Green public procurement implementation: a case-study analysis to overcome the intention-action gap

Public procurement faces the challenge of living up to its pioneering role and using its monetary volume to change the market towards more sustainable development. Relevant policy guidelines and strategic objectives for public institutions are in place, but the actual implementation of green public procurement (GPP) still raises questions. This study aims to analyse GPP implementation processes of contracting authorities to explain the persistence of intention-action gaps. Drawing on the general theory of implementation (GTI), secondary data from the tender electronic data database, and in-depth interviews with 12 public contracting authorities on the GPP of cleaning products and services were analysed. Capability, capacity and potential as pillars of the GTI lead to an actual contribution of GPP. In addition to internal organizational resources and motivational factors, external factors such as bureaucratic requirements and market dynamics also affect the relationship and may cause an intention-action gap. The implications suggest that future research should address market readiness and supplier commitment to GPP. To implement GPP effectively, a multi-level approach is required that addresses both policy in terms of bureaucracy as well as contracting authorities and suppliers. Existing research on the implementation of GPP focuses either on preconditions (drivers, barriers) or on actions (green supplier selection). This paper offers a theory-based approach to explain how GPP intentions are translated into actual implementation.