FprCEN/TR 17011-2-1

Electronic Public Procurement - Innovation guideline - Part 2-1: Framework and models of innovative developments in procurement

Topics to be covered include:
• Digital product passport consequences to procurement;
• Item specific ordering;
• Circular procurement;
• Pre-commercial procurement (PCP);
• Sourcing;
• Dynamic purchasing systems;
• Desktop purchasing;
• Auctions and reverse auctions;
• Public-private partnerships;
• Public procurement of innovative solutions (PPI);
• Integrating Blockchains, Data management and business processes;
• Artificial Intelligence for contracting, Supply chain tracing and -diligence;
• Procurement of eco-designed products;
• Procurement as service;
• Internet of things.
The developments are positioned with indication of:
• The procurement phase;
• The relevant parties and roles;
• The time frame in which they can become standardised and operational;
• Resources, costs and benefits.

Elektronische öffentliche Beschaffung - Innovationsleitfaden - Teil 2-1: Rahmen und Modelle für innovative Entwicklungen in der Beschaffung

Marchés publics électroniques - Lignes directrices en matière d'innovation - Partie 2-1: Cadre et modèles de développements innovants en matière de marchés publics

Elektronska javna naročila - Smernice za inovacije - 2-1. del: Okvir in modeli inovativnih pristopov v naročanju

Teme, ki bodo obravnavane, vključujejo:
- Posledice digitalnega potnega lista izdelka za nabavo;
- Naročanje specifičnih artiklov;
- Krožna nabava;
- Predkomercialna nabava (PCP);
- Pridobivanje virov;
- Dinamični nabavni sistemi;
- Namizna nabava;
- Dražbe in obratne dražbe;
- Javna-zasebna partnerstva;
- Javna naročila inovativnih rešitev (PPI);
- Integracija blockchainov, upravljanje podatkov in poslovni procesi;
- Umetna inteligenca za sklepanje pogodb, sledenje dobavni verigi in skrbnost (diligence);
- Nabava ekološko oblikovanih izdelkov;
- Nabava kot storitev;
- Internet stvari.
Razvoj je postavljen z navedbo:
- Faze nabave;
- Ustreznih strank in vlog;
- Časovnega okvira, v katerem lahko postanejo standardizirani in operativni;
- Virov, stroškov in koristi.

General Information

• Status: Not Published
• Publication Date: 12-Aug-2026
• ICS: 03.100.10 - Purchasing. Procurement. Logistics
• ICS: 35.240.63 - IT applications in trade
• Technical Committee: CEN/TC 440 - Project Committee - Electronic Public Procurement
• Drafting Committee: CEN/TC 440/WG 1 - Architecture
• Current Stage: 5020 - Submission to Vote - Formal Approval
• Start Date: 23-Apr-2026
• Due Date: 22-Jul-2026
• Completion Date: 23-Apr-2026
• Ref Project: kSIST-TP FprCEN/TR 17011-2-1:2026 - Electronic Public Procurement - Innovation guideline - Part 2-1: Framework and models of innovative developments in procurement

Relations

• Referred By: EN ISO 19069-2:2024 - Plastics - Polypropylene (PP) moulding and extrusion materials - Part 2: Preparation of test specimens and determination of properties (ISO 19069-2:2024)
• Effective Date: 28-Jan-2026
• Referred By: EN ISO 17855-2:2024 - Plastics - Polyethylene (PE) moulding and extrusion materials - Part 2: Preparation of test specimens and determination of properties (ISO 17855-2:2024)
• Effective Date: 28-Jan-2026
• Referred By: EN ISO 10350-1:2025 - Plastics - Acquisition and presentation of comparable single-point data - Part 1: Moulding materials (ISO 10350-1:2025)
• Effective Date: 28-Jan-2026

Standards Content (Sample)

SLOVENSKI STANDARD
01-julij-2026
Elektronska javna naročila - Smernice za inovacije - 2-1. del: Okvir in modeli
inovativnih pristopov v naročanju
Electronic Public Procurement - Innovation guideline - Part 2-1: Framework and models
of innovative developments in procurement
Elektronische öffentliche Beschaffung - Innovationsleitfaden - Teil 2-1: Rahmen und
Modelle für innovative Entwicklungen in der Beschaffung
Marchés publics électroniques - Lignes directrices en matière d'innovation - Partie 2-1:
Cadre et modèles de développements innovants en matière de marchés publics
Ta slovenski standard je istoveten z: FprCEN/TR 17011-2-1
ICS:
03.100.10 Nabava. Dobava. Logistika Purchasing. Procurement.
Logistics
35.240.63 Uporabniške rešitve IT v IT applications in trade
trgovini
2003-01.Slovenski inštitut za standardizacijo. Razmnoževanje celote ali delov tega standarda ni dovoljeno.

FINAL DRAFT
TECHNICAL REPORT
RAPPORT TECHNIQUE
TECHNISCHER REPORT
April 2026
ICS 03.100.10; 35.240.63
English Version
Electronic Public Procurement - Innovation guideline -
Part 2-1: Framework and models of innovative
developments in procurement
Marchés publics électroniques - Lignes directrices en Elektronische öffentliche Beschaffung -
matière d'innovation - Partie 2-1: Cadre et modèles de Innovationsleitfaden - Teil 2-1: Rahmen und Modelle
développements innovants en matière de marchés für innovative Entwicklungen in der Beschaffung
publics
This draft Technical Report is submitted to CEN members for Vote. It has been drawn up by the Technical Committee CEN/TC
440.
CEN members are the national standards bodies of Austria, Belgium, Bulgaria, Croatia, Cyprus, Czech Republic, Denmark, Estonia,
Finland, France, Germany, Greece, Hungary, Iceland, Ireland, Italy, Latvia, Lithuania, Luxembourg, Malta, Netherlands, Norway,
Poland, Portugal, Republic of North Macedonia, Romania, Serbia, Slovakia, Slovenia, Spain, Sweden, Switzerland, Türkiye and
United Kingdom.
Recipients of this draft are invited to submit, with their comments, notification of any relevant patent rights of which they are
aware and to provide supporting documentation.

Warning : This document is not a Technical Report. It is distributed for review and comments. It is subject to change without
notice and shall not be referred to as a Technical Report.

EUROPEAN COMMITTEE FOR STANDARDIZATION
COMITÉ EUROPÉEN DE NORMALISATION

EUROPÄISCHES KOMITEE FÜR NORMUNG

CEN-CENELEC Management Centre: Rue de la Science 23, B-1040 Brussels
© 2026 CEN All rights of exploitation in any form and by any means reserved Ref. No. FprCEN/TR 17011-2-1:2026 E
worldwide for CEN national Members.

Contents Page
European foreword . 4
1 Scope . 5
2 Normative references . 5
3 Terms and definitions . 5
4 Executive Summary . 7
5 Strategic Framework Overview . 8
5.1 The Procurement Innovation Standardization Process . 8
5.2 Stage 1: INNOV Toolbox Foundation Analysis . 8
5.3 Stage 2: Four-Dimensional Innovation Architecture Development . 8
5.4 Stage 3: System-of-Systems (SoS) Integration . 9
5.5 Stage 4: Cross-Sector Standards Implementation Architecture . 9
6 The Four-Dimensional Innovation Architecture . 9
6.1 Overview on the Four-Dimensional Innovation Architecture . 9
6.2 Framework Integration Model . 10
6.3 Cross-Dimensional Dependencies and Integration . 11
6.4 Key Innovation Highlights . 11
7 Business Model Innovation Framework (Dimension A) . 12
7.1 Circular Business Model Assessment Framework . 12
7.2 Value Creation and Capture Framework . 12
7.3 Product-as-Service Procurement Model . 13
8 Operational Excellence Framework (Dimension B) . 13
8.1 Digital Transformation Architecture . 13
8.2 EU Regulatory Harmonization Framework . 14
8.3 Life Cycle Management Framework . 14
9 Innovation Sourcing Framework (Dimension C) . 15
9.1 Strategic Innovation Planning Model . 15
9.2 Enhanced PCP Framework . 15
9.3 Enhanced PPI Framework . 16
10 Technological Innovation Framework (Dimension D) . 16
10.1 AI Integration Architecture . 16
10.2 Blockchain Integration Framework . 17
10.3 IoT Ecosystem Framework . 17
11 System-of-Systems (SoS) Orchestration Framework . 17
11.1 General . 17
11.2 Four-Layer Orchestration Platform . 17
11.3 SoS Integration Dynamics . 18
12 Implementation Governance Models . 19
12.1 Multi-Stakeholder Governance Framework . 19
12.2 Performance Management Model . 19
12.3 Risk Management Framework . 20
13 Cross-Sector Integration Models . 20
13.1 Public Sector Model . 20
13.2 Private Sector Model . 20
13.3 Cross-Sector Collaboration Model . 21
14 Legal Integration and Compliance Framework . 21
14.1 Integration with FprCEN/TR 17011-2-3 [2] Legal Facilitation . 21
14.2 Cross-Sector Innovation Authorization . 21
14.3 System-of-Systems Legal Coordination . 22
14.4 Compliance Simplification Benefits . 22
14.5 Expected Impact and Outcomes . 22
15 Implementation Roadmap . 23
15.1 Phase 1: Foundation (Months 1-24) . 23
15.2 Phase 2: Scaling (Months 24-42) . 23
15.3 Phase 3: Optimization (Months 42-60) . 24
16 Quality Assurance Framework . 24
16.1 Standards Compliance . 24
16.2 Continuous Improvement . 24
16.3 International Coordination . 24
17 Conclusion . 25
Bibliography . 26
European foreword
This document (FprCEN/TR 17011-2-1:2026) has been prepared by Technical Committee CEN/TC 440
"Electronic Public Procurement", the secretariat of which is held by DIN.
This document is currently submitted to the Vote on TR.
This document is part of the CEN/TR 17011-2 series of multi-part documents prepared by CEN/TC 440,
establishing the Strategic Trilogy for innovation procurement transformation:
— CEN/TR 17011-2-1: Framework and models of innovative developments in procurement
— FprCEN/TR 17011-2-2 [1]: Idéntification of standardization activities to support innovative
developments in procurement
— FprCEN/TR 17011-2-3 [2]: Legislation and regulations to enable and support innovative
developments in procurement
This document is related to the broader CEN/TC 440 work programme including:
— 17014-series: eTendering Business Interoperability Spécifications
— 17015-series: eCatalogue Business Interoperability Spécifications
— 17016-series: eOrdering Business Interoperability Spécifications
— 17017-series: éFulfilmént Business Interoperability Spécifications
1 Scope
This document establishes comprehensive frameworks and models for innovative developments in
procurement across all sectors, providing systematic methodologies and organizational frameworks
enabling transformation of procurement practices through structured governance and innovation
management.
This document applies to:
— Organizations
— public sector procurement authorities at local, regional, national, and European levels;
— private sector organizations engaging in innovation partnerships with public entities;
— research and development institutions participating in cross-sector innovation;
— SMEs and large enterprises involved in public-private innovation ecosystems;
— international organizations seeking to implement European innovation procurement
approaches.
— Innovation Coverage
— cross-sector innovation frameworks applicable to both public and private organizations;
— enhanced Pre-Commercial Procurement (PCP) and Public Procurement of Innovation (PPI)
frameworks;
— system-of-Systems (SoS) orchestration for complex multi-organizational coordination;
— four-dimensional innovation architecture covering business models, operations, sourcing,
and technology.
— Framework Applications
— strategic innovation planning and implementation across organizational boundaries;
— digital transformation and technology integration for all sectors;
— circular economy and sustainable procurement models;
— cross-border collaboration and harmonization mechanisms.
2 Normative references
There are no normative references in this document.
3 Terms and definitions
For the purposes of this document, the following terms and définitions apply.
— ISO Online browsing platform: available athttp://www.iso.org/obp
— IEC Electropedia: available athttp://www.electropedia.org/
3.1
business model innovation framework
systematic approach for transforming traditional procurement business models through circular
economy principles, value optimization strategies, and product-as-service models, enabling
organizations to create and capture value beyond conventional purchasing approaches
3.2
circular business model assessment
methodological framework for evaluating and implementing circular economy principles in
procurement activities, including material flow analysis, life cycle assessment protocols, and
sustainability metrics integration across organizational boundaries
[SOURCE: ISO 59004:2024 [3]]
3.3
digital transformation platform
comprehensive technology infrastructure enabling end-to-end procurement management through
workflow engines, document management systems, analytics capabilities, and integration APIs for
seamless system connectivity and data flow
3.4
innovation opportunity identification
systematic methodology using WIBGI (What-Impact-Barriers-Gap-Implementation) approach for
identifying, analysing, and prioritizing innovation opportunities across all procurement categories and
organizational contexts
3.5
innovation portfolio management
comprehensive system for tracking, managing, and optimizing innovation investments across multiple
procurement streams, including performance measurement, resource allocation, and strategic
alignment mechanisms
3.6
life cycle management framework
end-to-end approach covering all phases from planning and sourcing through performance
management to asset disposition, providing complete visibility and optimization of procurement
activities throughout their entire life cycle
3.7
outcome-based procurement model
procurement approach focusing on results delivery rather than input provision, emphasizing
performance achievement, value creation, and continuous improvement through strategic supplier
relationships and performance-based contracting
3.8
product-as-service procurement
procurement model where products are acquired as services rather than assets, including performance-
based contracts, life cycle management protocols, outcome optimization methodologies, and provider
responsibility for service delivery
3.9
strategic innovation planning
comprehensive planning approach integrating innovation foresight, ecosystem mapping, impact
assessment, and roadmapping to align innovation procurement activities with organizational objectives
and market opportunities
3.10
value creation and capture framework
systematic methodology for identifying, creating, and capturing value in innovation procurement,
optimizing economic, social, and environmental returns through strategic value assessment, creation
processes, and capture mechanisms
4 Executive Summary
This Technical Report forms the first part of the CEN/TC 440 Strategic Trilogy for innovation
procurement transformation, establishing comprehensive frameworks and models for innovative
developments in procurement across all sectors. It provides systematic methodologies and
organizational frameworks for both public and private organizations to transform their procurement
practices through structured governance and innovation management .
Strategic Integration with CEN/TR 17011-2 Series:
— FprCEN/TR 17011-2-1 (this document): Establishes foundational frameworks and models;
— FprCEN/TR 17011-2-2 [1]: Idéntifiés 87 standardization activities across four innovation
dimensions;
— FprCEN/TR 17011-2-3 [2]: Provides legal facilitation mechanisms enabling cross-sector
innovation.
The Key Framework Elements of the CEN/TC 440 Strategic Trilogy are:
Four-Dimensional Innovation Architecture organizing innovation procurement across:
— Dimension A: Business Model Innovation (13 innovations → 22 standards);
— Dimension B: Innovative Operational Procurement (12 innovations → 28 standards);
— Dimension C: Innovation Sourcing (5 innovations → 25 standards including enhanced PCP/PPI);
— Dimension D: Technological Innovation (20 innovations → 12 standards).
System-of-Systems (SoS) Orchestration providing unique coordination capabilities:
— Management of 342 cross-dimensional dependencies;
— Integration of 50 INNOV innovations into coherent ecosystem;
— Value multiplication effect achieving 278% increase over fragmented approaches;
— €45B additional annual value through coordination capabilities.
Cross-Sector Applicability:
— Universal Standards: 84.9% applicable across all organizational types;
— Public Sector: Enhanced PCP/PPI frameworks with cross-sector collaboration;
— Private Sector: Corporate innovation sourcing and business model innovation;
— Cross-Sector: Public-private partnerships and innovation ecosystems.
Cf. CEN/TS 16555-1:2013 [4], CEN/TS 16555-2:2014 [5], CEN/TS 16555-3:2014 [6], CEN/TS 16555-4:2014
[7], CEN/TS 16555-5:2014 [8], CEN/TS 16555-6:2014 [9], CEN/TS 16555-7:2015 [10] as well as EN ISO
56000:2025 [11] and EN ISO 56002:2021 [12].
Expected Economic Impact:
— €418B annual innovation procurement market activation;
— 18:1 development ROI through systematic standards development;
— 7,511:1 market enablement ROI through comprehensive transformation;
— 89% implementation success rate vs. 34% traditional approaches.
5 Strategic Framework Overview
5.1 The Procurement Innovation Standardization Process
The framework follows a systematic standardization process based on the INNOV Toolbox Foundation
Analysis, converting 50 validated INNOV innovations into 87 comprehensive standards across four
innovation dimensions through structured standardization activities.
The framework consists of four stages:
— INNOV Toolbox Foundation Analysis: Analysing the idéntifiéd 50 innovations regarding potential
standardization output.
— Four-Dimensional Innovation Architecture Development.
— System-of-Systems (SoS) Integration.
— Cross-Sector Standards Implementation Architecture.
5.2 Stage 1: INNOV Toolbox Foundation Analysis
Starting Point: 50 INNOV Innovations → Strategic Organization → Four-Dimensional Architecture.
Table 1 shows potential innovations sources and related and expected standardisation output with
respect to the underlying valdation basis.
Table 1 — Fundamental innovation analysis
Innovation Source Validation Basis Standardization Output
Proven approaches to innovation 385 refined use cases across
50 INNOV Innovations
procurement standardization procurement phases
342 cross-dimensional
Strategic organization across A, B, C,
Cross-Dimensional Analysis dependencies requiring
D dimensions
coordination
87 standards architecture for
Use Case Integration Concrete implementation scenarios
comprehensive deployment
5.3 Stage 2: Four-Dimensional Innovation Architecture Development
From Innovation Categories → Standards Generation → Gap Analysis.
Table 2 shows the expected standards output related to the innovation input and how the output
resolved the idéntifiéd gaps categorized dimensions.
Table 2 — Innovation architecture for gap resolution
Dimension Innovation Input Standards Output Gap Resolution
A: Business Model 13 innovations (26%) 22 standards 35 gaps addressed
B: Operational 12 innovations (24%) 28 standards 42 gaps addressed
C: Innovation Sourcing 5 innovations (10%) 25 standards 38 gaps addressed
D: Technological 20 innovations (40%) 12 standards 15 gaps addressed
5.4 Stage 3: System-of-Systems (SoS) Integration
Coordination Platform → Orchestration Capabilities → Standardization Value Multiplication
INNOV49: SoS Governance Framework
— Unique Position: Cross-dimensional orchestration and integration platform
— System Integration: Manages 342 cross-dimensional dependencies across all 4 dimensions
— Complexity Management: Coordinates 50 INNOV innovations into coherent 87-standard
framework
— Standardization Value: €45B annual value through system-of-systems coordination
5.5 Stage 4: Cross-Sector Standards Implementation Architecture
Standards Deployment → Sector Adaptation → Universal Application.
Table 3 shows the use case coverage for each expected standards output as well as the recommended
standardization approach.
Table 3 — Standard implementation approaches
Application Scope Coverage Standardization Approach
Cross-domain applicability for both
Universal Standards 84.9% (327 use cases)
public and private sectors
Govérnmént-spécific with private
Public-Sector Focused 8.8% (34 use cases)
sector adaptation potential
Corporate innovation with cross-
Private-Sector Optimized 3.9% (15 use cases)
sector collaboration
Infrastructuré-spécific
Platform-Dependent 2.3% (9 use cases)
implementation
6 The Four-Dimensional Innovation Architecture
6.1 Overview on the Four-Dimensional Innovation Architecture
Innovation procurement standardization is systematically organized across four complementary
dimensions that form an integrated ecosystem as shown in Table 4.
Cf. [13], [14], [15] and [16].
Table 4
Dimension Overview and Cross-Dimensional Integration
Standards Cross-Dimensional
Dimension Focus Areas Key Innovations
Generated Links
Links to B
Circular economy,
A: Business Model INNOV02, INNOV04, (procedures), C
value optimization, 22 standards
Innovation INNOV10 (sourcing), D
social impact
(technology)
Supports A (business
Regulatory
B: Innovative models), enables C
frameworks, digital INNOV01, INNOV03,
Operational 28 standards (sourcing),
platforms, lifecycle INNOV05
Procurement integrates D
management
(technology)
Strategic Applies A (models),
C: Innovation methodologies, AI uses B (procedures),
INNOV07, INNOV09 25 standards
Sourcing integration, leverages D
enhanced PCP/PPI (technology)
Enables A (models),
AI systems,
D: Technological INNOV09, INNOV18, supports B
blockchain, advanced 12 standards
Innovation INNOV23 (operations), powers
computing, security
C (sourcing)
6.2 Framework Integration Model
— Layer 1: Strategic Foundation (Dimension A)
— Business Model Innovation Frameworks;
— Value Creation and Optimization Models;
— Circular Economy Integration Systems.
— Layer 2: Operational Excellence (Dimension B)
— Digital Standardization Platforms;
— Regulatory Harmonization Frameworks;
— Life cycle Management Systems.
— Layer 3: Innovation Intelligence (Dimension C)
— AI-Enhanced Analytics Platforms;
— Strategic Innovation Methodologies;
— Enhanced PCP/PPI Frameworks.
— Layer 4: Technology Integration (Dimension D)
— Emerging Technology Platforms;
— IoT and Digital Infrastructure;
— Security and Compliance Systems.
6.3 Cross-Dimensional Dependencies and Integration
The framework manages 342 documented cross-dimensional dependencies through the System-
of-Systems orchestration platform:
— Circular Information Flow
— Data Governance Stack → collects and processes information from all dimensions
— Digital Infrastructure Hub → provides technological platform for processing
— Smart Procurement Loop → executes procurement processes with optimized workflows
— Regulatory Synchronization Layer → ensures compliance and feeds back requirements
— Cycle repeats with continuous improvement and learning
— Cross-Layer Dependencies:
— Data ↔ Infrastructure: Bidirectional data flow optimization
— Infrastructure ↔ Procurement: Real-time process execution and monitoring
— Procurement ↔ Regulatory: Compliance vérification and feedback loops
— Regulatory ↔ Data: Compliance requirements integrated into data governance
Based on the 385 réfinéd use cases distributed across the INNOV framework as shown in Table 5.
Table 5 — Innovation Coverage by Procurement Phase
Procurement Phase Use Cases Percentage Key Focus Areas
Strategic planning, market
Needs Identification
251 65,2% analysis, innovation
(PRE-AWARD)
opportunity idéntification
Contract management,
Performance Monitoring
96 24,9% performance optimization,
(POST-AWARD)
continuous improvement
Cross-Phase Life cycle integration,
31 8,1%
Coordination system-wide optimization
Decision support,
Evaluation and Award 7 1,8%
evaluation frameworks
6.4 Key Innovation Highlights
INNOV07: Strategy-Based Innovation Methodologies
— 57 use cases - largest single innovation for strategic sourcing;
— WIBGI methodology (What-Impact-Barriers-Gap-Implementation);
— Foundation for enhanced PCP and PPI frameworks;
— Cross-dimensional applications (A15B20C40D25).
INNOV09: Comprehensive AI Life Cycle Integration
— 76 use case
...