Regulatory Opportunities and Challenges of Circular Public Procurement in the European Union

Katrien Steenmans; Federica Muscaritoli

doi:10.55845/joce-2026-41217

Authors

Katrien Steenmans University of Copenhagen Author https://orcid.org/0000-0002-8701-8494
Federica Muscaritoli University of Copenhagen Author https://orcid.org/0000-0002-9148-7357

DOI:

https://doi.org/10.55845/joce-2026-41217

Keywords:

Circular Public Procurement, Public Procurement, EU Law, EU Environmental Law, Circular Economy Law

Abstract

Public procurement, the processes by which public authorities purchase works, goods, or services, can support transitions to circular economies. To date, discussions on circular public procurement (CPP) have been predominantly limited to operational dimensions, focused in particular on the need to develop ‘circular criteria’ when specifying selection, performance and award criteria for tenders. This perspective instead recommends shifting the focus to the regulatory framing of CPP. This is particularly poignant, as public procurement is increasingly included as a possible measure within European Union (EU) environmental laws, including those focused on resources and waste, to support environmental as well as circular economy aims. The presence of public procurement in EU environmental law is expected to increase, as further laws need to be adopted specifying public procurement requirements pursuant to recently adopted EU laws on ecodesign and particular types of waste. These laws may be relevant to CPP discussions and also provide an opportunity to shape the CPP agenda. Based on a mixed-methods review, this perspective proposes three areas of focus for the regulatory framing of and further research on CPP: explicit integration of social issues, needs assessments, and embedding circular criteria throughout the procurement process and beyond.

References

10YFPP. (2015). The Sustainable Public Procurement Programme of the 10-Year Framework of Programmes (10YFP SPP Programme). Retrieved February 4, 2026 from https://www.oneplanetnetwork.org/sites/default/files/10yfp_spp_programme_principles_of_sustainable_public_procurement.pdf

Alhola, K., Ryding, S.O., Salmenperä, H., & Busch, N.J. (2018). Exploiting the potential of public procurement: Opportunities for circular economy. Journal of Industrial Ecology, 23(1), 96-109. https://doi.org/10.1111/jiec.12770 DOI: https://doi.org/10.1111/jiec.12770

Alhola, K., Salmenperä, H., Ryding, S.O., & Busch, N.J. (2017). Circular public procurement in the Nordic countries. Nordic Council of Ministers. Retrieved January 22, 2026 from www.norden.org/en/publication/circular-public-procurement-nordic-countries DOI: https://doi.org/10.6027/TN2017-512

Andhov, M., Caranta, R., Janssen, W. A., & Martin-Ortega, O. (2022). Shaping sustainable public procurement laws in the European Union. An analysis of the legislative development from “how to buy” to “what to buy” in current and future EU legislative initiatives. The Greens/EFA in the European Parliament. Retrieved February 18, 2026 from www.greens-efa.eu/en/article/study/shaping-sustainable-public-procurement-laws-in-the-european-union

Andhov, M., & Muscaritoli, R. (2023). Climate change and public procurement: Are we shifting the legal discourse. In W. Janssen & R. Caranta (Eds.), Mandatory sustainability requirements in EU public procurement law (pp. 21-38). Hart Publishing. DOI: https://doi.org/10.5040/9781509963980.ch-002

Dobinson, I. & Johns, F. (2007). Qualitative legal research. In M. McConville & W.H. Chui (Eds.), Research methods for law (pp. 16-45) Edinburgh University Press.

European Court of Auditors. (2023). Public procurement in the EU. Less competition for contracts awarded for works, goods and services in the 10 years up to 2021. Special report 28/2023. Retrieved February 18. 2026 from www.eca.europa.eu/ECAPublications/SR-2023-28/SR-2023-28_EN.pdf

European Parliament and Council. (2008). Directive 2008/98/EC of 19 November 2008 on waste and repealing certain Directive [2008] OJ L312/2 (as amended by Regulation 1357/2014, Directive 2015/1127, Regulation 2017/997, and Directive 2018/851). Retrieved January 22, 2026 from https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX%3A02008L0098-20180705

European Parliament and Council. (2023). Regulation (EU) 2023/1542 of 12 July 2023 concerning batteries and waste batteries, amending Directive 2008/98/EC and Regulation (EU) 2019/1020 and repealing Directive 2006/66/EC [2023] OJ L191/1 (as amended by Regulation 2024/1781 and Regulation 2025/1561). Retrieved January 22, 2026 from https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX%3A02023R1542-20250731

European Parliament and Council. (2024). Regulation (EU) 2024/1781 of 13 June 2024 establishing a framework for the setting of ecodesign requirements for sustainable products, amending Directive (EU) 2020/1828 and Regulation (EU) 2023/1542 and repealing Directive 2009/125/EC [2024] OJ L2024/1. Retrieved January 22, 2026 from https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX%3A32024R1781&qid=1719580391746

EIT Climate-KIC. (2019). The challenges and potential of circular procurements in public construction projects. Retrieved January 22, 2026 from www.climate-kic.org/wp-content/uploads/2019/06/Procurements-in-Public-Construction.pdf

European Commission. (2008). Public procurement for a better environment. COM(2008) 400 final.

European Commission. (2017a). Making public procurement work in and for Europe. COM(2017) 572 final.

European Commission. (2017b). Public procurement for a circular economy. Retrieved January 22, 2026 from https://circulareconomy.europa.eu/platform/en/knowledge/public-procurement-circular-economy

European Commission. (2025a). Public procurement. Retrieved January 22, 2026 from https://single-market-economy.ec.europa.eu/single-market/public-procurement_en

European Commission. (2025b). Commission launches consultation and call for evidence for upcoming Circular Economy Act. Retrieved January 22, 2026 from https://environment.ec.europa.eu/news/commission-launches-consultation-upcoming-circular-economy-act-2025-08-01_en

European Commission. (2025c). Strategic procurement. Retrieved January 22, 2026 from https://single-market-economy.ec.europa.eu/single-market/public-procurement/strategic-procurement_en

European Environment Agency. (2025). Circular public procurement (CPP). Retrieved January 22, 2026 from www.eea.europa.eu/en/circularity/thematic-metrics/enabling/green-public-procurement?activeTab=00c9e63e-faae-4c00-be61-b7bb8e95ccdd

European Investment Bank. (2025). Circular public procurement in cities. https://advisory.eib.org/files/_tools/resources/documents/circular-public-procurement-in-cities.pdf

Friant, M.C., Vermeulen, W.J.V., & Salomone, R. (2020). A typology of circular economy discourses: Navigating the diverse visions of a contested paradigm. Resources, Conservation and Recycling, 161, 104917. https://doi.org/10.1016/j.resconrec.2020.104917 DOI: https://doi.org/10.1016/j.resconrec.2020.104917

Friant, M.C., Vermeulen, W.J.V., & Salomone, R. (2024). Transition to a sustainable circular society: More than just resource efficiency. Circular Economy and Sustainability, 4, 23-42. https://doi.org/10.1007/s43615-023-00272-3 DOI: https://doi.org/10.1007/s43615-023-00272-3

Grandia, J., & Meehan, J. (2017). Public procurement as a policy tool: Using procurement to reach desired outcomes in society. International Journal of Public Sector Management, 30(4), 302-309. https://doi.org/10.1108/IJPSM-03-2017-0066 DOI: https://doi.org/10.1108/IJPSM-03-2017-0066

Grant, M.J., & Booth, A. (2009). A typology of reviews: An analysis of 14 review types and associated methodologies. Health Information and Libraries Journal, 26, 91-108. https://doi.org/10.1111/j.1471-1842.2009.00848.x DOI: https://doi.org/10.1111/j.1471-1842.2009.00848.x

Hutchinson, T. (2013). Doctrinal research: Researching the jury. In D. Watkins & M. Burton (Eds.), Research methods in law (pp.7-34). Routledge.

Iurascu, A. (2023). French regulatory interventions on the circular economy and mandatory GPP criteria. Retrieved January 22, 2026 from https://sapiensnetwork.eu/french-circular-economy-mandatory-gpp-criteria/

Jaeger-Erben, M., Jensen, C., Hofmann, F., & Zwiers, J. (2021). There is no sustainable circular economy without a circular society. Resources, Conservation and Recycling, 168, 105467. https://doi.org/10.1016/j.resconrec.2021.105476 DOI: https://doi.org/10.1016/j.resconrec.2021.105476

Janssen, W., & Caranta, R. (Eds.). (2023). Mandatory sustainability requirements in EU public procurement law: Reflections on a paradigm shift. Bloomsbury Publishing. DOI: https://doi.org/10.5040/9781509963980

Kirchherr, J., Reike, D., & Hekkert, M. (2017). Conceptualizing the circular economy: An analysis of 114 definitions. Resources, Conservation and Recycling, 127, 221-232. https://doi.org/10.1016/j.resconrec.2017.09.005 DOI: https://doi.org/10.1016/j.resconrec.2017.09.005

Kristensen, H.S., Mosgaard, M.A., & Remmen, A. (2021). Circular public procurement practices in Danish municipalities. Journal of Cleaner Production, 281, e124962. https://doi.org/10.1016/j.jclepro.2020.124962 DOI: https://doi.org/10.1016/j.jclepro.2020.124962

Lesniewska, F., & Steenmans, K. (2023). Circular economy and the law: Bringing justice into the frame. Routledge. DOI: https://doi.org/10.4324/9780429355141

Maitre-Ekern, E., Taylor, M.B., & van der Velden, M. (2020). Towards a sustainable circular economy: SMART reform proposals. University of Oslo Faculty of Law Legal Studies Research Paper Series No. 2020-12.

Muscaritoli, F. (2025). The interplay between EU environmental law and the EU public sector directive: towards climate neutrality in the EU? [Unpublished doctoral dissertation]. University of Copenhagen.

Paraskeva, S., & Tsoulfas, G.T. (2025). Mitigating risks in public procurement. Journal of Public Procurement, 25(1), 140-176. https://doi.org/10.1108/JOPP-07-2024-0074 DOI: https://doi.org/10.1108/JOPP-07-2024-0074

Qazi, A.A., & Appolloni, A. (2022). A systematic review on barriers and enablers toward circular procurement management. Sustainable Production and Consumption, 33, 343-359. https://doi.org/10.1016/j.spc.2022.07.013 DOI: https://doi.org/10.1016/j.spc.2022.07.013

Semple, A. (2015). A practical guide to public procurement. Oxford University Press.

Sönnichsen, S.D., & Clement, J. (2020). Review of green and sustainable public procurement: towards circular public procurement. Journal of Cleaner Production, 245, e118901. https://doi.org/10.1016/j.jclepro.2019.118901 DOI: https://doi.org/10.1016/j.jclepro.2019.118901

Stahel, W.R. (2019). The circular economy: A user’s guide. Routledge. DOI: https://doi.org/10.4324/9780429259203

Steenmans, K., & Lesniewska, F. (2023). Limitations of the circular economy concept in law and policy. Frontiers in Sustainability, 4, e1154059. https://doi.org/10.3389/frsus.2023.1154059 DOI: https://doi.org/10.3389/frsus.2023.1154059

Steenmans, K., & Muscaritoli, F. (2025a, September 18-19). A review and investigation of circular procurement practices: Promoting or challenging the status quo? [Conference presentation]. SMART Network Symposium: Sustainability is (Still) Possible! Governing Market Actors for a Safe and Just Space, Turin, Italy. Retrieved February 16, 2026 from www.jus.uio.no/english/research/areas/sustainabilitylaw/networks/the-smart-network/events/smart-network-symposium-2025.html

Steenmans, K., & Muscaritoli, F. (2025, October 15). The emergence of circular public procurement: Opportunities for justice. Blogging for Sustainability. Retrieved February 16, 2026 from www.jus.uio.no/english/research/areas/sustainabilitylaw/blog/2025/emergence-circular-public-procurement.html

UNEP. (2025). Sustainable public procurement. Retrieved January 22, 2026 from www.unep.org/explore-topics/resource-efficiency/what-we-do/sustainable-public-procurement

Van Ewijk, S., & Stegemann, J.A. (2016). Limitations of the waste hierarchy for achieving absolute reductions in material throughput. Journal of Cleaner Production, 132, 122-128. https://doi.org/10.1016/j.jclepro.2014.11.051 DOI: https://doi.org/10.1016/j.jclepro.2014.11.051

van Oppen, C., Croon, G., & de Vroe, D.B. (2018). Circular procurement in 8 Steps. Ecodrukkers / De Toekomst.

Velenturf, A.P.M., & Purnell, P. (2021). Principles for a sustainable circular economy. Sustainable Production and Consumption, 27, 1437-1457. https://doi.org/10.1016/j.spc.2021.02.018 DOI: https://doi.org/10.1016/j.spc.2021.02.018