Report: The CDTI Innovation leads from 2019 purchasing Pre-Commercial Service in spain with innovative 425 million for the early mobilization r & D

In an era marked by urgent challenges — from the ecological transition to digital transformation — innovation is not an exclusive territory of the private sector. The public administrations are taking an increasingly active role, not only as funding partners or regulatory, but also as promoters and first users of technological solutions that have not yet reached the market. In this scenario, the procurement Service of innovation (ICC), the mechanism of the public sector to drive innovation through the recruitment of fresh solutions or even, is emerging as a lever to profoundly change the rules of the game. Not only with the modernization of public services — optimizing resources and response times — but also facilitating the creation of synergies in an environment of open innovation, encouraging emerging technologies and enhancing economic growth, with tangible benefits for citizenship.

In line with this scenario, and in conjunction with its new strategic cycle 2024-2027, the centre for technological development and innovation (CDTI), the agency for innovation of the ministry of science, innovation and universities in spain, promotes from 19 to 21 november 2025 in Granada (Spain) the forum of ibero-american Public Purchase of innovation and Open Innovation, in an initiative focused on strengthening networks of collaboration between the main actors involved in the icc (administrations, centres of knowledge, businesses tractoras, innovative smes, technological platforms, clusters and business associations, specialized consultancies) and international cooperation with the ibero-american ecosystem, in a winning formula to accelerate the generation of disruptive and sustainable solutions that improve public services and quality of life of citizens.

What is the purchase Service

In the framework of the icc, there are three main modalities: the purchase Of Innovative Technology (CPTI), the Pre-Commercial Public Purchase (CPP) and the association for innovation (AI). The CPTI refers to the acquisition of technological solutions that are not yet sold, but which are at an advanced stage of development, located between the levels TRL TRL 7 and 9technological maturity. The CPP, for its part, recruited from services earlier stages (TRL between 4 and 7) to develop prototypes that respond to specific needs, which will be reviewed by the public administrations. This model stresses, in addition, for the pooling of risks and benefits between the public and businesses, thus promoting collaboration since early stages of the innovative process. Finally, the AI is organized in successive steps and is based on cooperation between the administration and one or more partners, with whom will be developed that normally solutions, will be acquired by the public body. In this case, the results can range from 4 to TRL TRL 9.

The best: icc is not an outline reserved for large agencies. Any public body with powers of recruitment and willingness to can use this instrument. In so doing, not only promotes more effective solutions, but can also act as a reference, opening new opportunities of internationalization for companies.

The public procurement, contributes to innovation policy, becoming a strategic tool for the country.

X-CPP

The CPP is moving in Spain with a growing trail project, financial and business involvement. Although still faces challenges, their figures start to shape a more precise x of its scope and potential. From 2019 and until now the CDTI Innovation has managed 25 CPP initiatives supported by different sources of financing, with a total amount awarded 425,2 million euros.

In detail, the greater impetus has been of european funds. ERDF co-financed with funds CDTI themselves — 8 13 initiatives in the 2014-2020 and 5 in the current cycle 2021 – 2027 — with a resource mobilization service 169,2 million euros. This figure joined 244.1 million recovery Mechanism and resilience (MRR) and its own funds CDTI, which have supported 11 initiatives. For its part, the funds allocated by the CDTI fully funded, with a CPP 11.9 billion mobilized since the PGE. These amounts show that the CPP is not a marginal mechanism, but one integrated into the national strategy for the promotion of innovation.

Since the institutional perspective, have been 25 actions of pre-commercial public purchase with 19 public administrations beneficiaries, some of them — as the ministry of defence, the institute of Carlos III Health ', or the ministry of internal affairs, among others — leading more than one initiative. With regard to the priority sectors, projects have been deployed CPP especially (32 per cent), 16 per cent (security), 12 per cent (energy) and 8 per cent (water management) showing that public innovation not only serves to digitize bureaucratic processes, but to address strategic challenges ranging from security to energy transition or to improve health care.

From 2019, a total of 263 entities have participated in these processes, either as contracting, subcontractors or members of unions temporary Business (UTEs). Although the medium-sized enterprises and UTEs represent the bulk of operators — with 33 per cent and 28.3 per cent, respectively — are the big companies the highest rate of Success in these contracts. Their experience, financial and legal teams specialized in industrial and intellectual property granted an advantage to deal with such complex tenders, which is in many cases, consolidated themselves, with departments of I + D + i and track record in the use of instruments of public funding. On the contrary, the participation of small enterprises remains limited, which is on the table a barrier yet to be resolved if you want to ensure access to more inclusive.

The economic status of the tenders in CPP varies greatly, ranging from 2.8 and 105 million euros by project/batch. However, three initiatives stand out due to surpass this threshold. Ppps for the development of quantum technologies applied to secure communications (QKD) amounts to $125 million euros; the draft nuclear fusion GIFTS is around 40 million; and the initiative focused on a system of small satellite launcher is situated in the 45 million. The strategic nature of these technologies explains his exceptional budget, as they are vital to strengthen the scientific and technological sovereignty spanish and european. QKD aligns itself with the newly adoptedStrategy for Quantum Technologies(2025-2030); GIFTS with plans for a future National Strategy of Nuclear fusion; and the satellite launcher System responded to the objective to place the aerospace sector as a protagonist in the face of new challenges and opportunities for community and national policies.

The territorial analysis of investment also provides data. In the period 2014-2020 ERDF, the autonomous communities of Murcia, the canaries and Galicia concentrated 68.5 per cent of total budget, followed by Castilla La Mancha, Andalusia, Extremadura and Castilla y León, indicating that, with appropriate support, historically less active in the innovation can play an important role in this type of procurement.

Future projections are reinforcing this upline. In the short term, will address new challenges that will give rise to tenders CPP cofinanced by CDTI and FEDER: sensors for astronomical observation (SPADs and restores. In addition, Preliminary Consultations are being made to two initiatives in the cycle 2021 – 2027 — technologies for the protection of costs (PLAYAS) terrestrial systems and unmanned (TERRESTRIAL ROBOT) — as yet defined budget, but that reinforce a clear road map.

The experience of CDTI shows that the CPP is establishing itself as a key instrument of policy on innovation. However, beyond this particular case, the evolution of the icc as a whole offers a complementary perspective on its scope in Spain.analysis published by the ministry of science, innovation and universitiesin 2023 reveals that, between 2017 and 2022, there were 110 tenders in the beijing platform for Recruitment of the public Sector, with a budget basis added 327,9 million euros and an average of 3.06 billion process and the socio-Area accounted for the largest number of initiatives, itself being as a major engine of the icc in the country, followed by sectors of the environment, mobility, transport and logistics, infrastructure, digital technologies, waste management, security and emergencies, as well as agri-food. From the perspective of property, the community of Madrid, Galicia and Andalusia led the activity, accumulating together 72 of the tenders accounted for.

The impact on the ecosystem of innovation

The CCP has the potential to be a real activator of dynamic change in the ecosystem of innovation. As this instrument consolidates in Spain, its impact is felt both in the connection between science and market and in the generation of collaborative networks, regional development and economic and industrial returns of r + D + i.

One of its main achievements is its ability to bridge the gap between research and the market, a historic challenge of the spanish system of innovation. In each solicitation exercise of The ccp, specifications, include a specific annex on economic returns: the recipients are committed to reward a percentage of their net sales — in the form of royalties — once the solution developed reaches the market. In addition, the validation phase of the prototype preoperacional lays the foundation for subsequent industrial scaling, either through new calls as Pcati, or through alternative funding mechanisms.

But the CPP also promotes a model of open innovation, where companies, universities, technology centres and public administrations collaborate on an equal footing. In this ecosystem, each actor plays its role. The companies, either individually or in UTE (European Temporary Companies), who assume the technological development. For startups and smes, this structure is valuable collaborative: sharing technical or financial solvency with experienced partners allows them to get better access to complex processes of public procurement and grow within the market of innovation.

For its part, universities and technological centres are beginning to play a more proactive role. Although traditionally participated as subcontractors, some — as Carlos III university of Madrid or the Universitat politècnica de València — already compete as major economic operators in tenders of CDTI linked to the Health sphere. This paradigm shift indicates greater integration between academia and the business fabric, with the aim of translating the science in tangible solutions.

The pull of the cpc also manifested in the strengthening of local business fabric. Many initiatives undertaken by the CDTI and co-financed with european funds are generating synergies regional high-value added. For example, in the “ Brain PET ”, led by the foundation Tecnalia, subcontractors are from the same region, which not only enhances territorial specialization which allows future industrial scaling can take place without dependency on external suppliers. This model multiplies the economic impact on the environment and it favours innovation rooted and sustainable development.

The cpc also levers active economic freedoms. A hallmark of this instrument are the license agreements and return signed between the CDTI contracting, the administration and the company adjudicataria. These commitments behind the protection of intellectual property — with particular focus on patents, as indicator of technological progress, and ensure that the solutions developed in pilot phase, but escalen and reach the market. This traceability from the laboratory and the industry is one of the guarantees of competitiveness of the model.

In this regard, the CPP acts as a springboard for internationalization. technological Validation provided by the public sector companies positioned as a reference in their respective areas, generating confidence among investors and offtakers. The expectation is that, after phase preoperacional, many of these solutions escalen not only at the national level, but also in european markets and global.

As for the tractors, health, including biotechnology — concentrated 36 per cent of the tenders ERDF 2021 – 2027, followed by ict (28 per cent), energy (13 per cent) and projects related to prevention of fires (8 per cent). This alignment is not accidental: responds both to the priorities established by the EuBeijing platform for Sensitive Technologies and criticisms.as to the specific needs of the industrial fabric and.

In addition, the CCP has the potential to multisectoral drag. This is the case with initiatives such as, for example, where AUTOPILOTO, artificial intelligence — ICT technology — applies to robotic surgery, or INNOVATRIAL, connecting health and to optimize the digitization and clinical research, technological hybridization. This expands the impact of the instrument, creating synergies between sectors and promoting a systemic innovation and cross-cutting nature.

Ultimately, the CODE OF CRIMINAL PROCEDURE not only facilitates the procurement of disruptive solutions, but rearranged and strengthens the ecosystem of innovation, creating connections, reducing gaps and projecting national actors towards the future of science, technology and global competitiveness.

The tangibilidad benefits

If something distinguishes the CPP is its ability to generate tangible social value and potentially transformative on multiple fronts. Since the ecological transition to population ageing or the technological revolution, this tool allows to answer some of the major structural challenges of the country, connecting innovation with the real needs of society.

One example is the momentum towards a clean and safe energy, which is set out in the initiativeNuclear dones-fusión, focused on technological development for future validators fusion reactors. This strategic installation in A member of the road map towards spanish and european emission energy sources, in a context marked by the urgency of climate and energy crises arising in part by the current geopolitical instability. Also in relation to the environment and ecosystems stresses the initiative, which is still Preliminary Consultation marketBEACHESthat seeks to identify solutions to stave off the coastal erosion. At stake is not only protecting the coastline and biodiversity, but also a blue economy which employs 4.8 million people in the eu, with spain the member state in which more employment is generated in this sector, according to arecent reportthe european commission.

In addition, the CCP allows public authorities not only respond to challenges, but anticipate them. This is evidenced by the initiativeBrain PETfocusing on the development of advanced technologies for the diagnosis and treatment of psychiatric illnesses. In a society in which more than one in three persons suffered from a disorder of this nature —according to who— this type of project strengthens the capacity of the health system with high-impact solutions clinical in addressing the future increase of this type of complaints because of the ageing population.

Innovation is key in the fight against emerging threats linked to digitization and the emergence of artificial intelligence. In the face of increasing sophistication of organized crime, the tender statusFORENSICseeks to revolutionize the police investigation through scientific technologies that optimize the management of the crime scene. This CPP intended to give them tools, adapting procedures to the challenges of a crime increasingly complex and technologically advanced.

In this regard, the CCP provides a bold and necessary approach: allowed the development of prototypes even non-existent, testarlos in real conditions and move towards effective solutions, without assuming the full risk of the process. This translates, businesses — and especially for smes and startups — on concrete opportunities to accelerate access to the market, attract investment, generate employment and to position itself as the related technology.

Moreover, spain is also moving forward to occupy a prominent place in emerging sectors of high technological complexity and the CPP is becoming a partner. In the field of secure communications, the initiativeQKD systemdrives quantum technologies — essential for the sovereignty and european economic security in the coming decades — with applications in defence, security, logistical or health. And in the field of astrophysics, the potential developmentSPADs detectorsfor astronomical observation could open new scientific possibilities in the development of technology and Optical microelectronics, reinforcing the spanish technological autonomy as one of the great global commons: outer space, where information cooperation and competitiveness, state and private rooms.

In parallel, the pbc had also serves to reinforce the commitment to a public health and The equal initiative.Hadronterapiaa linear drives ion accelerator for oncological treatments. With almost 300,000 new cancer cases provided for in Spain in 2025 —according to the SEOMthis bet — technology could make a difference in the quality of life of thousands of patients.

And if we talk about health, the sustainability of this sector is also a factor to take into account The initiative.H2-Hospitalessearch decarbonise health infrastructures through the use of green hydrogen, without compromising its operability. Spain aspires to lead the deployment of this form of energy in europe, and this initiative demonstrates how you can combine with ecological transition, strengthening of the public system and leadership in terms of energy.

The benefits of this type of procurement are not limited to each specific initiative. They also generate economies of scale through partnerships between regions, they mobilize private capital and foster common technological standards. It shows some spanish autonomous communities, which, although not traditionally have been identified as highly innovative are using the CPP successfully in different areas.

In this line, joined experiences such as the board of Extremadura, with the initiativeAUTOPILOTO, which introduces ai minimally invasive surgery to customize interventions and reduce risks. Or the case of Galician health Service,INNOVATRIAL, which seeks to integrate all the processes of clinical research in a Single digital system, strengthening the link between research and medical assistance.

Barriers and challenges

However, the obstacles are still significant. Many public bodies remain unaware of how to implement the CPP or teams formed nor sufficient resources to manage effectively. Red tape, the risk and a rationale of short-term detriment continue often innovation as secondary.

Since the business side, the picture is not easy, since, for example, the complexity of the bidding processes is real obstacles to the participation of smes and startups. Without a coordinated strategy and cross-cutting nature, the risk is that these tools lose traction, be diluted and not create a structural change.

Overcoming these challenges requires a clear commitment by administrations with vision, can strengthen their internal capacities, collaboration among departments and consolidate experience in innovative processes. It is also essential to have an entrepreneurial ecosystem prepared: companies that are aware of the dynamics of the Icc and the CODE OF CRIMINAL PROCEDURE, to work with centres of knowledge and dominate critical issues such as intellectual property rights or the exploitation of results.

In this vein, the CDTI Innovation proposes to strengthen its commitment to THE CCP by 2027, building on the FEDER and orienting their proceedings to the major challenges social, economic and environmental standards.Its strategic planpriority initiatives led by scientific and technical Infrastructures Unique (ICTS), by its high potential impact on the national system of science and innovation. In addition, it will promote a comprehensive assessment of the instrument, reviewing process indicators, criteria for selection and recruitment procedures and follow-up, to ensure greater transparency and effectiveness. To facilitate its deployment, it was also another interadministrativa network of support to the icc, with the aim of extending its introduction of a consistent manner throughout the national territory.

In addition to all of a new line of action launched in december 2024: tendering innovation “ ecosystems ”. Through it, the CDTI seeks to strengthen the knowledge and training for all actors involved in the process — from administrations to economic operators. The objective: to improve the management of the ERDF, optimize existing instruments of ICC, facilitate the deployment of innovative solutions and developing new tools adapted to the needs of innovative fabric. A key point would be to facilitate the participation of smes and startups, especially vulnerable because of a dependence on short-term financing in order to promote the most disruptive.

The icc and the CODE OF CRIMINAL PROCEDURE are not miracle formula, but it tools with a great ability to transformation. Use the power of the public purchase not only to purchase goods and services, but to generate solutions that do not yet exist — with economic, social and technological development — is one of the great.

Motor of european and global change

In a context marked by profound transformations at global level, the icc and THE CCP are given centre stage as key tools to advance the major strategic agendas of the european Union. In spain, this type of procurement also provides public investment towards goals such as strategic autonomy or technological sovereignty.

This growing commitment is reflected in the position of Spain to the european scene. According To the exercise ofbenchmarkingon ICC of 2024, carried out by the european commission (EC), the country is situated in the fourth place from 30 countries analysed, with a score of 47.5 per cent, over and above the european average, about 33 per cent. In just a few years, spain has escalated the eighth to the fourth place, thanks to progress in the promotion of the icc as a strategic tool, both in the majority of horizontal policies at national level — for example, the national strategy on Public Procurement — as 2023-2026 in ict policy in the plan — with Digital Spain 2026 — and in sectoral policies (defence, energy, transport, environment, water and sanitation).

The country stands out, moreover, for the use of personal and financial incentives, such as the National Prize of Icc. Also, some autonomous communities have consolidated models of good practices, including Catalonia, Andalusia, Castilla y León or Aragón, highlights the analysis of the Ec. However, major challenges remain: the country still lacks a specific national plan for ICC, has not set specific economic aims and still does not have a strong system of monitoring and evaluation. Nor does it have a clear policy on intellectual property in order to stimulate innovation, the report.

At european level, spain is part of the group of moderate performance, together with countries such as Estonia, Austria, norway and United kingdom. Ahead is Finland, which leads the ranking thanks to a political framework structured operating and 70 per cent of its capacity. In contrast, large economies of the union and France, germany, Italy or Poland are still modest performance. This disparity is evidence that, despite progress, the icc in europe operates on average only one third of its potential.

Beyond the european framework, the icc and the cpc firmly aligned with the objectives of Sustainable Development (ODS) of the Agenda 2030. In fact, all remotely delivered ppps from the CDTI incorporated special conditions of implementation aimed at sustainability and equity. Particular attention was paid to the ODS 5 (gender equality), with clauses that require businesses to encourage recruitment of women, reaching at least 20 per cent during the course of the contract.

Also, the design of the CPP is deeply aligned with ODS 9, by allowing the development of solutions which evolve from a pilot stadium (TRL 4) to run to their real (TRL 7). This technological evolution not only fosters innovation responsible, but also promotes productive modernization and competitiveness, in line with the ODS 8 (decent work and economic growth). In this regard, the CPP acts as a mechanism that promotes high value added sectors and allows public investment to become a driving force of skilled jobs and sustainable development.

The icc and the CCP are consolidated as a catalyst for a sustainable and responsible innovation. These tools allow the public administrations also align their buying processes with the principles of the European Green and with the approach not to cause significant harm to the environment (DNSH, by its initials in english). This commitment is integrated from the stage of identifying the need to tender and the implementation of the contract, reflecting the entire cycle of design, development and validation preoperacional.

In short, the procurement service is a lever of change that administrations to become active agents of transformation, local, national, european and global levels, anticipating future solutions and aligning public investment in innovation.

The present and future horizon

In therecent event“ the purchase of innovation in Spain: past, present and future ”, held in Madrid, experts agreed on one key idea: the real Success of ppps will be measured by its ability to deliver results to the market. The challenge is now to accompany such technologies beyond the prototype stage. This goal will require the Ministry of science and innovation and the autonomous communities to work in new supplementary instruments — such as Public Procurement of innovative technology (CPTI) — to facilitate industrial scaling and shorten the deadlines to market. In other words, the key is to adjust the time of innovation with access to public funding.

In parallel, the map of the CPP in Spain is beginning to show priority areas with growing force. One of the vectors that momentum is receiving is the security and defence policy. The launch of theIndustrial and technological Plan for security and defenceadopted this year by the council of ministers, positioned this area as a national priority. In this context, the CDTI manage eur 250 million in grants and purchase of prototypes, channeling much of these funds through the instrument of Cpc.

This approach is not accidental: before an unstable global arena and full of uncertainties, spain is looking for an enhanced technological sovereignty in critical sectors. And it does so by following formulas that combine strategic vision, and social impact. The collaboration público-privada public purchase innovation emerge in this way as an essential part of the value chain linking science with the market, public investment to competitiveness and present solutions of tomorrow.

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CDTI Innovation

The centre for technological development and innovation, CDTI E.P.E. is a public company under the ministry of Science, innovation and universities, whose goal is the promotion of technological innovation in business. The CDTI mission is to ensure that the business fabric english generates and transform knowledge into growth científico-técnico globally competitive, sustainable and inclusive. By 2024, within the framework of a new strategic plan, the CDTI provided more than $2.3 billion euros of support for business startups and spain.

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