Procurement category: Supply and installation of electric vehicle charging infrastructure, main CPV code: 31158000-8 – Charging equipment

Environmental and social impacts targeted: Reduction of greenhouse gas emissions; energy efficiency; circular and sustainable design; human and labour rights; prevention of forced, child, or unsafe labour; transparency in the supply chain. 

Relevant EU legislation/policy/guidance: EU Directive 2014/24 on public procurement; EU Directive 2019/1161 the Clean Vehicles Directive; EU Green Public Procurement (GPP) Criteria for Transport and Infrastructure; European Green Deal (2019); EU Corporate Sustainability Due Diligence Directive (CSDDD); Regulation (EU) 2023/1230 on Machinery Products and Directive 2011/65/EU (RoHS); Guidance on non-EU participation in the EU procurement market; UN Guiding Principles on Business and Human Rights (UNGPs); OECD Due Diligence Guidance for Responsible Business Conduct; ILO Core Conventions on labour standards.

Background 

The Berliner Verkehrsbetriebe (BVG) is Germany’s largest public transport company, which operates the bus, tram, metro, and ferry networks in Berlin. As a key actor in the city’s sustainable mobility transition, BVG plays a central role in achieving the State of Berlin’s target of climate neutrality by 2045. In line with its environmental strategy and the goals of the Berlin Mobility Act, BVG is gradually converting its bus fleet to zero-emission vehicles and expanding the supporting charging infrastructure across the city.

To accelerate this transition, BVG procured the supply and installation of electric bus charging infrastructure, comprising of around 100 charging points at up to 36 terminal stops throughout Berlin. This procurement aimed not only to deliver the technical infrastructure required for electrification but also to consider human rights and environmental due diligence (HREDD) in a large-scale public works and supply contract. The tender sought to embed sustainability and transparency across the entire value chain, from civil works to the sourcing of key electronic components, reflecting BVG’s commitment to responsible and innovative public procurement.

Procurement objectives 

This tender aimed to expand the charging infrastructure required for BVG’s growing electric bus fleet. The contract covered the planning, delivery, and installation of charging systems at multiple terminal stops across the city, ensuring reliable, safe and energy-efficient charging operations.

Beyond the technical goal of infrastructure delivery, the tender aimed to set a new benchmark for sustainable public procurement by embedding human rights and environmental due diligence (HREDD) into the process. The contract sought to:

• Promote decent working conditions and environmental responsibility throughout global supply chains for electronic and electrical components.

• Strengthen transparency and accountability among contractors and subcontractors by requiring disclosure of production sites and supply chain information.

• Encourage continuous improvement and collaboration with suppliers through a dialogue-based approach.

• Contribute to the long-term resilience and sustainability of BVG’s procurement practices, aligning with both the EU’s and German legal frameworks on sustainable and ethical sourcing.

The procurement process was a competitive procedure with negotiation under the Directive 2014/24/EU. This approach enabled BVG to communicate its sustainability expectations clearly, while allowing suppliers to refine their offers through initial tenders, bidder colloquia, clarification meetings and negotiation rounds. The process culminated in the submission of final, binding offers that incorporated refined sustainability concepts, which subsequently became part of the contract’s performance clauses.

The procurement process

Prior to the tender notice, BVG carried out a desktop-based risk analysis focused on sustainability aspects in the electric vehicle charging sector. Insights from sectoral cooperation initiatives, such as the German “Sustainable Supply Chains in Public Transport” network (involving BVG, Hamburger Hochbahn and Rheinbahn), as well as best practices from Electronics Watch and GIZ, informed the design of the procurement documents and evaluation methodology.

Given the technical complexity, BVG chose a competitive procedure with negotiation which included structured interactions with the bidders through a series of bidder colloquia, clarification meetings and negotiation rounds. The approach ensured a shared understanding of the sustainability expectations, while also fostering supplier learning and continuous improvement throughout the process.

The tender notice was published in August 2023, covering the supply and installation of charging infrastructure at up to 36 terminal stops within the Berlin city area.      

Following the two-stage evaluation process, which included indicative and final offer phases, the contract was awarded in early 2024. The framework contract has a multi-year duration, covering both implementation and operational support phases, with provisions for regular reporting and continuous dialogue between BVG and the contractor. This long-term structure was intended to ensure sustained improvements in both technical performance and sustainability outcomes throughout the contract duration.

Environmental criteria

The tender specifications required the contractor to deliver energy-efficient and environmentally sound charging infrastructure to support BVG’s transition to a zero-emission bus fleet. The technical requirements covered the full system — including transformer stations, DC charging units, cabling, and monitoring systems.      

Key environmental technical specifications included:

• Ecological supervision: Contractors were required to provide expert ecological support throughout planning and construction, including conducting environmental impact assessments, implementing species protection measures, and coordinating with relevant authorities.
• Sustainable materials: Only environmentally friendly, asbestos- and chromate-free building materials were permitted; recycled materials could be used if they met all technical and ecological standards.
• Waste management and circular economy: All construction waste and hazardous materials had to be collected, processed, and disposed of in compliance with legal requirements, with proper documentation of disposal and recycling provided.
• Protection of nature and the environment: Contractors were obliged to protect green spaces, trees, and local fauna, and to carry out necessary maintenance and compensation measures as required by project conditions.
• Minimisation of emissions and environmental impacts: Dust, noise, and other environmental impacts had to be minimised through appropriate mitigation measures, and all activities were required to comply with applicable climate and environmental protection regulations. 

Social Criteria

A central innovation of this procurement was the explicit integration of human rights and environmental due diligence (HREDD) as a core social sustainability award criterion. Contractors were required to demonstrate how they identify, assess, and mitigate risks related to human rights, labour conditions, and environmental protection throughout the supply chains of the acquired products. The contract performance clauses require suppliers to follow the Supplier Code of Conduct, pay at least the statutory minimum wage, comply with collective agreements, and, during suitability checks, provide information on how they promote women.

Each bidder submitted a detailed “Concept on Human Rights and Environmental Due Diligence”, which was evaluated using a structured concept evaluation matrix covering four key dimensions:

• Risk analysis: identification of interconnected social and environmental risks in the production and delivery of key components, particularly electronic and electrical parts.
• Mitigation measures: concrete steps taken to address identified risks, such as supplier training, audits, or corrective actions.
• Grievance mechanisms: systems for affected workers or stakeholders to raise concerns and seek remediation.
• Documentation and reporting: processes for monitoring, recording, and communicating progress to BVG.

Contractors were also required to provide transparency on production sites and subcontractors and to cascade the same due diligence obligations to their entire subcontracting chain. These commitments were incorporated into the contract performance conditions, making them legally binding.

Regular reporting and dialogue meetings with BVG were established to ensure continuous monitoring, mutual learning, and further improvement of social performance throughout the contract’s duration.

Award criteria

The tender adopted a most economically advantageous tender (MEAT) approach, integrating both technical and sustainability aspects into the evaluation framework. BVG aimed to balance cost with strong performance on environmental and social criteria, recognising that long-term value derives from both operational quality and responsible supply chains.

Bids were assessed using a two-stage process:

• Indicative offer phase (initial tenders), where bidders submitted preliminary concepts on human rights and environmental due diligence (HREDD) alongside technical and price information. Based on the submitted concepts, the bidders were asked for clarifications about their risk assessments, prioritisations, and proposed measures. Since concepts could be continuously revised, questions were standardised, and all feedback was shared with all bidders. 

• Final offer phase, where bidders refined their submissions following general feedback and clarification meetings.

This iterative approach encouraged learning and improvement, and ensured that final offers reflected a clear understanding of BVG’s sustainability expectations.

The evaluation matrix combined price and qualitative criteria as follows:

• Price – 40%   
• Technical quality and performance – 50%   
• Sustainability – 10% 

The HREDD concept was evaluated qualitatively using a scoring system based on a detailed evaluation matrix developed by BVG’s sustainability, procurement, and legal teams. The assessment focused on four interrelated elements:

• Risk analysis: clarity, depth, and specificity of risk identification across different supply chain tiers (from construction to electronic components).
• Measures: adequacy and proportionality of measures proposed to address identified risks.
• Grievance mechanisms: accessibility and credibility of complaint channels for affected workers or stakeholders.
• Documentation and reporting: quality of monitoring systems, frequency of reporting, and commitment to transparency during contract execution.

Each element was scored on a fulfilment scale supported by explanatory notes to ensure consistency and traceability of the evaluators’ reasoning. Bidders were explicitly advised to:

• Ensure clear linkage between risks, measures, and reporting processes;
• Demonstrate how proposed actions go beyond minimum legal requirements; and
• Keep all relevant information within the defined section limits to ensure comparability.

Following the final evaluation, the most sustainable bid, offering both strong technical performance and a robust due diligence concept, was selected. The winning bidder’s sustainability commitments were then integrated into the binding contract conditions, with continued monitoring through reporting, and joint review meetings during contract execution.

Contract Performance and Monitoring

BVG’s focus on supplier engagement and continuous improvement throughout contract implementation was reflected in the contractual performance clauses. Rather than viewing contract award as the endpoint, BVG designed a monitoring and dialogue framework to ensure that both environmental and social commitments made during the tendering phase were actively pursued and verifiable over time.

The winning contractor was required to implement the measures outlined in its Human Rights and Environmental Due Diligence (HREDD) concept, which formed part of the binding contractual obligations. Additionally, the contractor had to provide BVG with a detailed overview of production and assembly sites.                                          

These reports formed the basis for periodic review meetings between BVG and the contractor to evaluate progress, discuss challenges, and jointly identify opportunities for further improvement.

To reinforce mutual accountability and knowledge exchange, BVG established a structured dialogue process with the contractor and its key subcontractors. Regular meetings—  provided a forum for reviewing sustainability performance, sharing good practices, and addressing any emerging risks or non-conformities. BVG also reserved the right to conduct audits and on-site inspections.

Environmental and social impact

Environmental impact

The tender reflects Berlin’s ambition to shift to zero-emission bus operations. It enables longer electric duty cycles and reduces reliance on diesel back-up, directly supporting city climate targets.

• Fostering systemic change: Fast-charging infrastructure at end stops helps manage grid loads through controlled charging profiles. This approach allows the use of smaller, lighter batteries prospectively without compromising range, and reducing resource intensity over the vehicle’s lifetime.
• Fleet transition to electric: BVG currently operates about 280 e-buses and plans to have more than 500 by 2027. The charging network is a critical enabler for this scale-up, delivering measurable reductions in associated CO₂ and air-pollutant (NOₓ/PM) reductions on urban routes. 

Furthermore, BVG’s initiative received the Sustainable Procurement of the Year award at the Procura+ awards in Middelburg in October 2025. 

Social impact

A result from this procurement is the use of human rights and environmental due diligence (HREDD) in a complex works and supplies contract, with measurable practice changes in supplier engagement:

• Binding due diligence commitments: The winning contractor must map production and assembly sites, disclose key subcontractors, and provide a transparent supply-chain overview for critical components (e.g., transformers, semiconductors if possible). The contracting authority also asked for ongoing risk analysis, mitigation, grievance handling, and regular reporting. These requirements are contract-performance conditions and are cascaded through the subcontracting chain.
• Improved offers: BVG documents that the dialogue-based process (bidder colloquia, feedback loops, negotiation rounds) improved bid quality between indicative and final offers, increased supplier awareness of sector-specific risks, and fostered trust and long-term cooperation. The BVG’s strategic direction to embed HREDD in large rolling-stock and infrastructure tenders may be a replicable model. 

Lessons learned

The BVG charging infrastructure procurement offers valuable insights for contracting authorities seeking to integrate environmental and social responsibility into complex technical tenders.

• Concept evaluations are effective: The concept evaluation approach proved to be a powerful tool for assessing suppliers’ human rights and environmental due diligence (HREDD) practices, especially in sectors where standardised certifications or benchmarks are lacking. It allowed evaluators to distinguish between bidders’ maturity levels and provided a flexible way to reward proactive, transparent approaches. However, BVG’s experience confirmed that such assessments are labour- and time-intensive, requiring cross-departmental collaboration, expert input, and consistent documentation. For future use, BVG recommends applying concept evaluations primarily to high-risk or high-value procurements where the expected sustainability impact justifies the additional effort.
• Dialogue enhances both trust and bid quality: A key success factor was the use of a dialogue-based procedure, which included bidder colloquia, negotiation rounds, and feedback sessions. This process not only improved suppliers’ understanding of BVG’s expectations but also encouraged them to refine their concepts. As a result, the quality and specificity of the final bids improved significantly, and suppliers viewed the process as collaborative. BVG noted that transparency, open communication, and clear feedback loops were essential to achieving this outcome.
• Cross-functional collaboration ensures legal certainty: The procurement was jointly developed by BVG’s procurement, legal, and sustainability teams, ensuring alignment between compliance requirements and practical implementation. Early legal involvement was crucial in designing evaluation and contract clauses that were both ambitious and complied with procurement law. This interdepartmental approach ensured consistency and reduced the risk of challenges or ambiguities during tender evaluation.
• Embedding HREDD checks requires ongoing monitoring: BVG learned that sustainability commitments must be actively managed after the contract award. The inclusion of reporting obligations, supplier audits, and regular review meetings allowed BVG to maintain visibility over supply chain risks and promote continuous improvement. The cooperative monitoring framework also fostered mutual learning and capacity building—turning procurement into an evolving partnership.
• Collaboration across the public transport sector amplifies impact: Through cooperation with other public transport operators—particularly Hamburger Hochbahn and Rheinbahn—BVG helped to develop a modular, harmonised framework for sustainability concept evaluations. This collective effort is creating shared standards and templates that other authorities can adapt, reducing duplication and ensuring consistent supplier expectations across regions. Such collaboration strengthens the market signal for responsible production and sourcing, amplifying the overall impact beyond individual contracts. 

More information

For related information, please see the European GPP criteria for EU GPP criteria for Road transport (2021) and the Technical background report. The tender notice is available online on TED.

The charging infrastructure strategy integrates operational requirements, flexibility, and operational stability while prioritising efficiency to enable the fastest possible electrification roll-out. An essential component of this is the charging infrastructure within the urban area.