1

"#$%&'&&"( &)*+,+)% &-#$.

)% ,/$ '0.)#$-% 1)22+**+)% #.)#)*-3 4). - 5+.$6,+7$ )% $3$6,.)%+6
+%7)+6+%8 +% #093+6 #.)60.$2$%,

!"#$$%&$' )) *+,-.%" /0)1


































*2%34544*6 789!6 : ;-3<:2-=3, 9+>#?@3 A : )0B0 !"#$$%&$' !%&C=#?
DDDE2%22-&E%# : =3F-G2%22-&E%#

2

"#$%&'&&"( )#+%+)% )% ,/$ #.)#)*-3 4). - 5+.$6,+7$ )% $3$6,.)%+6
+%7)+6+%8 +% #093+6 #.)60.$2$%,

:%,.);06,+)%
CpenLCL welcomes Lhe Luropean Commlsslon's proposal for a ulrecLlve on elecLronlc lnvolclng ln
publlc procuremenL
1
, and Lhe focus on shlfLlng Lowards a paperless publlc admlnlsLraLlon, parLlcularly lLs
cross-border dlmenslon.

1he mlsslon of Lhe LCL (an-Luropean ubllc rocuremenL Cnllne) pro[ecL and now of lLs successor,
CpenLCL, ls speclflcally Lo enable cross-border lnLeroperablllLy of elecLronlc publlc procuremenL,
promoLlng Lhe use of lLs sLandards based speclflcaLlons across Lurope.

CpenLCL sLrongly supporLs Lhe ob[ecLlve of Lhe ulrecLlve Lo remove markeL access barrlers ln cross-
border publlc procuremenL, ln order Lo lmprove Lhe condlLlons for Lhe funcLlonlng of Lhe lnLernal markeL.
<022-.= )4 ,/$ "#$%&'&&"( #)*+,+)%
1- 1he ulrecLlve should acknowledge, ln lLs preamble, Lhe efforLs made by Lhe LC co-funded Large
Scale lloL LCL (an-Luropean ubllc rocuremenL Cnllne) Lo faclllLaLe cross border e-lnvolclng
ln publlc procuremenL. ln parLlcular, Lhe resulLs achleved Lhrough use of Lhe LCL 8uslness
lnLeroperablllLy SpeclflcaLlons (8lS), lLs neLwork
2
ensurlng secure and rellable Lransmlsslon of e-
lnvolces and oLher buslness documenLs beLween Lradlng parLners, as well as Lhe legal framework
3
,
esLabllshed Lo faclllLaLe seamless many-Lo-many lnLeroperablllLy, should be recognlsed as Lhe
plaLform for Lhe furLher developmenL of end-Lo-end e-procuremenL ln Lhe publlc secLor ln Lurope.
1he LCL 8lS lmplemenLs Lhe resulLs of Lhe CLn workshop on 8uslness lnLeroperablllLy
lnLerfaces for ubllc rocuremenL ln Lurope (CLn WS 8ll). 1hrough LCL and lmplemenLaLlons ln
several Member SLaLes and AssoclaLed CounLrles, resulLs from CLn WS 8ll have already been
Lhoroughly LesLed and have proved Lhelr usefulness ln pracLlce.

2- Conslderlng Lhe speclflc scope of Lhe drafL ulrecLlve whlch focuses only on elecLronlc lnvolces ln
publlc procuremenL and ln Lhe llghL of Lhe Commlsslon's ob[ecLlve Lo achleve end-Lo-end elecLronlc
procuremenL Lo modernlse publlc admlnlsLraLlons
4
, lL ls lmporLanL Lo noLe LhaL Lhe CLn WS 8ll ls
Lhe only relevanL sLandardlsaLlon lnlLlaLlve ln Lurope LhaL supporLs noL only e-lnvolclng buL also Lhe
compleLe end-Lo-end procuremenL cycle.

"# CpenLCL supporLs Lhe developmenL and mandaLory use of a common semanLlc daLa model of
Lhe core elecLronlc lnvolce based on exlsLlng speclflcaLlons and meLhodology, developed by Lhe
Luropean sLandardlsaLlon organlsaLlon (CLn). CpenLCL recommends LhaL Lhe resulLs from Lhe
CLn WS 8ll, and ln parLlcular LhaL Lhe CLn Workshop AgreemenL (CWA) 16362, ls used as basls for
Lhe esLabllshmenL of Lhe Luropean sLandard for Lhe semanLlc daLa model.


1
Luropean Commlsslon roposal for a ulrecLlve of Lhe Luropean arllamenL and of Lhe Councll on elecLronlc lnvolclng
ln publlc procuremenL. CCM(2013) 449 flnal. 8russels, 26.6.2013
2
1he LCL 1ransporL lnfrasLrucLure (LCL neLwork) ls based on a seL of sLandardlsed communlcaLlon proLocols
LhaL ensures Lhe secure and rellable exchange of elecLronlc documenLs beLween publlc secLor buyers and Lhelr
suppllers. lor more lnformaLlon: www.peppol.eu/peppol_componenLs/-LransporL-lnfrasLrucLure
3
1he Covernance of Lhe LCL neLwork ls regulaLed by Lhe LCL 1ransporL lnfrasLrucLure AgreemenLs.
4
Luropean Commlsslon CommunlcaLlon on Lnd-Lo-end e-procuremenL Lo modernlse publlc admlnlsLraLlon.
CCM(2013) 433 flnal. 8russels, 26.6.2013

3

4- CpenLCL recommends llmlLlng Lhe number of synLaxes LhaL conLracLlng auLhorlLles ln Lurope
musL be able Lo recelve and process based on Lhe Luropean sLandard for Lhe semanLlc daLa model.
1hls ln order Lo reduce Lhe cosL and complexlLy of converslon from one synLax Lo anoLher, LhaL are
slgnlflcanL even lf Lhe synLaxes are based on a common semanLlc daLa model. 1he before
menLloned CWA 16362 provldes an approach for synLax blndlng LhaL could be used ln Lhls conLexL.
Whlle Lhe number of mandaLory synLax mapplngs should be very llmlLed, conLracLlng auLhorlLles
could on a volunLary basls accepL Lo recelve elecLronlc lnvolces based on oLher synLaxes, compllanL
wlLh Lhe common semanLlc daLa model.

3- CpenLCL recommends LhaL Lhe Commlsslon shall be empowered Lo adopL delegaLed acLs.
5
As
wlLhln Lhe proposed publlc procuremenL dlrecLlve
6
Lhe posslblllLy Lo adopL delegaLed acLs should be
glven Lo ensure Lhe lnLeroperablllLy of Lechnlcal formaLs as well as of process and messaglng
sLandards, especlally ln a cross-border conLexL Lo esLabllsh Lhe mandaLory use of such speclflc
Lechnlcal sLandards. lor e-lnvolclng Lhls could cover synLax mapplngs and use of Lransmlsslon
proLocols and should apply only where Lechnlcal sLandards have been Lhoroughly LesLed and have
proved Lhelr usefulness ln pracLlce.

6- 8ased on Lhe experlence galned ln Luropean counLrles wlLh a hlgh level of e-lnvolclng adopLlon, lL ls
noL sufflclenL Lo focus on Lhe ConLracLlng AuLhorlLles' obllgaLlon Lo recelve and process e-lnvolces.
1hls ls a good sLarLlng polnL, buL Lhere musL also be an obllgaLlon for Lconomlc CperaLors Lo send
lnvolces elecLronlcally Lo Lhelr publlc secLor cusLomers. CpenLCL recommends as a mlnlmum
LhaL ConLracLlng AuLhorlLles are glven Lhe rlghL Lo mandaLe Lhe use of e-lnvolclng from Lhelr
suppllers. ldeally, lL should be mandaLory for all Lconomlc CperaLors Lo send lnvolces Lo Lhelr
publlc secLor cusLomers elecLronlcally as has been done ln uenmark.

7- CpenLCL recognlses LhaL Lhe Llme requlred Lo develop and Lranspose Lhe common semanLlc
daLa model lnLo a Luropean sLandard wlll be beLween 2 Lo 3 years. lor Lhls reason, Lhe Luropean
Commlsslon should publlsh a clear and conclse roadmap by Lhe end of 2013, provldlng guldance Lo
Lhe markeL ln Lhe lnLerlm perlod. CpenLCL also recommends LhaL Lhe Commlsslon conslder
reduclng Lhe LransposlLlon perlod from 48 Lo a maxlmum of 24 monLhs.

5
The Treaty of Lisbon creates a new category of legal act: delegated acts. These delegated non-legislative acts
(Article 290 TFEU) are acts of general application to supplement or amend certain non-essential elements of the
legislative act. Furthermore, the legislator sets the conditions under which this delegation may be implemented.
6
Directive replacing Directive 2004/18/EC of the European Parliament and of the Council of 31 March 2004 on the
coordination of procedures for the award of public works contracts, public supply contracts and public service contracts.

4

>$%$.-3 .$2-.?*
@A 5$7$3)#2$%, )4 - '0.)#$-% *$2-%,+6 ;-,- 2);$3
A key elemenL of Lhe proposal ls LhaL a 'Luropean sLandard' wlll be developed wlLhln Lhe framework of
CLn, as evldenced ln ArLlcle 3. 1hls sLandard refers Lo a semanLlc reference model for Lhe core conLenL of
an elnvolce. 1he purpose of Lhls 'sLandard' ls Lo creaLe a unlfled concepL and a semanLlc reference model
for e-lnvolces whlch should be Lo brldge dlfferenL e-lnvolce formaLs (synLax).

CpenLCL supporLs Lhe developmenL of a common semanLlc daLa model of Lhe core elecLronlc lnvolce
based on exlsLlng speclflcaLlons, lncludlng ln parLlcular Lhose developed by Luropean or lnLernaLlonal
organlsaLlons such as CLn 8uslness lnLeroperablllLy lnLerfaces for ubllc rocuremenL ln Lurope (CLn WS
8ll), whlch resulLed ln Lhe CLn Workshop AgreemenL (CWA) 16362, CWA 16336, lSC (llnanclal lnvolce
based on Lhe lSC 20022 meLhodology), and un/CLlAC1 (Cll v. 2.0), as well as Lhe resulLs of any relevanL
work carrled ouL wlLhln Lhe framework of Lhe Commlsslon's Large-Scale lloL ro[ecLs.

CpenLCL recognlses LhaL slgnlflcanL efforLs have been made ln Lhls fleld and, ln order Lo make Lhe Lask
easler for CLn and Lhereby acceleraLlng Lhe process, proposes Lo mandaLe CLn Lo develop Lhe semanLlc
daLa model Lhus leveraglng Lhe resulLs of CLn WS 8ll, as Lhe sLarLlng polnL. 1hls daLa model has already
proved lLs value ln Lhe LCL pro[ecL and Lhe daLa model already lncludes synLax mapplngs Lo boLh Lhe
Cross lndusLry lnvolce (Cll) and Lhe unlversal 8uslness Language (u8L)
7
.

Moreover, Lhe use of sLrucLured formaLs for e-lnvolces as proposed ln Lhe ulrecLlve ls lmperaLlve for Lhe
lmplemenLaLlon of cosL-effecLlve soluLlons wlLh efflclenL supporL for (seml-)auLomaLed processlng. lL
should be noLed however, LhaL all currenL successful examples of publlc procuremenL soluLlons are based
on xML Lechnologles. 1hls should aL leasL be recognlzed and preferred ln favour of older Lechnology
formaLs such as LullAC1 LhaL are malnly deployed ln lndusLry-speclflc areas wlLh hlgh speclallzaLlon of
supply chalns. Lxamples of wldespread use of LullAC1 also ln publlc procuremenL exlsL ln Sweden, buL use
of xML ls domlnanL among new lmplemenLers also Lhere. lmposlng a requlremenL Lo supporL formaLs oLher
Lhan xML wlll lnvolve addlLlonal Lechnologles requlred and subsequenL lncreased cosLs for all publlc
ConLracLlng Agencles.

ln order Lo ensure compllance wlLh Lhe ob[ecLlves of ulrecLlve 2006/112/LC, Lhe Luropean sLandard should
noL conLaln requlremenLs for elecLronlc slgnaLures, whlle deflnlng semanLlc daLa elemenLs referrlng Lo
correspondlng seller and buyer daLa, process ldenLlflers, lnvolce aLLrlbuLes, lnvolce lLem deLalls, dellvery
lnformaLlon, paymenL deLalls and Lerms.

BA :2#3+6-,+)%* -%; 6)*, )4 6)%7$.*+)% 9$,C$$% 4).2-,*
Accordlng Lo ArLlcle 4, conLracLlng auLhorlLles are requlred Lo recelve all e-lnvolces compllanL wlLh Lhe
SemanLlc daLa model as a parL of Lhe Luropean SLandard. ln pracLlce Lhls means LhaL ConLracLlng
auLhorlLles are bound Lo recelve a currenLly unknown number of e-lnvolce formaLs and synLaxes.

Accordlng Lo a recenL sLudy
8
carrled ouL by Lhe Swedlsh llnanclal ManagemenL. AuLhorlLy (LSv) on Lhe
lmpacL of Lhe drafL ulrecLlve, none of Loday's l1 soluLlons have Lhe capablllLy Lo accepL an arblLrary e-

7
unlversal 8uslness Language (u8L) ls a llbrary of sLandard elecLronlc xML buslness documenLs such as purchase
orders and lnvolces. u8L was developed by an CASlS 1echnlcal CommlLLee wlLh parLlclpaLlon from a varleLy of
lndusLry daLa sLandards organlzaLlons. u8L ls owned by CASlS and ls currenLly avallable Lo all, wlLh no royalLy fees.
8
Summary of Lhe reporL on consequences of Lhe dlrecLlve proposal on e-lnvolclng ln publlc procuremenL (LSv
2013:30).

5

lnvolce formaL ln an auLomaLed manner. 1hls ls also expecLed Lo lead Lo qulLe subsLanLlally lncreased cosLs
for conLracLlng auLhorlLles.

ln parLlcular, LSv esLlmaLes LhaL Lhe average cosL Lo esLabllsh formaL converslon for Lhe 340 conLracLlng
auLhorlLles - sub[ecL of Lhls analysls - would be over 10 ml euro (SLk 93 mllllon). ApproxlmaLely half of Lhls
cosL would be lncurred for publlc auLhorlLles, wlLhouL Laklng lnLo accounL ongolng LransacLlon fees and
oLher cosLs. A concluslon Lo be drawn from Lhls ls LhaL Lhe cosL of handllng formaL converslons ls Lhe slngle
largesL cosL lLem broughL on by Lhls proposal. Converslons could, accordlng Lo LSv's calculaLlons, cosL Lwlce
as much as Lhe change managemenL and Lhe lnvesLmenLs made by Lhe few agencles currenLly noL
accepLlng e-lnvolces.

1he alLernaLlve ls for each agency Lo use an e-8uslness servlce provlder Lo handle Lhe formaL converslon
process, whlch also comes aL a slgnlflcanL cosL. Powever, servlce provlders are now also reallslng Lhe real
cosL of 'any Lo any' formaL LranslaLlons, because lL ls noL only a case of spendlng more money Lo supporL
more varlaLlons. CLher slgnlflcanL cosL drlvers lnclude Lhe Llme spenL on geLLlng Lradlng parLners up and
runnlng, Lhe need Lo slmpllfy Lhe process, and make lL a repeaLable process (as parL of Lhe operaLlon's llfe
cycle managemenL). 1here ls no doubL LhaL llmlLlng Lhe number of sLandards slgnlflcanLly llmlLs Lhe
number of varlaLlons buL Lhls dlrecLlve could acLually serve Lo 'lncrease' Lhe number of sLandards used
(provldlng Lhey all lncorporaLe Lhe same semanLlc daLa model).

llnally, Lhe concepL LhaL several approved synLaxes mlghL exlsL, wlll also furLher prohlblL sofLware provlders
and parLlcularly L8 vendors from lnvesLlng ln a slngle e-lnvolclng sLandard and maklng Lhelr L8 or
AccounLlng sofLware capable of produclng 'ready Lo send or recelve' e-lnvolce exporL/lmporL capablllLy,
whlch would make e-lnvolclng much easler for SMLs.

D E F;)#,+)% )4 5$3$8-,$; F6,*
Accordlng Lo ArLlcle 290 1lLu, Lhe Luropean Commlsslon ls granLed Lhe power Lo supplemenL or amend
Lhe non-essenLlal elemenLs of a baslc acL, for Lhe sake of speed and efflclency, Lhrough Lhe adopLlon of
uelegaLed AcLs, whlch represenL a slmpllfled leglslaLlve procedure.

Accordlng Lo arLlcle 19 secLlon 7 a, 3rd paragraph of Lhe proposed publlc procuremenL dlrecLlve
9
, Lhe
Luropean Commlsslon, ln order Lo ensure lnLeroperablllLy of Lechnlcal formaLs, as well as of process and
messaglng sLandards, especlally ln a cross border conLexL, ls empowered Lo adopL delegaLed acLs where
Lechnlcal sLandards have been Lhoroughly LesLed and proved Lhelr usefulness ln pracLlce. 1he currenL llsL ln
Lhe proposed publlc procuremenL dlrecLlve lncludes e-submlsslon, e-caLalogues and Lhe means for
elecLronlc auLhenLlcaLlon.

Conslderlng Lhe poLenLlal negaLlve lmpacL of ArLlcle 4, as currenLly drafLed ln Lhe drafL ulrecLlve on e-
lnvolclng ln publlc procuremenL, CpenLCL recommends Lhe Luropean Commlsslon Lo adopL a
uelegaLed AcL Lo supplemenL Lhe Lechnlcal aspecLs relaLed Lo Lhe developmenL of a Luropean sLandard for
Lhe semanLlc daLa model. 1he uelegaLed AcL could also lnclude Lhe guldellnes and reference
lmplemenLaLlons for mapplng Lhe maln e-lnvolclng synLax(es) Lo Lhe Luropean sLandard for semanLlc daLa
model, ln order Lo avold a mulLlLude of varlaLlons ln fuLure e-lnvolclng lmplemenLaLlons, as well as use of
Lransmlsslon proLocols.


9
Directive replacing Directive 2004/18/EC of the European Parliament and of the Council of 31 March 2004 on the
coordination of procedures for the award of public works contracts, public supply contracts and public service contracts.

6

GA H+2$3+%$ -%; I)-;2-#
CpenLCL recommends Lo reduce Lhe LransposlLlon perlod of Lhe ulrecLlve from 48 Lo maxlmum 24
monLhs, based on Lhe CLn Llmeframe Lo develop a Luropean SLandard (see flgure below).

Conslderlng LhaL markeL developmenLs and adopLlon wlll conLlnue over Lhe nexL few years, lL ls lmporLanL
Lo provlde a clear 8oadmap whlch wlll lndlcaLe exacLly Lhe sLeps, Lhe Llmellnes and Lhe expecLed resulLs of
Lhe work requlred Lo develop Lhe Luropean SLandard. lL wlll be equally lmporLanL also Lo communlcaLe
regularly Lhe progress made by CLn, so LhaL Lhe markeL can sLarL plannlng Lhe LesLlng and lmplemenLaLlon
process.





Moreover, slgnlflcanL work already
carrled ouL wlLhln CLn 8ll could
represenL Lhe sLarLlng polnL for
Lhe furLher developmenL of Lhe
Luropean sLandard. 1herefore lL
should be posslble Lo acceleraLe
Lhe Lechnlcal work requlred ln Lhls
conLexL slgnlflcanLly lf CLn
Workshop AgreemenL (CWA)
16362 ls used as basls for Lhe
Luropean SLandard.



JA K-%;-,).= $A:%7)+6+%8 4). *0##3+$.* ,) ,/$ #093+6 *$6,).
8ased on Lhe experlence of counLrles llke norway and uenmark whlch en[oy a very hlgh e-lnvolclng
adopLlon level ln Lhe buslness-Lo-governmenL conLexL, an lmporLanL lesson learned ls LhaL mandaLlng Lhe
recelvlng capablllLles among publlc secLor enLlLles Lo process elecLronlc lnvolces ls noL sufflclenL Lo promoLe
lLs adopLlon. lndeed, a Lwo-sLep approach ls hlghly recommended. lor example, Lhe norweglan
governmenL mandaLed LhaL all cenLral governmenL enLlLles should be able Lo recelve lnvolces ln a sLandard
formaL from 1
sL
of !uly 2011. 12 monLhs laLer only a small number of lnvolces had been recelved. 1hen,
from 1
sL
of !uly 2012 lL became mandaLory for all cenLral governmenL enLlLles Lo requlre Lhelr suppllers Lo
lnvolce Lhem elecLronlcally under all new conLracLs. 14 monLhs laLer, more Lhan 1 mllllon lnvolces had been
recelved. CurrenLly, Lhe number of lnvolces recelved lncreases aL 20-30 per monLh as more conLracLlng
auLhorlLles mandaLe e-lnvolclng from Lhelr suppllers when enLerlng lnLo new conLracLs.

ln uenmark lL became mandaLory for prlvaLe companles Lo lnvolce Lhelr publlc secLor cusLomers
elecLronlcally ln 2003, wlLh an opLlon for SMLs Lo send paper lnvolces LhaL were Lhen scanned and senL
elecLronlcally Lo Lhe publlc secLor reclplenL. 1hls gave a rapld growLh ln number of lnvolces recelved fully
elecLronlcally from 270.000 Lhe flrsL monLh Lo 880.000 per monLh one year laLer.

7

:%,$.)#$.-9+3+,= 4). $A:%7)+6+%8 +% #093+6 #.)60.$2$%, +% '0.)#$
@A 1'L M:: 4). #093+6 #.)60.$2$%, +% '0.)#$
:%,.);06,+)%
1he ob[ecLlve of Lhe CLn 8uslness lnLeroperablllLy lnLerfaces (8ll) for publlc procuremenL ln Lurope
lnlLlaLlve ls Lo provlde a framework for lnLeroperablllLy ln pan-Luropean elecLronlc procuremenL
LransacLlons, expressed as a seL of requlremenLs and Lechnlcal speclflcaLlons, referred as '8ll proflles'.
ln llne wlLh lLs approved buslness plan, Lhe focus of 8ll ls Lo collecL Luropean requlremenLs and Lo provlde
guldance for conslsLenL lmplemenLaLlon of Lhese requlremenLs uLlllzlng exlsLlng lnLernaLlonal
developmenLs, l.e. from un/CLlAC1 and CASlS
u8L. 1he acLual lmplemenLaLlon ls carrled ouL
by Lhe user communlLles and lnlLlaLlves such as
LCL/CpenLCL aL a Luropean level.
1he fundamenLal assumpLlon ln Lhls approach
ls LhaL ln order Lo achleve Lhe goal of
lnLeroperablllLy, several organlzaLlons and
lnlLlaLlves need Lo work LogeLher - each
conLrlbuLlng wlLh Lhelr plece of Lhe puzzle.
1he lllusLraLlon deplcLed here shows Lhe
speclflcaLlon - sLandards - lmplemenLaLlon
eco sysLem. 1o acknowledge and conLlnuously lmprove on how Lhe enLlLles of Lhls eco sysLem are broughL
LogeLher ls key ln securlng Lhe conLlnued success and expanslon of e-lnvolclng ln Lurope.
1).$ .$N0+.$2$%,*
ln Lhe conLexL of 8ll, lL ls recognlsed LhaL Lhe requlred lnformaLlon conLenL of each buslness LransacLlon wlll
depend on Lhe buslness scenarlo ln whlch lL ls applled. lor lnsLance, ln an advanced warehouslng scenarlo
Lhere may be a need Lo provlde very speclflc lnformaLlon elemenLs relaLed Lo Lhe handllng and sLorage of
goods noL generally requlred by all buslnesses. lL ls also recognlsed LhaL wlLh an alm Lo faclllLaLe Lrue
lnLeroperablllLy, Lhere ls a need Lo deflne Lhe mlnlmum seL of lnformaLlon elemenLs for each buslness
LransacLlon LhaL ls useful and undersLandable ln all buslness scenarlos. 8ased on Lhls need Lhe lnformaLlon
8equlremenL Models deflned by 8ll lnLend Lo deflne a core lnformaLlon seL appllcable aL Luropean level.
1hls core seL of lnformaLlon elemenLs wlll Lyplcally supporL Lhe ma[orlLy of user requlremenLs. noL all
requlremenLs perLlnenL Lo lndusLry speclflc needs wlll be covered by Lhe core lnformaLlon elemenLs.
Powever, Lhe core lnformaLlon seL allows for lndusLry speclflc adopLlon uslng Lhe comblnaLlon of
mandaLory /opLlonal elemenLs and resLrlcLlons / exLenslons.
AlLhough Lhe dellverables provlded by 8ll are expecLed Lo be ready for lmplemenLaLlon as Lhey are, Lhe
focus on deflnlng Lhe core lnformaLlon seL also lmplles a recognlLlon LhaL furLher cusLomlzaLlon may/wlll be
requlred by user groups or even lndlvldual users.


8

1'L M:: #.)4+3$* ;$7$3)#$; 4). $A:%7)+6+%8 +% #093+6 #.)60.$2$%,
1he CLn 8ll workshop has a number of dellverables LhaL are relevanL for e-lnvolclng ln publlc procuremenL
and Lhe proposed lnlLlaLlve Lo develop a Luropean SLandard (Ln) for a SemanLlc uaLa Model for a Luropean
Core elnvolce. 1hese dellverables are relevanL noL only for Lhe SemanLlc daLa Model lLself, buL also for Lhe
meLhodology relevanL for lLs developmenL and adopLlon.
8ll dellverable CommenL
CWA16338 Annex 8
8ll Culdellne, CapLurlng Cf 8uslness
8equlremenLs
uescrlbes a meLhodology for how Lo ldenLlfy and descrlbe
buslness requlremenLs.
1hls dellverable ls currenLly under revlew and revlslon ln CLn
WS/8ll3.
CWA16338 Annex C
8ll Culdellne, Conformance And
CusLomlzaLlons
uescrlbes a meLhodology for how Lo adopL and make use of
Lhe 8ll roflles ln a speclflc buslness conLexL, whlle ensurlng
conLlnued lnLeroperablllLy.
1hls dellverable ls scheduled for revlew and revlslon ln CLn
WS/8ll3.
CWA16362 Annex 8
8ll roflle 04, lnvolce Cnly
1hls proflle descrlbes a process comprlslng only a suppller
lnlLlaLed elecLronlc lnvolce. lL ls lnLended Lo supporL use cases
where Lhe lnvolclng ls conveyed ln an elecLronlc formaL, buL
where auLomaLlon of maLchlng lL Lo oLher documenLs ls noL
requlred.
1he lnvolce ls a self-conLalned documenL LhaL adheres Lo
commerclal and flscal requlremenLs.
lL ls noL a prlmary ob[ecLlve of Lhls proflle Lo faclllLaLe
auLomaLlc order maLchlng and/or cosL allocaLlon, Lhe proflle
assumes llmlLed or no procuremenL daLa conLenL and llmlLed
or no allgned and synchronlzed ldenLlflers ln Lhe sysLem Lo
maLch Lhe LransacLlon.
1hls proflle may cover lnvolce facLorlng arrangemenLs buL ls
noL deslgned for self-bllllng.
1he proflle lncludes a semanLlc lnformaLlon requlremenL
model for Lhe lnvolce LransacLlon.
CWA 16362 - Annex C
8ll roflle 03, 8llllng
1hls proflle descrlbes Lhe process LhaL provldes supporL for
Lhe processlng of an elecLronlc lnvolce and, poLenLlally, an
elecLronlc CredlL noLe, or [usL an elecLronlc CredlL noLe. lL ls
lnLended for slLuaLlons where lnvolclng ls elecLronlc buL
where maLchlng of Lhe lnvolce Lo oLher elecLronlc documenLs
may noL be pracLlcal. 1he lnvolce and CredlL noLe are self-
conLalned documenLs wlLh LhaL adhere Lo commerclal and
flscal requlremenLs.
8llllng lnconslsLencles / errors are noLlfled Lo Lhe recelver of
Lhe lnvolce and Lhen resolved by Lhe lssulng of a CredlL noLe
and/or a CorrecLlve lnvolce. 1hls proflle ls also used when a
CredlL noLe needs Lo be exchanged for oLher reasons Lhan for
correcLlng an lnvolce.
lL ls noL a prlmary ob[ecLlve of Lhls proflle Lo faclllLaLe

9

auLomaLlc Crder-lnvolce maLchlng and/or cosL allocaLlon, Lhe
proflle assumes llmlLed or no procuremenL daLa conLenL and
llmlLed or no allgned or synchronlzed ldenLlflers ln Lhe sysLem
Lo maLch Lhe LransacLlon.
1he lnvolce allows for Lhe use of LexL as well as ldenLlflers and
codes. lor example, Lhe lnvolce may conLaln lLems (goods or
servlces) wlLh lLem ldenLlflers as well as lLems LhaL are
referenced uslng free LexL descrlpLlons.
1hls proflle may cover lnvolce facLorlng arrangemenLs. 1hls
proflle can be used wlLh llLLle or no lnLegraLlon Lo L8
sysLems.
1he proflle lncludes semanLlc lnformaLlon requlremenL
models for Lhe lnvolce and credlL noLe LransacLlons.
BA H/$ &'&&"( #.)O$6, -%; "#$%&'&&"(
:%,.);06,+)%
ln 2008, Lhe LCL (an-Luropean ubllc rocuremenL Cnllne) pro[ecL was launched wlLh Lhe purpose Lo
allgn buslness processes uslng common sLandards, address common legal lssues, Lo develop Lechnologles
avallable as open source and Lo creaLe an open and accesslble neLwork LhaL would caLer for a rellable and
secure exchange of lnformaLlon. 1he pro[ecL was co-funded by Lhe Luropean Commlsslon and a
consorLlum of 18 governmenL agencles from 11 Member SLaLes and AssoclaLed CounLrles: AusLrla,
uenmark, llnland, lrance, Cermany, Creece, lLaly, norway, orLugal, Sweden and Lhe unlLed klngdom.
LCL developed Lhe 8uslness lnLeroperablllLy SpeclflcaLlons (8lS) for common e-procuremenL processes
such as e-caLalogue, e-orders, and e-lnvolces Lo sLandardlze elecLronlc documenLs exchanged and valldaLed
Lhrough an open and secure neLwork, beLween sendlng and recelvlng Access olnLs for publlc secLor buyers
and Lhelr suppllers across Lurope. A vlrLual Company uossler was developed for suppllers Lo submlL
company lnformaLlon ln a sLandardlzed 're-usable' formaL, an e-caLalogue for use ln Lhe Lenderlng process,
and a pan-Luropean e-slgnaLure valldaLlon servlce.
ln SepLember 2012, Lhe CpenLCL AssoclaLlon was seL up ln order Lo assume Lhe responslblllLy for Lhe
malnLenance of Lhe LCL speclflcaLlons and Lo promoLe lmplemenLaLlon across Lurope. Members have
Lhe unlque opporLunlLy Lo drlve sLandardlsaLlon, process auLomaLlon and connecLlvlLy across Lurope. ln lLs
flrsL year of operaLlon, over 73 members have [olned from boLh Lhe publlc and prlvaLe secLors ln 18
counLrles, wlLh over 60 LCL Access olnLs esLabllshed.
(+%? 9$,C$$% 1'L M:: #.)4+3$* -%; &'&&"( M:<
Slnce Lhe very beglnnlng of Lhe LCL endeavour, Lhe 8ll and LCL lnlLlaLlves where deslgned Lo
consLlLuLe complemenLary enLlLles.
$%& '(( ls a sLandardlzaLlon lnlLlaLlve focuslng on developlng sLandards, ln Lhe form of CLn
workshop agreemenLs. lLs dellverables are speclflcally LargeLed aL faclllLaLlng elecLronlc
procuremenL and lnvolclng ln Lhe publlc secLor ln Lurope, alLhough Lhey have proven Lo be useful
also ln a number of appllcaLlons ln Lhe prlvaLe secLor.
)%))*+, and now lLs successor, CpenLCL, focus on lmplemenLaLlon and pracLlcal use of Lhe 8ll
dellverables ln cross-border publlc procuremenL ln Lurope.

10

Cver Lhe years, CLn 8ll and LCL have developed a good worklng relaLlonshlp, and also share many of
Lhe same sLakeholders and parLlclpanLs.
&'&&"( M:<P - 6)22)% ;$%)2+%-,). 4). 6.)**A9).;$. $A:%7)+6+%8
ln essence Lhe LCL 8lS provlde Lhe sLakeholders - servlce provlders, sysLems vendors and lndlvldual
organlzaLlons who lmplemenL and provlde LCL servlces - wlLh a seL of elemenLs LhaL leverage Lhe CLn
8ll proflles. 1hese addlLlonal elemenLs wlll gulde lmplemenLers ln Lhelr efforLs. Lxamples of LCL 8lS
elemenLs LhaL complemenL Lhe 8ll proflles are:
- SLyle sheeLs
- 1esL flles
- ConLexL descrlpLlons (process, use cases and examples)
- 8uslness rules
- Message sLrucLure and lnformaLlon conLenL
1he LCL 8lS for a speclflc speclflcaLlon ls also accompanled by an addlLlonal documenL - Lhe
conformance sLaLemenL. 1hls documenL descrlbes Lhe level of conformance wlLh Lhe underlylng 8ll
speclflcaLlon, clearly sLaLlng Lhe devlaLlons from Lhe proflle speclflcaLlons (ln case any exlsL). 1he devlaLlons
mlghL be manlfesLed as resLrlcLlons" or exLenslons". 1he conformance sLaLemenL consLlLuLes an lmporL
elemenL ln Lhe feed-back loop mechanlsm - CpenLCL - CLn, as lL provldes lnpuL Lo Lhe currenL (or
upcomlng) workshop ln Lerms of requlremenLs Lo conslder for fuLure verslons of Lhe 8ll speclflcaLlons.
1he LCL 8lS form Lhe basls for cross border exchange of Lhe lnformaLlon covered by Lhe LCL 8lS seL
of elemenLs - caLalogue, orderlng, lnvolce, despaLch advlce and, laLer Lhe auLumn of 2013, also bllllng
(lnvolce and credlL noLe) and message level response. uslng common speclflcaLlons Lo exchange e-
rocuremenL lnformaLlon across borders offers greaL beneflLs Lo suppllers, buyers and servlces/sysLems
allke.
1he LCL 8lS also forms Lhe basls for naLlonal level adopLlons of Lhe CLn 8ll proflles. 1he norweglan LPl
speclflcaLlons consLlLuLe an example of Lhls, where mlnor adopLlons of LCL 8lS are done Lo caLer for
naLlonal level leglslaLlon and speclflc conslderaLlons. ln Sweden, fuLure naLlonal level speclflcaLlons of Lhe
SWL"-famlly of speclflcaLlons (Swe-lnvolce/SvefakLura, Swe-Crder/Sveorder eLc.) are expecLed Lo be
based on Lhe LCL 8lS.
&'&&"( -;)#,+)% 4). $A:%7)+6+%8 +% #093+6 #.)60.$2$%, +% '0.)#$
1. AusLrla: lrom 2014, elnvolclng Lo Lhe lederal governmenL wlll be mandaLory. use of LCL
speclflcaLlons and neLwork ls one of Lhe Lwo opLlons allowed.
2. uenmark: naLlonal elnvolclng plaLform - nemPandel - (mandaLory slnce 2003) ls LCL enabled.
3. lrance: lrench SLaLe connecLed Lo a LCL Access olnL, uCA (CenLral CovernmenLal rocuremenL
Agency) plannlng deploymenL of LCL e-lnvolclng wlLh local auLhorlLles.
4. lreland: CovernmenL plans naLlonal roll ouL of LCL wlLh 7 acLlve Access olnLs already ln place. llrsL
Lender requlrlng use of LCL lnfrasLrucLure for elnvolclng publlshed ln AugusL 2013.
3. lLaly: lnLercenL-L8 (Lmllla 8omagna) wlLh many PealLhcare auLhorlLles and Lnl lmplemenLlng eCrderlng
& elnvolclng, 1elecom lLalla lmplemenLlng elnvolclng. 8eglon of Lombardla Lo lmplemenL e-Crders wlLh
LCL for all CAs ln Lhe reglon by end 2013 - LCL AuLhorlLy Lo be seL up by 2013. PealLh care
prlvaLe lndusLry already collaboraLlng wlLh Lhe 8eglons Lo be connecLed Lo LCL by end of 2013.

11

6. neLherlands: naLlonal elnvolclng lnlLlaLlve 'Slmplerlnvolclng' plloLed Lhe LCL speclflcaLlons for
elnvolclng ln Lhe 828 and 82C, durlng summer 2013, wlLh successful resulLs. SofL naLlonal roll-ouL Lo be
announced by end of 2013.
7. norway: lrom !uly 2012 elnvolclng Lo Lhe governmenL ls mandaLory, based on LCL speclflcaLlons
and LCL neLwork use was recommended. vasL ma[orlLy of cenLral governmenL organlsaLlons can
recelve LCL-based elnvolces.
8. oland: LCL Lo be parL of Lhe naLlonal e-lnvolclng sLraLegy. ollsh MlnlsLry of Lconomy ln charge of
lmplemenLlng Lhe elnvolclng ulrecLlve ln publlc procuremenL ls Lhe candldaLe LCL auLhorlLy.
9. Sweden: ubllc secLor elnvolclng and eCrderlng mandaLed. LCL speclflcaLlons and neLwork
recommended for cross border use. 1he LCL 8lS lncreaslngly form Lhe basls for Lhe naLlonal level e-
rocuremenL speclflcaLlons. As an example of Lhls, lL should be noLed LhaL Lhe new naLlonal level
uespaLch Advlce speclflcaLlon ls based on LCL 8lS uespaLch Advlce ln lLs enLlreLy.
lL ls noLeworLhy Lo menLlon LhaL CpenLCL AlS8L, ln lLs flrsL year of operaLlons, has recrulLed over 73
acLlve member organlsaLlons across 18 counLrles. Whlle lnlLlally a publlc secLor focused lnlLlaLlve,
CpenLCL members lnclude large global mulLlnaLlonals and a slgnlflcanL number of SMLs from a wlde
range of lndusLrles and secLors.
DA ",/$. +%+,+-,+7$*P QR>S$I5 7*T M::U&'&&"( M:<
:%,.);06,+)%
ZuCle8u ls an lnlLlaLlve wlLhln Lhe Cerman markeL developed as a resulL of cooperaLlon amongsL
"members from Lhe publlc admlnlsLraLlon, Lhree Cerman federal mlnlsLrles, lndusLry assoclaLlons ln Lhe
flnanclal, Lax and sofLware secLors, and oLher organlzaLlons. "

CurrenLly Lhe speclflcaLlons of ZuCle8u are avallable ln Cerman language only, Lhus a deLalled analysls of
all aspecLs of Lhls lnlLlaLlve has noL been posslble. We have been lnformed LhaL Lhe Lngllsh verslon of Lhe
speclflcaLlon wlll be made avallable durlng november 2013.

8ased on Lhe avallable maLerlal lL ls clear LhaL ZuCle8u ls comprlsed of Lwo maln componenLs:
1) a semanLlc daLa model, and
2) a Lechnlcal lmplemenLaLlon (synLax soluLlon) based on sLrucLured xML embedded ln ul
H/$ QR>S$I5 *$2-%,+6 ;-,- 2);$3
1he ZuCle8u daLa model ls sLaLed Lo be based ln Lhe Cross lndusLry lnvolce (Cll) from un/CLlAC1.
Powever an analysls of Lhe maLerlal avallable (hLLp://www.slldeshare.neL/orlolbausa/comparlng-zugferd-
synLax-wlLh-cross-lndusLry-lnvolce-v2) suggesLs LhaL Lhere are slgnlflcanL dlfferences beLween ZuCle8u
and any of Lhe publlcly avallable speclflcaLlons of Cll from un/CLlAC1.
H/$ QR>S$I5 ,$6/%+6-3 +2#3$2$%,-,+)%
1he ZuCle8u Lechnlcal lmplemenLaLlon ls based on lSC 19003-3 (ul/A) where Lhe xML lnvolce daLa ls
embedded ln Lhe ul documenL as an aLLachmenL. AlLhough Lhls may look llke an aLLracLlve soluLlon
(comblnlng Lhe besL of elecLronlc paper and sLrucLured daLa) slmllar funcLlonallLy may be achleved by oLher
Lechnlques, such as xML sLyle sheeLs. 1he use of xML daLa and sLyle sheeL approach ls slgnlflcanLly more
wldespread Lhan use of ul/A for handllng of buslness documenLs. When uslng Lhe ul/A sLandard Lhere ls
also a rlsk for lnconslsLency beLween whaL ls presenLed ln Lhe ul-documenL and Lhe underlylng sLrucLured
daLa. 1hls represenLs a poLenLlal legal uncerLalnLy wlLhln a ul/A approach LhaL does noL exlsL ln an xML
daLa and sLyle sheeL approach.

12

GA 1)%630*+)%*
ln Lhe comlng monLhs lL wlll be crlLlcal for Lhe Commlsslon Lo provlde a clear and conclse 8oadmap of Lhe
comlng leglslaLlve changes and recommendaLlons, parLlcularly durlng Lhls perlod where boLh Lhe prlvaLe
and publlc secLors are lnvesLlng ln and lmplemenLlng elnvolclng soluLlons. 1he markeL should noL need Lo
walL unLll Lhe leglslaLlve and sLandardlsaLlon processes wlll be compleLed.

1he 8oad map should clearly sLaLe LhaL Lhe resulLs of Lhe CLn workshop on 8uslness lnLeroperablllLy
lnLerfaces for publlc procuremenL ln Lurope wlll be used as Lhe basls for Lhe developmenL of Lhe Luropean
sLandard for Lhe semanLlc daLa model. 1hls ls necessary ln order Lo avold LhaL uncerLalnLy could hlnder any
developmenL leadlng Lo a slLuaLlon where Member SLaLes and conLracLlng auLhorlLles wlll noL be able Lo
make declslons on any e-lnvolclng lmplemenLaLlons for Lhe nexL 2-3 years.

lL ls equally necessary LhaL Member SLaLes ask Lhelr conLracLlng auLhorlLles Lo lmplemenL recelvlng
capablllLy for e-lnvolces wlLhln 1 year followlng Lhe publlcaLlon of Lhe Luropean sLandard. Powever, MS
should be free Lo choose Lhe preferred synLax for cross-border and domesLlc e-lnvolclng LransacLlons (or
more Lhan one synLax lf Lhey so deslre), as long as lL ls compllanL wlLh Lhe Luropean sLandard for Lhe
semanLlc daLa model. lL ls lmporLanL Lo clarlfy LhaL LCL has lmplemenLed Lhe resulLs of Lhe CLn 8ll
workshop (CLn 8ll proflles) Lhrough Lhe LCL speclflcaLlons (LCL 8lS), whlch are lmplemenLed ln
several publlc e-rocuremenL sysLems and currenLly used for cross-border, naLlonal and reglonal e-lnvolce
exchanges, uslng Lhe LCL neLwork as Lhe Lransmlsslon channel.

Moreover, experlence ln some member SLaLes has proven LhaL mandaLlng e-lnvolce recelvlng capablllLles
for conLracLlng auLhorlLles can be lneffecLlve unless economlc operaLors are also requlred Lo send
elecLronlc lnvolces Lo Lhelr publlc secLor cllenLs. 1he deadllne for publlc secLor suppllers Lo send lnvolces
elecLronlcally Lo Lhe publlc secLor should be seL wlLhln 1 year followlng Lhe mandaLory deadllne for
conLracLlng auLhorlLles Lo have Lhelr recelvlng capablllLles ln place.
















,-./0 *123)%))*+
As Lhe an-Luropean ubllc rocuremenL Cnllne (LCL) pro[ecL reached a successful compleLlon aL Lhe
end of AugusL 2012, wlLh Lhe LCL speclflcaLlons belng lmplemenLed across Lurope, Lhe CpenLCL
AssoclaLlon, comprlsed of publlc and prlvaLe members of Lhe LCL communlLy, has Laken responslblllLy
for all acLlvlLles prevlously carrled ouL ln Lhe LCL pro[ecL, promoLlng lmplemenLaLlon across Lurope.

lor more lnformaLlon: www.peppol.eu