Subject:
Environmentally Sustainable Procurement Policy and Tender
Evaluation Weightings
Date of meeting: 6 October
2022
Report
of:
Executive
Director of Governance, People & Resources
Contact Officer: Name:
Florence Herault
Tel: 07871 734 804
Email: florence.herault@brighton-hove.gov.uk
Ward(s) affected: All
For general release
1.1
The first part of the report
sets out the proposed policy to improve environmental
considerations in the Council’s procurement activities to
help meet the Council’s Carbon Neutral 2030 program
objectives.
1.2
Environmental considerations
covered by the policy include, but are not limited to, the
reduction of greenhouse gas emissions, minimising waste, protecting
biodiversity and tackling the impacts of climate change. The aim is
for this policy to be adopted by the three Orbis Procurement
Partners (Brighton and Hove City Council, East Sussex City Council
and Surrey County council) which could significantly increase its
environmental impact including the effectiveness of environmental
measures, simplified processes for prospective suppliers, and
improved consistency across the region.
1.3
The report presents an options
appraisal for applying 10% of the quality criteria in relevant
tenders to Environmental Sustainability.
2
Recommendations
2.1
That the Policy & Resources
Committee approves the Environmentally Sustainable Procurement
Policy set out at Annex 1 on behalf of BHCC.
2.2
That Policy & Resources
Committee delegates authority for approving any future changes to
the policy to comply with legislative changes, or to ensure
alignment with other approved changes to procurement policies and
practice to the Chief Finance Officer in consultation with the
Procurement Advisory Board.
2.3
That Policy & Resources
Committee approves setting a default minimum sub criterion
weighting of 10% of the quality criteria for environmental
sustainability and approves the recommendations at 3.14 and 3.15
below.
3
Context and background
information
Environmentally Sustainable Procurement Policy
3.1
Climate change is the single
most substantial challenge our generation faces. In 2018, Brighton
and Hove City Council was one of the first councils to declare a
climate and biodiversity emergency. The following year, the
Government announced that the UK would be net zero carbon by 2050.
In 2021 the committee approved the Carbon Neutral 2030 programme in
which one of the actions for procurement was to review and refresh
policies as part of the city’s move towards a circular
economy.
3.2
In 2012 the committee approved
the sustainable procurement policy statement, which was developed
to set out how the Council would embed social, economic and
environmental considerations into its procurement activities. The
statement is currently split into 2 sections, one regarding
environmental aspects and the other regarding Social Value. The
Environmentally Sustainable Procurement policy will aim to replace
the current environmental section and a stand-alone Social Value
policy is currently being developed so that, together, the two new
policies will replace the current sustainable procurement policy
statement.
3.3
Orbis Procurement is a public
sector shared procurement service between Surrey County Council,
East Sussex County Council (ESCC) and Brighton & Hove City
Council (BHCC). Orbis Procurement aims to drive efficiencies,
pool resources, expertise and knowledge, create greater operational
resilience and deliver greater value for money through increased
standardisation and removal of duplication.
3.4
Contracts which are over certain financial thresholds must be
procured in accordance with the Public Contracts Regulations 2015
or the Concession Contracts 2016. These regulations permit
environmental criteria to be applied in a regulated procurement
provided that at the award stage of a contract, they are linked to
the subject matter of the contract. Award criteria are likely to be
sufficiently relevant to the subject-matter of the contract if they
relate to the works, goods or services to be provided under the
contract. This could include how the works, goods or services are
produced or provided, or how they are maintained or disposed of.
For example, it would be possible to require a supplier of building
materials to supply sustainably produced bricks but not to prohibit
their international offices from using air conditioning. The
criteria must also be proportionate.
3.5
The Procurement Bill which is currently at the committee stage
proposes retaining the requirement that award criteria relates to
the subject matter of the contract. This drafting will need to be
closely monitored as the Bill progressed through the parliamentary
processes and the proposed delegation to the Chief Finance Officer
will enable officers to ensure that the policy is compliant with
the law when it changes next year.
3.6
To increase the
effectiveness and consistency of the policy in tackling
environmental issues, as well as to widen and increase its impact
and to simplify processes for the Council’s prospective
suppliers, the combined Orbis Procurement authorities have
co-developed the policy.
3.7
Environmental considerations to be made to procurement activity are
outlined in the policy and include, but are not limited to,
greenhouse gas emissions, biodiversity net gain, natural capital
recovery, circular economy, climate change adaptation, energy
efficiency, pollution prevention and waste reduction.
3.8
Relevance and appropriateness to apply certain environmental
considerations will depend on aspects such as what is being
procured, value, longevity of the contract, and market
readiness.
3.9
The policy is supplier-facing and, as a result, prepares
prospective suppliers by setting out the Council’s
expectations regarding environmental considerations in the delivery
of their goods, works and services.
3.10
As the Council’s supply chain matures and becomes more able
to meet environmental performance goals, increasingly ambitious and
challenging targets can be set for suppliers, especially regarding
carbon emissions, to enable the Council to reach net zero emissions
targets.
3.11
The policy will be a live document that will be monitored and
reviewed as and when required, but as a minimum annually.
3.12
An implementation plan to launch the policy includes presentation
of the policy at Directorate Management Teams (DMTs), liaising with
the Economic Development and Communications teams to list resources
for Micro, Small and Medium Enterprises to access external support
to adapt their business to climate change, and a planned event with
the Chamber of Commerce.
3.13
To aid effective implementation
and embedding of the policy, substantial guidance materials will be
provided to officers. This material will give detailed directions
about where, when and to what extent environmental measures should
be applied and will develop over time as category specific
interventions are tested with Directorates and other mechanisms are
piloted.
Options appraisal for allocating a
minimum percentage of the quality criteria to Environmental
Sustainability (ES) in relevant tenders
3.14
To aid effective implementation
and embedding of the policy, a proposed minimum 10% of the quality
criteria to be allocated to Environmental Sustainability (ES) is
recommended. Please see below options appraisal for various
scenarios. Brighton and Hove are spearheading this approach on
behalf of Orbis Procurement. This approach is not currently being
adopted by the other Orbis authorities.
Option
|
Advantages
|
Disadvantages
|
Recommendation
|
Don’t include ES criterion
(0%)
|
·
The full 100%
remains available for other quality criteria
· Suppliers do not
need to demonstrate transition to Net zero to be
considered.
|
· Impedes our
ability to implement or achieve ES policy
objectives.
· Unable to
evaluate our suppliers’ ability to meet ES
requirements
· Unlikely to
include suppliers’ ES commitments in contracts
· Unable to
monitor our suppliers’ commitment to reducing their carbon
footprint
· No opportunity
for environmentally sustainable suppliers to capitalise on their
competitive advantage
|
Not recommended
|
Include at Less than
10%
|
·
91 to 99% of
quality score remains available for other quality sub
criteria
·
A lower % could
still be allocated to avoid including no criteria at all and enable
suppliers to demonstrate their ES credentials
|
·
Less impactful
than allocating 10% or more
·
Weakens the
message that ES is a priority for the Council
·
May not offer
opportunity for sustainable suppliers to capitalise on their
competitive advantage
|
That PAB approval is required if
officers are proposing a weighting of less than 10% for contracts
over £1m.
|
Include 10% by default
|
·
Shows suppliers
that ES is a clear council priority
·
Sufficient for
the evaluation criteria to be meaningful
·
Will increase
suppliers’ awareness of the importance for the service they
deliver to be environmentally sustainable
·
Ability to
include suppliers’ ES commitment in contracts
·
Opportunity to
monitor Suppliers’ ES credentials
|
·
Only 90% of the
quality criteria remains for other criteria
·
Suppliers who do
not demonstrate transition to Net Zero will be at a
disadvantage
|
Recommended as the default for all
contracts bar the exceptions outlined at paragraph 3.15
below.
|
Include at greater than
10%
|
·
Shows suppliers
that ES is a clear council priority
·
Opportunity for
sustainable suppliers to capitalise on their ES investments and use
their competitive advantage in this respect
·
Ability in
include suppliers’ ES commitment in contracts
·
Opportunity to
monitor Suppliers’ ES credentials
·
Opportunity to
drive ES innovation
|
·
Will reduce
availability of % for other criteria which may be more relevant for
the contract
·
Suppliers who do
not demonstrate transition to Net Zero will be at a
disadvantage
·
Likely financial
implication for the council but not when whole life costs,
including environmental impact, are taken into account
fully
|
A
weighting of more than 10% should be used in appropriate
circumstances where ES opportunity is high, following consideration
of financial and legal implications.
|
3.16 It should be noted the recommended
minimum of 10%, is, as stated, the minimum default weighting for
relevant tenders. Where proportionate, relevant, affordable and
within legal parameters, officers will aspire to increase this
percentage. Due regard must be given to other elements of the
qualitative weighting to ensure the best possible service is
procured.
4
Analysis and consideration of
alternative options
4.1
The alternative option to
retain the current Sustainable Procurement Policy would be a missed
opportunity to send a clear message to the council’s supplier
base that Environmental Sustainability is a priority for the
Council. It would also be a missed opportunity to work
collaboratively with partner authorities who share our carbon
neutral objectives and to therefore have greater impact regionally.
This co-produced policy is a great example of where the Orbis
partner authorities have pooled resources and research to achieve a
better outcome for the region. Climate change is a global issue and
working in isolation would limit both our efficiency and
effectiveness in tackling environmental issues impacting Brighton
and Hove and the wider region.
5
Community engagement and
consultation
5.1
The Environmentally Sustainable Procurement Policy has been created
and consulted with input from service leads and officers from
relevant teams across the partnership Including service leads and
officers from relevant teams within BHCC, ESCC and SCC
5.2
The policy was presented at the BHCC Procurement Advisory Board
(PAB) in June 2022 where it was cleared to proceed for approval at
Policy & Resources Committee.
5.3
Comments and feedback received during the consultation phases with
senior officers and Members have been addressed and taken into
account in the planned implementation to ensure the successful
launch of the policy.
6
Conclusion
6.1
The Environmentally Sustainable Procurement Policy and its
associated outcomes is a vital step to ensure our suppliers
understand the Council’s expectations and are enabled to
support the Council’s Carbon Neutral journey and ambitions,
and will ensure that environmental considerations are embedded
throughout the work of the council.
6.2
Together with allocating 10% of the quality criteria to
Environmental Sustainability, it is an important tool to encourage
suppliers and contractors to align themselves with the
Council’s commitments and reduce their negative impacts on
the environment. This approach will drive the right behaviours and
reward suppliers who are actively working towards becoming Carbon
Neutral.
7
Financial
implications
7.1
The financial implications of
the proposed policy changes are difficult to determine with
accuracy. In many cases, there will be minimal impact as many
suppliers are using innovation and investment to offer increasingly
sustainable products and services at similar cost. In other cases,
for example, where markets are less developed or competitive, a
higher environmentally sustainable requirement will normally result
in increased costs of goods or services.
7.2
However, environmental impacts
clearly have a wider cost than just the direct contract price and
therefore while contracts offering a high degree of sustainability
may have a higher direct cost, when looking at ‘Environmental
Full Cost Accounting’, which takes into account the long term
effects on health and well-being and supply chains (including
food), the cost may well be lower. This is currently an area of
academic research which is attempting to provide standardized
costing approaches but there is no recognized standard to
date.
Finance officer consulted: Nigel
Manvell Date consulted:
23/08/22
8.1
The legal implications are set
out in the body of the report.
Name of lawyer consulted: Alice Rowland. Date
consulted: 07/09/22
9.1
An Equalities Impact Assessment was considered for the policy due
to its potential to influence procurement activities, however, it
was determined that there were no clear implications or impacts of
this policy upon any specific groups of residents, communities or
staff. Individual projects to which this policy applies may require
EIAs to be undertaken early in their development to ensure that any
impacts associated with its application are understood and to
ensure that the Council can meet its equality duty.
10.1
It is the purpose of the policy
to have a positive impact on all sustainability themes in the
Sustainability implications checklist (Annex 3) and to support the
wider goals of the city’s Carbon Neutral 2030 commitment. The
policy will provide an opportunity to drive suppliers toward the
provision of more sustainable goods and services and encourage them
to invest in innovation and change to improve future products for
the benefit of the environment. The policy enables monitoring of
progress and can be periodically reviewed as advances are made and
potentially more ambitious targets can be considered in
future.
11.1
Although most additions of
environmental considerations to procurement activities will be done
through core requirements, it is anticipated that the policy will
also help the inclusion of Environmental Social Value outcomes, for
example by seeking biodiversity improvements and climate adaptation
solutions from suppliers where relevant and
appropriate.
12
Crime & disorder
implications:
12.1
None identified
13
Public health
implications:
13.1
The design and implementation
of the policy and weighting allocation is aimed at helping the
council to deliver its carbon Neutral 2030 programme. In doing so
it should reduce air pollution in the region, reduce the use of
environmental damaging and unsustainable materials and increase
biodiversity, thereby bringing about public health co-benefits such
as reduced premature mortality and prevalence of chronic
diseases.
Supporting Documentation
Appendices
1.
Environmentally Sustainable Procurement
Policy
2.
Example tender criteria
3.
Sustainability checklist for report
writers