{"id":22252,"date":"2025-11-10T14:19:01","date_gmt":"2025-11-10T13:19:01","guid":{"rendered":"https:\/\/www.uni.lu\/fdef-en\/?post_type=articles&#038;p=22252"},"modified":"2025-11-10T16:55:22","modified_gmt":"2025-11-10T15:55:22","slug":"evaluation-of-the-eu-public-procurement-directives","status":"publish","type":"articles","link":"https:\/\/www.uni.lu\/fdef-en\/articles\/evaluation-of-the-eu-public-procurement-directives\/","title":{"rendered":"Evaluation of the EU Public Procurement Directives"},"content":{"rendered":"\n<section class=\"wp-block-unilux-blocks-free-section section\"><div class=\"container xl:max-w-screen-xl\"><div class=\"py-48 first:pt-0 last:pb-0 wp-block-unilux-blocks-people-list\">\n    \n<h2 class=\"has-text-align-left wp-block-unilux-blocks-heading\"        id=\"author\"\n    >\nAuthor<\/h2>\n<ul class=\"flex flex-wrap -mx-16 wp-block-unilux-blocks-people-item-wrapper\">\n    <li class=\"w-full md:w-1\/2 p-16 wp-block-unilux-blocks-people-item-automated\"><div class=\"ulux-card card-people bg-theme\"><div class=\"list-people bg-theme\">\n    <div class=\"list-people__container\">\n        <div class=\"list-people__visual\">\n            <figure class=\"wp-block-dev4-reusable-blocks-image\">\n                <!-- Template Image Component: default -->\n<img decoding=\"async\" class=\"w-full\" width=\"\" height=\"\" rel=\"\" alt=\"Margherita Lucia BRANCA\" src=\"https:\/\/www.uni.lu\/en\/person-image\/NTAwOTc1NDhfX01hcmdoZXJpdGEgTHVjaWEgQlJBTkNB\" srcset=\"https:\/\/www.uni.lu\/en\/person-image\/NTAwOTc1NDhfX01hcmdoZXJpdGEgTHVjaWEgQlJBTkNB--thumbnail 150w,https:\/\/www.uni.lu\/en\/person-image\/NTAwOTc1NDhfX01hcmdoZXJpdGEgTHVjaWEgQlJBTkNB--medium 300w,https:\/\/www.uni.lu\/en\/person-image\/NTAwOTc1NDhfX01hcmdoZXJpdGEgTHVjaWEgQlJBTkNB--medium_large 768w,https:\/\/www.uni.lu\/en\/person-image\/NTAwOTc1NDhfX01hcmdoZXJpdGEgTHVjaWEgQlJBTkNB--large 1024w,https:\/\/www.uni.lu\/en\/person-image\/NTAwOTc1NDhfX01hcmdoZXJpdGEgTHVjaWEgQlJBTkNB--1536x1536 1536w,https:\/\/www.uni.lu\/en\/person-image\/NTAwOTc1NDhfX01hcmdoZXJpdGEgTHVjaWEgQlJBTkNB--2048x2048 2048w\" loading=\"lazy\" \/><!-- end Image Component -->\n            <\/figure>\n        <\/div>\n        <div class=\"list-people__body\">\n            <h3 class=\"list-people__title\">Margherita Lucia BRANCA<\/h3>\n            <p class=\"list-people__description\">Doctoral researcher<\/p>\n            <div class=\"wp-block-unilux-blocks-simple-cta wp-block-unilux-blocks-people-item-automated\">\n    <a\n        href=\"https:\/\/www.uni.lu\/fdef-en\/people\/margherita-lucia-branca\/\"\n        title=\"Margherita Lucia BRANCA\"\n        class=\"link-text link-text--icon list-people__link link-absolute\"\n        target=\"\"\n    >\n        <span class=\"link-text__body\">\n            <span class=\"link-text__name\">Learn more<\/span>\n        <\/span>\n        <svg aria-hidden=\"true\" focusable=\"false\" class=\"icon icon-outline icon--arrow-right \"><use xlink:href=\"https:\/\/www.uni.lu\/wp-content\/themes\/unilux-theme\/assets\/images\/icons\/icons-outline.svg#icon--arrow-right\"><\/use><\/svg>    <\/a>\n<\/div>\n        <\/div>\n    <\/div>\n<\/div>\n<\/div><\/li><\/ul>\n\n<\/div>\n\n\n\n<div class=\"wp-block-unilux-blocks-spacer is-spacer-size-sm\"><\/div>\n\n\n<p>In the context of the revision of the EU public procurement directives (a legislative proposal is expected to be adopted in Q2 of 2026)<sup>1<\/sup>, the European Commission has published an evaluation of the current framework (Directive 2014\/23\/EU; Directive 2014\/24\/EU; Directive 2014\/25\/EU).<sup>2<\/sup><\/p>\n\n\n\n<p>Public procurement plays a crucial role in the EU economy, given that it accounts for 15% of EU GDP, with roughly one quarter of this spending, equivalent to \u20ac616 billion, being subject to EU rules. Given these significant figures, both the Letta<sup>3<\/sup> and the Draghi<sup>4<\/sup> Reports urged the EU to better leverage public resources to achieve key policy objectives, such as sustainability, strategic autonomy, resilience and competitiveness.<\/p>\n\n\n\n<p>In line with the Better Regulation Toolbox<sup>5<\/sup>, the evaluation assesses the effectiveness, efficiency, relevance and coherence of the three Directives. The evaluation also considers the results of the call for evidence and of the open public consultation<sup>6<\/sup> launched by the Commission earlier this year.<\/p>\n\n\n\n<p>At the time of their adoption, the objectives of the 2014 Directives were to increase legal certainty, simplify procedures, promote market access and secure the best value for public money. Moreover, they also sought to optimize societal outcomes (including sustainability, social inclusion and innovation, also referred to as the \u201cstrategic objectives\u201d of public procurement). Since their adoption, the EU legislature adopted more than 50 sectoral legislation regulating public procurement.<sup>7<\/sup><\/p>\n\n\n\n<p>In a 2023 special report on public procurement in the EU<sup>8<\/sup>, the European Court of Auditors, by analyzing a series of indicators, such as cross-border biddings and share of single-bidding procedures, concluded that the Directives had essentially failed in achieving their strategic objectives and that competition had even decreased in the period following their adoption. Consequently, the Council of the European Union<sup>9<\/sup> and the European Parliament<sup>10<\/sup> called upon the Commission to revise and update the current framework. The Commission initiated this process with this evaluation.<\/p>\n\n\n\n<p><strong>Effectiveness<\/strong><\/p>\n\n\n\n<p>The evaluation shows that the Directives were not particularly effective in achieving the objectives of increased <strong>legal<\/strong> <strong>certainty<\/strong> as to their scope of application and definitions. Significant uncertainties remain across Member States on the interpretation of key definitions, such as \u201cpublic contract\u201d or \u201cbody governed by public law\u201d. Limited results were documented also in relation to the <strong>simplification of procedures<\/strong> both in terms of their duration (which increased from an average of 58 days to 62 days), and administrative burdens faced by contracting authorities. However, it is interesting to note that a lot of the administrative complexity reportedly arises from the practice of gold-plating: the addition of extra requirements by Member States when transposing the EU Directives.<\/p>\n\n\n\n<p>The Directives are generally considered adequate to ensure <strong>market access<\/strong> to EU economic operators, despite persisting structural and practical barriers (such as language differences, inconsistent documentation requirements and obstacles to worker mobility). On the contrary, significant uncertainty remains when it comes to the rules applicable to economic operators from third countries. This issue also relates to the broader challenges, which may hinder the EU\u2019s pursuit for strategic autonomy and that will need to be addressed in the revision process, of reducing excessive dependence on non-EU suppliers for critical materials and technology and ensuring that EU operators are granted reciprocal access to third countries\u2019 tenders.<\/p>\n\n\n\n<p>Concerning the use of procurement to achieve <strong>strategic objectives<\/strong>, namely environmental objectives, social protection and innovation, the evaluation shows a mixed picture. While most of the contracting authorities who responded to the open consultation consider that the Directives encourage green, social and innovation procurement, economic operators remain more skeptical.<\/p>\n\n\n\n<p>Overall, the assessment on the use of public procurement to achieve strategic objectives can be summarized as a \u201ccautious approval\u201d.<\/p>\n\n\n\n<p><strong>Efficiency, Relevance and Coherence<\/strong><\/p>\n\n\n\n<p>The evaluation shows positive results on the <strong>efficiency<\/strong> of the framework. Although contracting authorities face high direct and indirect costs (with direct costs averaging 1% of the contract value), they are more than offset by the benefits generated by the Directives, both in terms of immediate cost-savings and wider societal benefits.<\/p>\n\n\n\n<p>The objectives of <strong>simplifying<\/strong> and modernizing public procurement procedures, as well as promoting the procurement of sustainable goods and services continue to remain relevant. A new emerging goal is the use of public procurement to strengthen strategic autonomy and economic security, particularly in light of the current geopolitical context.<\/p>\n\n\n\n<p>In terms of <strong>coherence<\/strong>, the evaluation highlights two main concerns: first, since the enforcement of environmental and social concerns is left to the discretion of Member States, applications are very diverse. Second, the growing number of sectoral legislations directly or indirectly regulating public procurement has led to fragmentation and inconsistencies (e.g. in the use of certain terminology or in the diverging scopes of application of different instruments).<\/p>\n\n\n\n<p><strong>Lessons learned and conclusions<\/strong><\/p>\n\n\n\n<p>In conclusion, the evaluation shows that, while the objectives of the 2014 Directives have partially been met, the current public procurement rules are perceived as excessively complex and insufficiently flexible. This consideration highlights the need for a new framework that is more agile, coherent and focused on strategic objectives. Moreover, while the existing strategic objectives remain relevant, new priorities have emerged: economic security and strategic autonomy. These new priorities will also need to be taken into account in the revision process. <\/p>\n\n\n\n<p>Following the publication of the evaluation, the Commission has launched a call for evidence<sup>11<\/sup> to consider for the drafting of the new framework and its impact assessment.<\/p>\n\n\n<div class=\"wp-block-unilux-blocks-spacer is-spacer-size-sm\"><\/div>\n\n\n<p><sup>1<\/sup> Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee and the Committee of the Regions Commission work programme 2026 Europe&#8217;s independence moment, annex I.<br><sup>2<\/sup> Directive 2014\/23\/EU of 26 February 2014 on the award of concession contracts; Directive 2014\/24\/EU of 26 February 2014 on public procurement and repealing Directive 2004\/18\/EC; Directive 2014\/25\/EU of 26 February 2014 on procurement by entities operating in the water, energy, transport and postal services sectors.<br><sup>3<\/sup> E. Letta, \u201cMuch More than a Market &#8211; Speed, Security, Solidarity. Empowering the Single Market to deliver a sustainable future and prosperity for all EU Citizens\u201d, April 2024.<br><sup>4<\/sup> M. Draghi, \u201cThe Future of European Competitiveness \u2013 In depth analysis and recommendations\u201d, September 2024, p. 133.<br><sup>5<\/sup> European Commission, Better Regulation Toolbox, July 2023, Chapter 6, Tool #47.<br><sup>6<\/sup> European Commission, <a href=\"https:\/\/eur-lex.europa.eu\/legal-content\/EN\/TXT\/PDF\/?uri=PI_COM:Ares(2024)1164801\" target=\"_blank\" rel=\"noreferrer noopener\">Call for evidence for an evaluation \/ fitness check<\/a>, 13 December 2024, Ref. Ares(2024)8928678.<br><sup>7<\/sup> E.g. Regulation (EU) 2024\/1781 of 13 June 2024 establishing a framework for the setting of ecodesign requirements for sustainable products, art. 65; Directive (EU) 2023\/970 of 10 May 2023 to strengthen the application of the principle of equal pay for equal work or work of equal value between men and women through pay transparency and enforcement mechanisms, art. 24; Regulation (EU) 2022\/2560 of 14 December 2022 on foreign subsidies distorting the internal market<br><sup>8<\/sup> European Court of Auditors, Special Report 28\/2023: <a href=\"https:\/\/www.eca.europa.eu\/en\/publications\/SR-2023-28\" target=\"_blank\" rel=\"noreferrer noopener\">Public Procurement in the EU<\/a>. Less competition for contracts awarded for works, goods and services in the 10 years up to 2021.<br><sup>9<\/sup> <a href=\"https:\/\/eur-lex.europa.eu\/legal-content\/EN\/TXT\/?uri=CELEX%3A52024XG03521&amp;qid=1733312572628\" target=\"_blank\" rel=\"noreferrer noopener\">Council Conclusions on the European Court of Auditors\u2019 Special Report No. 28\/2023<\/a> Improve a fair and effective competition for EU public procurement contracts awarded for works, goods, and services, 3 June 2024, EUR-Lex &#8211; 52024XG03521 &#8211; EN &#8211; EUR-Lex.<br><sup>10<\/sup> European Parliament resolution of 9 September 2025 on public procurement (2024\/2103(INI)).<br><sup>11<\/sup> European Commission, <a href=\"https:\/\/ec.europa.eu\/info\/law\/better-regulation\/have-your-say\/initiatives\/15492-EU-public-procurement-rules-revision_en\" target=\"_blank\" rel=\"noreferrer noopener\">Call for evidence for an impact assessment<\/a>, 3 November 2025, Ref. Ares(2025)9425851.<\/p>\n\n\n<div class=\"wp-block-unilux-blocks-spacer is-spacer-size-sm\"><\/div>\n\n\n<ul class=\"wp-block-unilux-blocks-button-list-v2\">\n<li class=\"wp-block-unilux-blocks-button-list-item-v2\"><a class=\"quick-link\" href=\"https:\/\/www.uni.lu\/research-en\/research-projects\/greitma\/\" target=\"\" role=\"link\" rel=\"noopener\" tabindex=\"0\"><span class=\"quick-link__container\">\n<div class=\"wp-block-unilux-blocks-block-inserter quick-link__img\"><\/div>\n\n\n\n<span class=\"quick-link__name wp-block-unilux-blocks-plain-text\">Find out more about the Doctoral Training Unit GREITMA<\/span>\n\n<svg aria-hidden=\"true\" focusable=\"false\" class=\"icon icon-outline icon--arrow-right \"><use xlink:href=\"https:\/\/www.uni.lu\/wp-content\/themes\/unilux-theme\/assets\/images\/icons\/icons-outline.svg#icon--arrow-right\"><\/use><\/svg><\/span><\/a><\/li>\n<\/ul>\n<\/div><\/section>\n","protected":false},"excerpt":{"rendered":"","protected":false},"author":85,"featured_media":21031,"template":"","format":"standard","meta":{"featured_image_focal_point":[],"show_featured_caption":false,"ulux_newsletter_groups":"","uluxPostTitle":"","uluxPrePostTitle":"","_trash_the_other_posts":false,"_price":"","_stock":"","_tribe_ticket_header":"","_tribe_default_ticket_provider":"","_tribe_ticket_capacity":"0","_ticket_start_date":"","_ticket_end_date":"","_tribe_ticket_show_description":"","_tribe_ticket_show_not_going":false,"_tribe_ticket_use_global_stock":"","_tribe_ticket_global_stock_level":"","_global_stock_mode":"","_global_stock_cap":"","_tribe_rsvp_for_event":"","_tribe_ticket_going_count":"","_tribe_ticket_not_going_count":"","_tribe_tickets_list":"[]","_tribe_ticket_has_attendee_info_fields":false},"articles-category":[483],"articles-topic":[488],"organisation":[102,101],"authorship":[85],"acf":[],"yoast_head":"<!-- This site is optimized with the Yoast SEO Premium plugin v22.3 (Yoast SEO v22.3) - 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