Procurement category: Construction and infrastructure
Environmental and social impact: energy-efficient design and promotion of sustainable construction practices, as well as biodiversity conservation.
Relevant EU guidance: Office building design, construction and management (EU GPP Criteria - 2016 and Technical background report)
Background
The Province of Zeeland is a coastal region in the southwest of the Netherlands, known for its distinctive delta landscape of islands, peninsulas, and polders shaped by the interaction of land and sea. It has a population of around 390,000 and a strong focus on sustainability, water management, and climate resilience. As a provincial authority, Province of Zeeland is responsible for regional spatial planning, mobility, and environmental policy, and it actively integrates sustainability principles into its governance and procurement practices.
Through the implementation of its Sustainable Procurement Plan, the province’s approach to green public procurement reflects its broader commitment to promoting circular economy principles, reducing carbon emissions, and protecting its unique natural environment. The Province of Zeeland also counts with a regularly updated platform (MVI Platform) through which the impact of their procurement activities in the achievement of the Sustainable Development Goals is measured and shared with the general public.
After the demolition of Het Zeeuwse Landschap’s Summer House in 2019, the Province decided to use its privileged location in the Groot Saeftinghe Border Park: a unique and valuable 4,700-hectare nature reserve offering ample opportunities for a wide range of bird and insect species. The objective was to replace it for a field station that would serve as a base for birdwatchers and scientists to develop their research and monitoring tasks. The initiative was co-financed by the European Commission through the Interreg 2 Seas Mers Zeeën - Polder2Cs project.
It is also worth noting that, following the completion of this project, the construction of a bio-based observation and radar tower close to the Fieldstation is being finalised. Developed through a partnership between the Province of Zeeland and Rijkswaterstaat, this initiative reinforces the area’s role as a centre for biodiversity observation and environmental research.
Procurement procedure
The contract, with a total budget of €415,000 for the complete construction phase including installations, was awarded through a multiple negotiated tender (“meervoudig onderhandse aanbesteding”) a nationally regulated Dutch procurement procedure applied for contracts below the EU threshold under the Aanbestedingswet 2012. Governed by the Tendering Regulations for Works (Aanbestedingsreglement Werken 2016, article 2.3.3) and the Proportionality Guide (Gids Proportionaliteit), this procedure allows a contracting authority to invite a limited number of qualified contractors (in this case, four) to submit tenders based on a preliminary design.
The project was evaluated under the most economically advantageous tender (MEAT) approach, grounded in the Best Value Procurement (BVP) methodology1. This model is based on the “performance-based purchasing” approach and recognises that the contractor possesses the best understanding of the value chain and could lead innovation throughout design and construction – therefore, the contracting authority deliberately limits prescriptive requirements, allowing contractors greater freedom to propose their own solutions. This allows the bidders to distinguish themselves through quality, expertise and innovation, as well as a more balanced competition focused on value rather than lowest cost.
Under this procedure, the contracting authority may invite only contractors who are pre-selected based on their proven competence and suitability for the contract. In this case, four qualified contractors were invited to submit proposals and participate in negotiation and interview rounds. Assessment of the bids focused on quality, risk management, opportunities for added value, and sustainability performance.
The preliminary design prepared by the contracting authority provided a starting point for discussions, allowing bidders to propose innovative solutions and optimisations that align with project objectives, including sustainability, functionality, and biodiversity integration. This negotiated process enabled the contracting authority to assess both technical merit and performance capability, ensuring the final contractor selection represented the optimal balance of quality and cost.
- Exclusion criteria
Contractors were required to comply with all relevant Dutch and EU legislation, including the Nature Conservation Act (Wet natuurbescherming), labour, social, and environmental standards. Eligibility was limited to bidders demonstrating the necessary technical and professional competence under the Aanbestedingswet 2012 and submitting complete documentation. Given the project’s sensitive location within a Natura 2000 area, any failure to meet environmental obligations or risk causing ecological disturbance was grounds for exclusion.
Compliance with these requirements was verified through a mandatory annex in which each bidder had to formally declare adherence to the above-mentioned legal obligations, both in their organisational processes and in their past performance. Only bidders who submitted this signed declaration were deemed eligible to participate.
- Environmental considerations as part of the preliminary design
The preliminary design (voorlopig ontwerp) is an early-stage architectural and technical design prepared by the contracting authority to define the functional requirements, spatial layout and sustainability ambitions of the procurement. In Dutch procurement practice, this does not prescribe the detailed technical specifications - instead, it provides a conceptual framework upon which bidders can propose optimisations:
- The preliminary design for the Saeftinghe Field Station establishes a clear vision for a nature-inclusive, sustainable building that is fully integrated into its unique location: Integration of an innovative smart energy and water system, including wastewater treatment, an all-electric plant, solar panels, and energy storage.
- Priority for bio-based2 and reclaimed materials, such as poplar wood for interior walls and recycled wood in finishes.
- Nature-inclusive architecture with façades and roofs designed to host flora and fauna.
- Compliance with the Nature Conservation Act and Natura 2000 permit conditions for construction within a protected area, ensuring minimal ecological disturbance during works
Contractors were encouraged to demonstrate their approach to these requirements within a required Action Plan, that would be then evaluated as part of the award criteria. As part of the negotiated procedure, the contractors were expected to actively contribute to this preliminary design, suggesting solutions that would enhance sustainability.
- Award criteria
Under the Most Economically Advantageous Tender (MEAT) procedure, Quality carried a total weight of 92.5 points, making it the decisive factor in the overall evaluation. The Quality criterion was divided into four subcategories, each with its own maximum score and minimum required grade (Action Plan, Opportunity, Risk and Interview):
Criterion | Points |
Action Plan | 37.5 |
Opportunity file | 25 |
Risk file | 10 |
Interview | 20 |
Total | 100 |
The main evaluated component was the Action Plan, that was assessed for how well the contractor addressed the project goals, identified risks, and offered verifiable performance indicators.
The tender required contractors to submit an Opportunity File, which allowed bidders to propose additional value-creating solutions (such as innovative methods or sustainability enhancements) beyond the preliminary design, explaining their benefits to the project.
In the Risk File, bidders identified external factors beyond the contractor’s control, quantified their potential impact on time, cost, and satisfaction, and described control measures to mitigate these risks.
The Interview assessed the suitability of key personnel, focusing on their ability to implement the project vision and contribute to its goals.
Finally, the Price carried a total of 7.5 points, emphasizing the relevance of the overall quality and added value of the bid rather than the lowest cost.
Awarded suppliers and partnership approach
The project was commissioned by the Province of Zeeland and delivered by Van Hese Infra B.V. as the selected contractor. The contract was awarded on July 7, 2020, and the works were completed in July 2023.
The construction team included the architectural firm RO&AD Architecten, structural and installation engineers, and the future owner and manager, Het Zeeuwse Landschap. The contractor was integrated into the team from the early design stage, contributing to technical, sustainability, and circularity solutions.
Close cooperation between the client, contractor, and regional stakeholders enabled an open, iterative process emphasising ecological sensitivity and co-creation.
The collaboration model was structured around shared responsibility and transparent performance monitoring. Contractors submitted a “multi-year maintenance plan (2 and 5 years)” including sustainability measures and inspection procedures (e.g., NEN 3140 safety inspections and sedum roof maintenance).
Environmental results and impacts
The unique features of the field station generate several environmental results. All the wood used for the fieldstation is 100% recycled. This contributes to a better environment by reducing CO2 emissions and therefore, avoiding the production of new materials.
The south façade greenhouse acts as a climate façade, improving thermal regulation for interior spaces. A sedum roof provides insulation, mitigates heat stress, and supports natural evaporation to manage retained water. Additionally, nature facades and a gently sloped sedum roof create habitats for insects, plants, and birds, enhancing biodiversity and ecosystem health.
Due to the building’s half-land, half-marsh positioning the connection with Saeftinghe’s tidal landscape is maximised and serves as an educational showcase for adaptive design in flood-prone environments.
Lessons learned
The project offered valuable insights for the Province of Zeeland into how:
- A holistic approach integrating energy, water, and biodiversity systems enhances environmental performance and regional resilience.
- Early stakeholder collaboration and local material sourcing significantly strengthen project acceptance, ecological value, and cultural identity.
- Working within a Natura 2000 area requires adaptive scheduling and close regulatory coordination but can generate examples of nature-inclusive infrastructure.
- The contracting authority observed that collaboration, dialogue with authorities, and collective action for nature conservation are vital to local residents, with sustainable development and circular projects reinforcing these efforts.
More information
For related information, please see the European GPP criteria for Office building design, construction and management (2016), and the Technical background.
More information is available on the MVI Platform. Press article is available online and in the official park website.
1Performance-based purchasing or Best Value Procurement Guidance by PIANOo can be consulted here.
2Bio-based materials are products in which fossil fuels have been replaced with renewable, organic materials