainable economic, social and and a shared acceptance of responsi-
lives up to the justified expectations environmental development3, as well bility for society as a whole.
of the country’s citizens. as Sweden’s Policy for Global Develop-
ment.4 Systematic activities at national As part of its policy for development
Today, the public sector procures level will also create credibility at in public administration, the Govern-
goods and services annually to a international level. The Government’s ment has initiated a trust reform. The
value of approximately SEK 625 ambition is to contribute actively to the remit of the commission is to develop
billion.1 In view of the major sums efforts of the UN and international the procedures for control and follow
spent in public procurement, a more financial institutions in establishing the -up in the public sector, in a way that
strategic approach to public procure- foundations for sustainable develop- balances the need for control with
ment not only offers substantial sav- ment via its own public procurements, confidence in the professional knowl-
ings but also several other benefits to and promoting modern and sustainable edge and experience of the employees
society. There is much to suggest that development in its partner countries. concerned.
several of the serious problems that
affect public procurement are directly Another aim of the strategy is to make Public procurement is an important
linked to the absence of a sufficiently innovation procurement a natural part part of the Government’s administra-
strategic perspective (SOU 2013:12)2 . of organisational development at the tive policy and an important means
contracting authorities. of achieving its administrative policy
A national strategy is needed to pro- objective, namely, an innovative and
mote innovations and be a catalyst The strategy is needed in order to collaborative system of central gov-
for new ideas in the public sector and create the right conditions for small ernment administration that is legally
the business community. It is need- enterprises and non-governmental certain and efficient, delivers a high
ed to achieve the Government’s aim organisations to participate in public standard of quality, service and avail-
of establishing public procurement as procurements. ability and thereby contributes to
a strategic tool for efficient organi- Sweden’s development and effective
sations and a means of achieving the How can public procurement work at EU level.
national environmental, social sus- play a part in making the
tainability and administration policy Government’s administrative
objectives. With the aid of well-func- policy a reality?
tioning competition, the Govern- Public administration serves a central
ment’s ambition is to use public role in Sweden’s development.
procurement as a tool for improving Alegally certain and efficient system
1
According to information from the Swedish Competition Authority. See for example report 2016:4 Upphandling enligt lägsta pris behöver inte ge sämre kvalitet
(Procurement based on lowest-price does not necessarily mean poorer quality), in Swedish, April 2016.
2
Sweden’s Public Procurement Inquiry
3
In September 2015, the UN General Assembly adopted the following resolution: Transforming our world: the 2030 Agenda for Sustainable Development, A/
RES/70/1, which incorporates a 15-year agenda for long-term sustainable economic, social and environmental development linked to fighting poverty.
4
Proposition 2002/03:133 – Gemensamt ansvar: Sveriges politik för global utveckling (Government bill on Sweden’s Policy for Global Development)
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What has the Government done to date?
In order to create a solid foundation for of the national regulations is intend- strategic work on public procurement.
a strategic public procurement process, ed to simplify the regulatory structure The strategy presents proposals for con-
the Government has initiated an exten- and create more flexible provisions for crete actions that can be taken within
sive reform in the area of public pro- procurement of social services or other the contracting authorities and entities.
curement. The reform consists of three special services. The actions proposed in the strategy are
elements: the procurement legislation, relevant regardless of the public sector
the National Public Procurement Strat- The National Agency for Public activity concerned. With the procure-
egy and the establishment of the Na- Procurement ment strategy, the Government wants
tional Agency for Public Procurement. In September 2015, the National Agency to demonstrate the benefits that can be
for Public Procurement was estab- achieved through a strategic approach
The procurement legislation lished. The Government chose to place to purchasing. The Government also
One of the widest-ranging legislative support for public procurement with- wishes to show in concrete terms how
tasks during the Government’s man- in an independent authority to raise its the approach to purchasing highlighted
date period consists of implementing the profile and to provide organisational in the strategy can be achieved in each
three EU procurement directives and get conditions that would enable the particular activity.
the new national legislation in place. National Agency for Public Procure-
ment to provide as effective support as Example: The Welfare Commission
Most of the provisions in the Swedish possible. The National Agency for
Public Procurement Act (2007:1091) Public Procurement has a broader One example of the Government’s
work to establish more flexible
concern public procurements above the remit than the previous support for
provisions on procurement of social
EU thresholds. Even if the number of public procurement provided by the services and other special services
public procurements over the threshold Swedish Competition Authority. It has was the remit to the Swedish Wel-
has risen sharply in recent years, only the overall responsibility for developing, fare Commission to propose ways
approximately one out of three calls for managing and supporting the public in which the regulatory system go-
tender are covered by the public pro- procurement carried out by contracting verning the procurement of welfare
curement directives in Sweden. Hence, authorities and entities. services could be simplified and
the majority of all public procurements made more flexible (Dir. 2015:22).
do either not fall within the scope of National Public Procurement
the EU directives or are subject to only Strategy
a few rules in the directives. In other The purpose of the Government’s work
words, they are public procurements on developing a National Public
that are below the threshold values Procurement Strategy has been to make
specified or that concern social services it possible for contracting authorities
or other special services. The review and entities in Sweden to develop their
The objective for the policy area public achieving this objective and at mental criteria, shall be stipulated in
procurement is that all public pro- the same time brings about several public procurements, where justified.
curement shall be efficient, legal- positive effects for the society. These Stipulating criteria that promote
ly certain and take advantage of the include driving increased growth and environmental and social concerns
competition in the market. It shall employment together with sustainable makes a difference, and at the same
also promote innovative solutions development of environmental, time enables the public sector to
and take environmental and social social and ethical aspects. Contracting deploy tax revenues in an effective way.
concerns into account. authorities and entities shall lead by
example in the management of their
Strategic implementation of public resources. Sustainability criteria,
procurement is an effective means of including labour law and environ-
On the basis of its overarching objec-
tive, the Government has formulated
seven policy objectives for its procu-
rement strategy.
1 Public procurement as a strategic
tool for doing good business.
2 Effective public purchasing.
The procurement strategy is aimed, in Sweden. Suppliers, industry organ- business development. State-owned
above all, at representatives of the isations and the organisations of civil companies shall operate strategically,
central government authorities. It is societies all bear responsibility for act transparently, collaborate with
the Government’s desire and inten- improving the process of public pro- other companies and stakeholders
tion that these actors should imple- curement. The procurement strate- as well as comply with international
ment the procurement strategy. It is gy incorporates aspects that concern guidelines in the field. Anti-corrup-
the central government authorities each and every one of these target tion is part of the Government’s
that are able to be at the forefront in groups and provides guidance on the definition of sustainable business.
the development of public procure- choice of priorities for achieving the
ment by using a strategic perspective objectives of public procurement.
in the purchases of their organisa- Contracting authorities and
tions. The category “contracting authorities contracting entities
and entities” in Sweden includes or- Contracting authorities:
However, the municipalities and ganisations with a range from a few Central and municipal government
county councils account for the bulk employees to several thousands. authorities, such as decision-making
of public purchasing in Sweden. These organisations procure every- assemblies in municipalities and
Against that background and with thing from new hospitals and rail- county councils and certain bodies
reference to the procurement strate- way lines to pens and copying paper. governed by public law (for ex-
gy, the Government also intends to Similarly, suppliers range from small ample, most municipal-owned and
some central government-owned
work to ensure that representatives non-governmental organisations
corporations). Combinations of one
of municipalities and county councils to huge multinational groups. The or several contracting authorities or
as well as other contracting author- policy in the procurement area one or several bodies governed by
ities and entities, adopt governing covers many different and widely public law also constitute contrac-
documents to put the policy objec- diverse activities. The procurement ting authorities.
tives and the Government’s aims strategy applies to all contracting
Contracting entities:
for public procurement into practice authorities and entities. Contracting authorities and public
within their activities. It is of crucial undertakings exercising activities
importance that central government within the field of energy, water,
authorities collaborate closely with State-owned companies transport and postal services, ba-
municipalities and county councils The procurement strategy is also sed on a specific or exclusive right.
in implementing and following up aimed at representatives of State-
on the strategy. For example, central owned companies. The Government
government authorities can collabo- is of the view that the State, in its
rate with municipalities and county capacity of company owner, must
councils in innovation procurements. ensure that State-owned companies
act responsibly and in exemplary
In order for the objectives of public fashion in their purchasing. The Gov-
procurement to be achieved, it is nec- ernment wants to emphasise that the
essary for the contracting authorities State’s policy on ownership in State-
and entities to be able to see the value owned companies states that such
of having similar aims as expressed in companies shall act in an exemplary
the strategy for their own operations. way within sustainable business and
Only then it will be possible to bring otherwise act in order to ensure that
about a change. they gain the trust of the public. Inte-
gration of sustainability issues into the
Other actors also play a vital role in organisation shall form a natural part
how public procurement will develop of a long-term business strategy and
1
Public procurement
as a strategic tool for
doing good business.
2
Effective public
purchasing.
3
A multiplicity of suppliers
and well-functioning
competition.
4
Legally certain public
procurement.
5
Public procurement that drives
innovation and promotes
alternative solutions.
6
Public procurement that is
environmentally respon-
sible.
7
Public procurement that
contributes to a socially
sustainable society.
development of the public procure- View costs in a broad context of the purchasing strategy as well as
the skills of setting quality criteria in
ment process. On an overarching from a life cycle perspective contract documents.
level, research can contribute to a Lack of a holistic approach to public
fact-based debate and well-found- procurement may imply that costs and By ensuring that your authority
makes use of the support that is
ed decisions. On a more applica- values for other activities affected by available. The National Agency for
tion-based level, research can create the public procurement are omitted Public Procurement, which is tasked
tools and procedures for more effec- from the calculation, along with cost by the Government to offer support
tive public procurement. Research and guidance for strategic public
differences which occur during the life
procurement, has a key role to play
findings in the form of analysis data cycle of products. This may result in in providing you with the necessary
and conclusions can help move the undesired pass on effects and sub- support.
development of public procurement optimisation of resources overall. It is
By making public procurement, with
forward. therefore important to take this into
emphasis on the strategic
account in the purchasing process. perspective, part of the skills
The Swedish Competition Authori- development of individuals in
ty offers research grants and operates The life cycle perspective is import- executive positions within central
government.
a Council for Research Issues whose ant, and shall be taken into account
tasks include stimulating research in in public procurement. All too often,
public procurement. The Council is lack of a holistic approach leads to
By ensuring that your authority
required to report to the Competition products with a low purchase price contributes with ideas and support
Authority and the National Agency being chosen, although quality and for possible research projects in
for Public Procurement such findings sustainability differences mean that the public procurement field and
participates in the work of the
from developments, above all in the operating costs will be higher in the
Competition Authority and the
economic and legal fields that may be long run. Public procurements com- National Agency for Public
relevant to the activities of the Com- prising not only products and mate- Procurement in the area of research.
petition Authority and the National rials but also investments, operation
By ensuring that your authority
Agency for Public Procurement. and maintenance services should
recognises the value of applying
The Council for Research Issues is include an incentive for efficiency existing research to develop the
appointed by the Competition improvements and stimulate new process of public procurement.
ways of thinking, and should develop
qualitative perspectives as well as
Systematic comparisons
environmental, social and ethical By ensuring that your authority
The report Systematiska jämförelser aspects. takes life cycle costs into account
- För lärande i staten (Systematic and performs a life cycle analysis
comparisons – for learning in the as part of any public procurement.
state sector; SOU 2015:36) con- The National Agency for Public
Ensure transition to an Procurement can offer guidance
cludes that central government
electronic purchasing process in this respect.
authorities have relatively effective
means for mutual comparison The use of existing and new elec-
where procurement activities are tronic tools must increase in order to
concerned, especially with regard develop, streamline and quality assure By ensuring that your authority
to costs. Systematic comparisons the public procurement process and switch to a totally electronically
between central government the subsequent ordering process. The coordinated purchasing process.
authorities may be used to deve- central government authorities need
lop procedures for control and By ensuring that your authority uses
to set a good example in this regard.
evaluation of the activities, but the support offered by the National
Increased use of electronic tools in
also for efficiency improvements in Agency for Public Procurement on
the authorities’ purchasing. Such
the purchasing process may also make issues relating to electronic
comparisons may also be used by it easier to gather statistical data (see purchasing tools.
Great potential exists in using public on the market today. The public
procurement as a tool for promot- sector can also promote innovation
ing development and innovation. By at supplier level by requesting, in
Releases the public employing techniques for innovation public procurements, functions rather
sector’s potential for procurement, such as pre-commercial than ready solutions. Furthermore,
innovation through public procurement and innovation partner- the public sector can, in its capacity
ship, the public sector can stimulate as active purchaser and first customer,
procurement
the development of completely new drive the market to develop solutions
innovative solutions that do not exist to important social challenges.
Enable participation by can be effective tools for promo- 7 voluntary organisations to participate.