Accelerating green public procurement for decarbonization of the construction and road transport sectors in the EU
Authors:   Stockholm Environment Institute, Nilsson Lewis Astrid , Kaaret Kaidi ,   Stockholm Environment Institute, Torres Morales Eileen ,   Stockholm Environment Institute, Piirsalu Evelin ,   Stockholm Environment Institute, Axelsson Katarina ,   Stockholm Environment Institute
Published: February 2023

Public procurement of goods and services contributes to about 15% of global greenhouse gas emissions. In the EU, public purchasing represents 15% of its GDP, acting as a major influencer on the market through the products and services acquired by governments from the local to national levels. The public sector has a role to play in leveraging this purchasing power to achieve the best societal value for money, particularly as we scramble to bend the curve of our planet’s warming. Globally, the construction and transport sectors each represent about 12% of government procurements’ GHG emissions. Furthermore, these sectors’ decarbonization efforts demand profound and disruptive technological shifts. Hence, prioritizing these sectors can make the greatest impact towards reducing the environmental footprint of the public sector and support faster decarbonization of key emitting industries. Meanwhile, the EU committed to achieving 55% reduction in GHG emissions by 2030 compared to 1990 levels. Drastic emissions reductions are needed at an unprecedented speed and scale to achieve this goal. Green Public Procurement (GPP) is the practice of purchasing goods and services using environmental requirements, with the aim of cutting carbon emissions and mitigating environmental harm throughout the life cycle of the product or service. While the EU and many of its Member States alike have recognized GPP as an important tool to meet climate goals, the formalization of GPP requirements at the EU level or among local and national governments has been fragmented. We call for harmonization to achieve the consistency, scale and focus required to make GPP practices a powerful decarbonization tool. We surveyed the landscape of GPP in the EU, with a focus on construction and road transport. Through interviews and policy research, we compiled case studies of eight Member States with different profiles: Sweden, the Netherlands, France, Germany, Estonia, Poland, Spain and Italy. We used this information to identify solutions and best practices, and to set forth recommendations on how the EU and its countries can harmonize and strengthen their GPP policies on the path toward cutting their contributions to climate change. What we found was a scattered approach to GPP across the board, with few binding requirements, little oversight and scant connective tissue from national to local practices or across different Member States, making it difficult to evaluate progress or compare practices. Interviewees, including policy makers, procurement experts and procurement officers from the featured Member States, highlighted the lack of time or resources to adopt progressive GPP practices, with no real incentive to pursue it. Furthermore, we found a need for more awareness and clear guidance on how to leverage GPP for impactful societal outcomes. Doing so requires better harmonized processes, data, and ways to track the impact and progress achieved. That is not to say it is entirely neglected. Most Member States studied highlight GPP in various national plans and have set targets accordingly. Countries, regions, and cities such as the Netherlands, Catalonia and Berlin serve as beacons of GPP with robust goals and higher ambition. They lead the way in showing how GPP can help mitigate climate change. For example, the Netherlands is one of the few countries that monitors the effects of GPP, and showed that public procurement for eight product groups in 2015 and 2016 led to at least 4.9 metric tons of avoided GHG emissions. Similarly, a monitoring report from 2017 showed that the State of Berlin managed to cut its GHG emissions by 47% through GPP in 15 product groups. Spain’s Catalonia region set a goal of 50% of procurements using GPP by 2025, an all-electric in public vehicle fleet and 100% renewable energy powering public buildings by 2030. Drawing from these findings, we developed recommendations on how to bolster GPP and scale it to its full potential. In governance, policies, monitoring, implementation and uptake, some common themes exist. The need for: • Better-coordinated policies • Common metrics for measuring progress and evaluating tenders • Increased resources such as time, funding and support mechanisms • Greater collaboration and knowledge exchange among procurers and businesses • Clearer incentives, binding requirements and enforcement mechanisms, covering operational and embedded emissions With a concerted and unified movement toward GPP, the EU and its Member States can send strong market signals to the companies that depend on them for business, accelerating the decarbonization process that our planet requires.