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FP7-ICT-2013 Pre-Commercial Procurement (PCP) Lieve Bos (lieve.bos AT ec.europa.eu) European Commission DG CONNECT F2 unit (Innovation)

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Presentation on theme: "FP7-ICT-2013 Pre-Commercial Procurement (PCP) Lieve Bos (lieve.bos AT ec.europa.eu) European Commission DG CONNECT F2 unit (Innovation)"— Presentation transcript:

1 FP7-ICT-2013 Pre-Commercial Procurement (PCP) Lieve Bos (lieve.bos AT ec.europa.eu) European Commission DG CONNECT F2 unit (Innovation)

2 Rationale Public sector is faced with important challenges. Often public sector transformations require innovative solutions, and forward looking public procurement strategies However, public procurement of R&D is underutilised in EU versus other parts of the world RTD expenditure as % of GDP 0 0,5 1 1,5 2 2,5 3 3,5 EUUS R&D Procurement Basic +applied R&D funding Public expenditure in Europe is higher than in other parts of the world (47% of EU-25 GDP) But 20 times less is spent on preparing the public sector for future challenges: R&D procurement in EU (~2,5 Bn) versus US (~50Bn)

3 Lack of awareness of how to optimise risk- benefit balance for procurer and supplier Unclear how within the legal framework for R&D procurement Fragmentation of demand 3 Overcoming the barriers Phased approach, separate procurement of R&D from procurement of commercial vollumes of end-solutions, IPR sharing at market price Commission PCP communication COM(2007)799 & SEC(2007)1668 Cooperation among procurers (share PCP/PPI experience/cost), EU support for cross-border PCPs/PPIs

4 How does it work Supplier B Supplier C Supplier D Phase 1 Solution design Phase 2 Prototype development Phase 3 Original development of limited volume of first test products / services Supplier A Supplier B Supplier C Supplier D Supplier B Phase 0 Curiosity Driven Research R&D / Pre-commercial Procurement (PCP) Phase 4 Deployment of commercial end-products Diffusion of newly developed products / services Supplier D Public Procurement of Innovative Solutions (PPI) … in line with WTO proc. rules, EU Treaty, State aid free Supplier(s) A,B,C,D and/or X Also normally multiple sourcing here to keep competition going Smart PCP/PPI combination enabling: –Price/quality products that better fit public sector needs –Earlier customer feedback for companies developing solutions –Better take-up/Wider commercialisation of R&D results –Price/quality products that better fit public sector needs –Earlier customer feedback for companies developing solutions –Better take-up/Wider commercialisation of R&D results (COM/2007/799 & SEC/2007/1668)

5 PCP Pre-Commercial Procurement When –Challenge requires R&D to get new solutions developed. Problem clear, but pros / cons of several potential competing solutions not compared / validated yet. No commitment to deploy (PPI) yet. What –Public sector buys R&D to steer development of solutions to its needs, gather knowledge about pros / cons of alternative solutions, to avoid supplier lock-in later (create competitive supply base) How –Public sector buys R&D from several suppliers in parallel (comparing alternative solution approaches), in form of competition evaluating progress after critical milestones (design, prototyping, test phase), risks & benefits of R&D (e.g. IPRs) shared with suppliers to maximise incentives for wide commercialisation

6 Status of PCP implementation across Europe Update November 2012 status More info about EU funded cross border PCP projects: http://cordis.europa.eu/fp7/ict/pcp/projects_en.htmlhttp://cordis.europa.eu/fp7/ict/pcp/projects_en.html More Info about national PCP initiatives in Member States: http://cordis.europa.eu/fp7/ict/pcp/msinitiatives_en.htmlhttp://cordis.europa.eu/fp7/ict/pcp/msinitiatives_en.html Pilots started Framework identified and/or pilots in preparation Hungary Belgium Netherlands Awareness Raising Exploring possibilities Denmark Austria Finland Sweden Poland Working on framework Germany France Luxembourg Ireland Cyprus Romania Slovenia Slovakia Bulgaria Czech Republic Estonia Greece Latvia Lithuania Malta Portugal Spain Norway Switzerland Italy Projects in dotted-line are cross-border EC funded PCPs: SILVER: EC co-funded PCP pilot started January 2012 (Supporting Independent Living of Elderly through Robotics) CHARM: EC co-funded PCP pilot started September 2012 (Common Highways Agency Rijkswaterstaat Model) V-CON: EC co-funded PCP pilot started October 2012 (Virtual Construction of Roads) SMART@FIRE: EC co-funded PCP pilot started November 2012 (Integrated ICT solutions for Smart Personal Protective Equipment for Fire Fighters and First Responders) SILVER UK Iceland CHARM V-CON SMART@FIRE

7 7 Potential £160m p.a. saving Potential £30m p.a. saving £4,000 per HCAI avoided Potential £17m p.a. saving Potential £19m p.a. saving www.nic.nhs.uk Example PCP-like project in Healthcare Potential Value to NHS: The NIC has supported the development of innovations to improve the quality of the patient experience and generate significant cost savings to the NHS (£236m). Value to the economy: With the support of the NHS National Innovation Center (NIC), a number of innovations have been able to attract significant funding (£290m).

8 Regulatory requirement to seriously reduce CO2 emissions by 2016 without negative effects on health/environment, beyond what market is able to offer PCP started in 2011, currently comparing solution approaches of 5 vendors, time-to-market shortened Follow-up procurement for deployment foreseen for 2014 (open to whole market again) PCP example on CO2 emissions Carbon capture – Norway Statoil/Gassanova

9 EC co-financing for Cross-border PCPs FP7-ICT-2013 An open call for joint PCPs addressing any area of public interest (CP-CSA for PCP grants) Objective 11.1, Call 10: Proposals for joint PCPs can relate to for example public sector needs for new ICT solutions in healthcare, inclusion, e-government, transport, energy efficiency, environment, security, education etc (4M: 1 project) Targeted calls for joint PCPs in specific areas of public interest (CP-CSA for PCP grants) Objective 5.1.(d), Call 10 - Personalised Health - Active Ageing (8M) up to 1 on personalised care for co-morbid patients up to 2 on mobile ehealth services Objective 11.3, Call 10 - High quality cloud computing for public sector needs (10M: 1 project) Objective 11.2, Call 11 - More efficient, affordable digital preservation (5M: up to 2 projects) Objective 8.2, Call 11 - Technology enhanced learning (min 5,5M) Call deadlines: call 10 (15 Jan 2013), call 11 (16 April 2013)

10 10 EU-Funding 100 % for CSA part: Networking and Coordination activities Max 75 % for CP part: Joint research activities, Joint PCP tendering (R&D Services) Phase 1 Solution Exploration Phase 2 Prototyping Phase 3 Original development of a limited volume of first products/services in the form of a test series Phase 4 Commercialisation of products/services (commercial development) Public Procurement for commercial roll-out Supplier A,B,C,D,E or X Supplier C Supplier E Supplier C Supplier D Supplier E Supplier B Supplier C Supplier D Supplier E Supplier A Product Idea Solution Design PrototypeCommercial End-Products Typical Product Innovation Life Cycle Intermediate Evaluation Selection Intermediate Evaluation Selectiona CP-CSA for PCP Management/Coordination joint PCP CSA part 100% Preparing joint PCP Dissimination PCP CP part max 75% PrototypeSolution Design Product Idea First Test- Products Choice between possible constellations for joint procurement P1 P2 P3 P4 P5 Preparation proposals CP-CSA for PCP Consortia of public purchasers P1->P5 ONE joint PCP tender What does CP-CSA for PCP EC financing cover Commercial Tendering

11 11 Support for consortia of public purchasers planning joint cross-border PCP on topics of common European interest - Bring radical improvements to the quality and efficiency of public services with breakthrough solutions Typical duration PCP project 3-4 years, projects WP2013 start 2 nd half 2013 -> target solutions to be deployed 2018 at earliest - Reduce fragmentation public sector demand and create opportunities for leadership in new markets for industry EU contribution (CP-CSA): combination of –CSA: Reimbursement of eligible costs for preparation, management and coordination of the joint PCP call for tender (100% funded) –CP: Reimbursement of max 75% of the eligible costs for the development of the new ICT solutions procured through the joint PCP (for financing the R&D to be performed by the bidders selected via the joint PCP) * CP-CSA = combination of CP and CSA funding within the same EC grant agreement CP-CSA for PCP grant FP7-ICT-2013 CP-CSA for PCP grant FP7-ICT-2013

12 12 Minimum number of participants –3 mutually independent public purchasers from 3 different Member States or FP7 Associated Countries –Critical mass of public purchasers necessary to trigger wide implementation of the public service innovation strategies and solutions that will be specified and/or developed during the PCP with clear financial commitments for undertaking the joint PCP. Public purchasers are –contracting authorities in the meaning of procurement directives (2004/18/EC & 2008/17/EC), responsible for the acquisition strategy of the new ICT solutions that could be developed through the joint PCP, to obtain the required quality/efficiency improvements in their public service offering –Examples: public hospitals / transport operators, ministries (e.g. for health, welfare, transport, environment, justice, etc), water or energy utilities, local/regional authorities, police or fire fighters Eligibility criteria consortia

13 13 Other stakeholders –e.g. user organisations, regulatory/certification bodies influencing uptake of solutions, R&I ministries/agencies incentivising national procurers to undertake PCPs –Whose participation well justified -> may participate, but… Private bodies –Potential suppliers of solutions sought for by the public bodies -> not eligible to participate as EC grant beneficiaries (to avoid conflicts of interest) –Not potential suppliers of solutions sought for by the public bodies -> may participate as EC grant beneficiaries (e.g. private contracting authorities such as private hospitals) Universities –May participate on the buyers side as public purchasers interested in procuring new development of solution xyz –If for profit, may participate on the supply side as bidders/contractors developing solutions in the PCP Eligibility criteria consortia

14 14 Private entities that are potential suppliers of solutions for the PCP in the CP part cannot participate as beneficiaries Private entities that are not potential suppliers, but buyers - contracting authorities (CAs) under procurement directives - can participate as beneficiaries Type 1 beneficiaries: CAs eligible for 75% rate in CP part –Non profit public bodies (e.g. local/regional/national authorities considered contracting authorities under proc. Dir. 2004/18/EC) –Secondary and higher education establishments and research orgs (in their capacity as potential buyers, not suppliers of new solutions) –SMEs (not potential suppliers of solutions, but e.g. small & medium private enterprises owned/controlled by the public sector to provide public services that are subject to public procurement directives) Type 2 beneficiaries: CAs eligible for 50% rate in CP part –Other type of beneficiaries (e.g. private larger-than-SME entities that are not potential suppliers of solutions for the PCP and are considered contracting authorities under procurement Directives: e.g. large utilities subject to 2004/17/EC) Funding rate for CP part Funding rate for CP part

15 15 If all project partners that are contributing financially to the cost of the joint PCP are type 1 beneficiaries –Then max reimbursement rate for costs under CP part = 75% If all project partners that are contributing financially to the cost of the joint PCP are type 2 beneficiaries –Then max reimbursement rate for costs under CP part = 50% If there is a mix of type 1 and type 2 beneficiaries that are contributing financially to the cost of the joint PCP, the maximum reimbursement rate for the PCP procurement cost under the CP part will lie in between 50% and 75% –and will be calculated taking into account that the maximum reimbursement rates for the financial contribution of type 1 versus type 2 beneficiaries towards the total PCP procurement budget is 75% versus 50% respectively. Funding rate for CP part Funding rate for CP part

16 16 Defining the mid-to-long term solution requirements for the required public service innovation, and resulting specifications for a joint PCP call for tender –Note: In their proposal for a CP-CSAs for PCP, consortia shall have jointly identified one concrete challenge in the mid-to-long term innovation plans of the participating public purchasers that requires new R&D that is proposed to be procured in cooperation through PCP Establishing implementation methods for multinational PCP evaluation and monitoring Awareness Raising, experience sharing (incl training for public purchasers), dissemination of results, contribution to standards/regulation to remove obstacles for introducing PCP innovations in the market Cooperation agreements enabling further transnational PCP projects and projects Activities supported Under CSA part

17 17 Execution of a joint cross-border PCP, to explore possible alternative solution paths for the targeted improvements in public sector services, and testing of these solutions against a set of jointly defined performance criteria. ONE joint PCP tender Choice between possible constellations for joint procurement P1 P2 P3 P4 P5 "Joint procurement" means combining the procurement actions of two or more contracting authorities into one procurement carried out jointly. The key defining characteristic is that there should be only one tender published, and only one entity awarding the resulting R&D service contracts for all PCP phases on behalf of all participating purchasers. Different constellations for joint procurement are possible, but in any case, all participating purchasers transfer their financial contribution to the PCP into one common pot from which all suppliers are paid. Consortia of public purchasers P1->P5 Activities supported Under CP part

18 18 In the "common procurement entity" constellation all involved public purchasing authorities commonly establish or designate one external legal entity to conduct the joint procurement with a joint mandate and joint resources of all public purchasing authorities. In the "lead authority" constellation a group of public purchasing authorities collaborate through their existing purchasing departments in such a way that one public purchasing authority of the group is designated as lead authority to conduct the joint procurement, with joint mandate and joint resources of all purchasers, all in consultation with other purchasing authorities involved in the joint procurement. "piggy-backing" can be combined with above: the one public purchasing authority executing the procurement can provide access to the results of the contract to a wider range of authorities, essentially by stating in the Contract Notice that other named public purchasing authorities may also wish to may also wish to make use of the resulting contract a later date (normally during the timeframe of the original contract). Activities supported Under CP part

19 19 Obj. 11.1 & App. 6: specific requirements for EC co-financed joint cross-border PCPs Open dialogue with industry in preparation phase –Announced widely, well in advance, at least in English EU wide publication PCP call for tender, at least in English All offers evaluated based on same objective criteria –regardless of company size, geographic location of head office Use functional/performance based specifications –not prescribing specific solution approach PCP covers phase 1 to 3, multiple companies in competition –one framework contract/supplier with 3 specific contracts/phase Tenders awarded based on best value for money (not just lowest price) and market price (no State aid) IPRs shared: ownership rights with companies, license free usage rights, right to license, call back option, right to publish PCP results with procurers Support Europe 2020 objectives of growth and job creation –Majority of R&D and operational activities related to PCP contract, including principle researchers working on PCP contract in Europe* Avoid disproportionate qualification/financial guarantee requirements: alternative (commercialisation plan in evaluation criteria) * In EU Member States or Countries Associated to FP7

20 20 CSA part –Direct eligible costs CSA part: funded at 100% –Indirect eligible costs CSA part: max 7% of direct eligible costs (excluding the direct eligible costs for subcontracting and the costs of reimbursement of resources made available by third parties which are not used on the premises of the participant) CP part –Reimbursement is limited to maximum 75% of the eligible (direct) costs for the development of the new ICT solutions procured through the joint PCP call for tender. –No indirect costs (overheads) Financial regime

21 Financial implications PCP for purchasers Example: 5 Mio CP-CSA for PCP grant Max 30% (1,5 Mio) for coordination costs - 100% funded Other 3,5 Mio = EC contribution to the ICT R&D procured through the joint PCP Funding rate 75% for some, 50% for other contracting authorities (CAs) If consortium of only CAs all eligible for 75% rate -> PCP of 4,66 Mio (ex VAT) If consortium of only CAs all eligible for 50% rate -> PCP of 7 Mio (ex VAT) How to use CP- CSA for PCP grant Consortium brings 1,16-3,5 Mio (+VAT) for 4,93-7 Mio PCP If consortium of CAs all eligible for 75% rate, and e.g. joint PCP under BE law then VAT = 21% ( 0,98 Mio) -> consortium invests 2,14 Mio If consortium of 5 CAs, and PCP phase 1-3 spread over 3 years Then each project partner/CA invests 143K on average/Y over 3 years in the PCP Cross-border cooperation + EC funding reduces risk/cost for CAs Joint PCP cheaper than buying R&D from one supplier on your own as CA Comparing various solution approaches from different vendors Defragmenting market to get in long run also cheaper large volume purchases Sharing R&D cost/experience with other procurers & EC

22 Financial implications for suppliers Supplier B Supplier C Supplier D Phase 1: Solution design ~10-15% PCP budget ~100-250K/supplier ~4-10 suppliers Phase 2: Prototyping ~30-40% PCP budget ~500-750K/supplier ~3-6 suppliers Phase 3: Original development – operational testing ~50-60% PCP budget ~800K-2,3M/supplier ~2-4 suppliers Supplier A Supplier B Supplier C Supplier D Supplier B Example of 5-7 Mio PCP Supplier D Example CP-CSA for PCP grant Supplier E Preparation Joint PCP P1 P2 P3 P4 P5 Consortia of public procurers P1->P5 (min 3) One Joint PCP call for tender Example: 5-7 Mio for PCP spread over # suppliers & phases Consider how many suppliers needed at start to get competitive supply chain at end Typically cost increases with each phase, but less suppliers per phase Typically 5-7 Mio PCP can finance 1-3Mio of R&D per supplier (gradually increasing financing/phase also feasible for SMEs to bring product to market)

23 23 Work Programme FP7-ICT-2013, Call fiche –Every CP-CSA on PCP has to comply with requirements on the PCP procedure explained in Objective 11 & Appendix 6 Guide for Applicants for CP-CSAs for PCP ! –Guidance on how to prepare and evaluate proposals –This is a GfA specifically tuned to the needs of CP-CSAs for PCP ! COM/2007/799, SEC/2007/1668 and FAQs on PCP website –Contains the basics: why and how PCP Expression of interest form & online networking platform ICT proposers day –Can help to find partners beyond traditional FP participants Pre-proposal check –Provides feedback on draft pre-proposal Extra info day objective 11.1 on 2 October 2012, Brussels Important docs proposal stage

24 Evaluation Criteria Combination of All funding schemes, CSA & CP evaluation criteria with specific connotation (detailed info in Guide for Applicants) S/T QUALITYIMPLEMENTATIONIMPACT Soundness of concept and quality of objectives. Progress beyond the state-of-the- art (relevant only to CP part). Contribution to the coordination of high quality research (relevant only to CSA part). Quality and effectiveness of the CSA mechanisms (mechanisms proposed to achieve the objectives of the networking and coordination CSA part), and associated work plan Quality and effectiveness of the S/T methodology and associated work plan (relevant only to CP part). Appropriateness of the management structure and procedures. Quality and relevant experience of the individual participants. Quality of the consortium as a whole (including complementarity, balance). Appropriate allocation and justification of the resources to be committed (budget, staff, equipment … ). Contribution at the European level, to the expected impacts listed in the work programme under relevant topic/activity. Appropriateness of measures for the exploitation of project results, dissemination of knowledge, through the engagement with stakeholders and the public at large, and the management of intellectual property and for spreading excellence.

25 S/T Quality Read carefully the Guide for Applicants for CP-CSAs for PCP Dont forget in particular the following points (non exhaustive) S/T QUALITYIMPLEMENTATIONIMPACT Soundness of concept and quality of objectives. Progress beyond the state-of- the-art (relevant only to CP part of the proposal). Contribution to the coordination of high quality research (relevant only to CSA part of the proposal). Quality and effectiveness of the CSA mechanisms (mechanisms proposed to achieve the objectives of the networking and coordination CSA part of the project), and associated work plan Quality and effectiveness of the S/T methodology and associated work plan (relevant only to CP part of the proposal). Overall approach for combining networking and coordination activities with joint research activities (PCP procurement of new ICT developments) to bring the targeted quality and efficiency improvements in the area of public interest addressed by the project The degree of ambition in the R&D services to be procured in the joint PCP Justification provided in proposal that the topic proposed for the joint PCP call for tender fits the scope of an R&D services contract How the proposed joint networking and coordination activities strengthen the cooperation between public bodies in Europe in the innovation of their public services through a strategy that includes PCP, in particular through the preparation, management and coordination of a joint PCP call for tender (1) Overall methodology to achieve objectives of the CSA part (2) Work Plan, Work Packages, Deliverables, Milestones for CSA part (1) Overall methodology to achieve the objectives of the CP part incl. how the joint PCP call for tender will be implemented in line with objective 11.1 and Appendix 6 requirements (2) Work Plan, Work Packages, Deliverables, Milestones for CP part incl. joint procurement cost table

26 Implementation Read carefully the Guide for Applicants for CP-CSAs for PCP Dont forget in particular the following points (non-exhaustive) IMPLEMENTATION IMPACT Appropriateness of management structure and procedures. Quality and relevant experience of the individual participants. Quality of the consortium as a whole (including complementarity, balance). Appropriate allocation and justification of the resources to be committed (staff, equipment … ). Organisational structure and decision-making process for overall CP-CSA and PCP part How this matches the complexity and scale of the project Relates to the direct beneficiaries of the EC grant, not to the tenderers that will participate in the joint PCP (still unknown at time of grant signature before launch of joint PCP) How participants collectively constitute a consortium capable of achieving project objectives: (1)Complementarity between participants (2)Balance in composition of the consortium in relation to the objectives of the project (3)Appropriate level of representation (local / regional / national) (4)Critical mass of public purchasers necessary to trigger wide implementation of the public service innovation strategies and solutions specified and/or developed during the PCP (5)Justification for subcontracting (in CSA / CP part), additional partners, other countries Mobilisation of resources (staff and equipment) incl. those complementing EC contribution How totality of resources will be integrated in a coherent way How the overall financial plan for the project is adequate Critical mass of public purchasers with clear financial commitments to undertake a joint PCP

27 Implementation Read carefully the Guide for Applicants for CP-CSAs for PCP Dont forget in particular the following points (non exhaustive) IMPACT Contribution at the European level, to the expected impacts listed in the work programme under relevant topic/activity. Appropriateness of measures for the exploitation of project results, dissemination of knowledge, through the engagement with stakeholders and the public at large, and the management of intellectual property and for spreading excellence. Contribution to impacts listed in work programme: (1) More forward-looking, cross-border public sector approach to societal challenges (2) Increasing opportunities for wide market uptake & economies of scale for supply side active in Europe (more info on slide 64) (3) Reducing fragmentation of public sector demand for new ICT solutions The co-operation developed during the actions should also provide reliable indications that it could continue beyond the EU funding Explain why this requires a European (rather than a national or local) approach (1) Wide publication of results of cross border PCP activities (2) Removal of barriers to market introduction for the developed PCP solutions through joint regulatory action or contribution to standardisation based on jointly defined public sector PCP solution requirements specifications (3) Division of IPR rights between public purchasers and companies participating in the PCP according to Appendix 6 of the work programme. (4) Appropriate consultation of stakeholders. Industrial/commercial involvement to ensure wide exploitation of the results, incl. opportunity of involving SMEs (more info on slide 65 & 66)

28 Background info PCP website: Info on calls, EU funded projects, background docs, FAQs, PCP initiatives in Member States and Associated Countries etc http://cordis.europa.eu/fp7/ict/pcp/home_en.html Detailed info about PCP calls: Calls page on PCP website links to all official call docs: http://cordis.europa.eu/fp7/ict/pcp/calls_en.html Call 10 website Call 11 website Info about PCP/PPI initiatives in MS and AC http://cordis.europa.eu/fp7/ict/pcp/msinitiatives_en.html

29 Extra Slides

30 PCP Win-win for all stakeholders - New lead markets - Increase export - Quality of public services - Focus on political priorities - Improve innovation climate - Attract foreign investment - Increase employment - Reduce cost of procurement Procurers Pre-commercial Procurement -Shared risks & benefits -First buyer in early R&D - Global competitiveness Politicians Suppliers Get the Best Product… … at the Lowest Price - Address public market innovation failure - Shape product development to public needs - Increase technology knowledge - Reduce risk in commercial tendering - Favour supplier competition - Pooling of resources - Economies of scale - No licensing costs - First time right product - EU interoperable - Attractive to venture capitalists - Reduce unforeseen expenditure - Better products - Economies of scale - Wider market size - Shorter Time to market - Reduce risk of innovation

31 31 Demand driven PCP FP7 CP-CSA grants to procurers for joint PCPs Industrial research and (FP7) Experimental Development Supply driven FP7 grants to univs & suppliers Phase 1 Solution Design Phase 2 Prototype development Phase 3 Original development up to limited volume of first test series Phase 4 Production / early adoption of commercial volumes Phase 0 Curiosity Driven Research Phase 5 Sales of off-the-shelf products Fundamental Research Commercialisation (CIP) Commercial Development Input to standardisation & regulation Demand Driven Fostering wider diffusion VC & other financers CIP grants to procurers for cross- border PPIs EU PCP/PPI support today… … and tomorrow


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