Avoid a Four Year Wait: UK Framework Agreements Under PA23

A framework agreement is a contract that lets a public sector buyer award future contracts, called call-offs, to suppliers already appointed to it, without running a full procurement each time. The first thing to check on any framework is which legal regime governs it: the Procurement Act 2023 applies to frameworks awarded on or after 24 February 2025, while anything awarded before that date stays under the Public Contracts Regulations 2015 until it expires. That distinction decides how the framework can reopen, what gets published, and how suppliers get in.

TL;DR:

• Frameworks awarded after February 24, 2025, are governed by the Procurement Act 2023 and can reopen to admit new suppliers during their lifespan.
• Open frameworks under PA23 allow multiple re-evaluation points, providing suppliers more opportunities to join compared to the fixed supplier lists of closed frameworks.
• Success on a framework does not guarantee call-offs; suppliers must verify actual demand and maintain ongoing relationships to secure work.
• The main bottleneck in bidding is retrieving relevant evidence quickly, which structured, tagged libraries and AI support can significantly improve.
• Moving forward, increased transparency and linking through the Central Digital Platform will enable better pipeline visibility, guiding suppliers to more realistic framework opportunities.

Table of Contents

• What is a framework agreement and how does it work?
• PA23 or PCR2015: which rules apply to your framework?
• Closed, open and hosted frameworks: how each one operates
• How do buyers decide when to use a framework?
• How do suppliers get onto a framework, and what does winning actually mean?
• Call-off contracts: award methods, terms and realistic timelines
• A step-by-step checklist for suppliers preparing a framework bid
• How does technology support framework bidding in practice?
• What buyers and bidders should expect next under the Procurement Act 2026
• A faster way to prepare framework bids
• Key primary sources and guidance to consult
• Sources
• FAQ

What is a framework agreement and how does it work?

A framework is not a contract to deliver goods or services. It is a contract that sets out the terms under which a buyer can place orders, known as call-offs, with one or more suppliers over a fixed period. Think of it as a pre-negotiated shortlist with agreed pricing structures, quality standards and terms, ready to be activated whenever a real requirement arrives.

Under section 45 of the Procurement Act 2023, a framework is defined as a contract between a contracting authority and one or more suppliers that provides for the future award of contracts. That single sentence explains why frameworks exist at all: they let a buyer complete the heavy due diligence work, checking financial standing, technical capability, insurance and accreditation, once at framework level rather than repeating it for every single order.

Most frameworks are split into lots, which group similar goods or services (or sometimes specific UK regions) so suppliers can bid for the parts of the framework that suit their capability. A construction framework, for example, might have separate lots for minor works, refurbishment and new build, each with its own supplier list and evaluation criteria.

When you read a framework contract summary for the first time, check these details before anything else:

• The governing regime (PA23 or PCR2015) and the award date
• The maximum term and whether reopening is scheduled
• Which lots exist and what they cover
• Whether call-offs are awarded directly or through a mini-competition
• Any fees or levies charged to suppliers for use of the framework

Frameworks exist because repeat buying is expensive to do properly every time. A council that needs temporary staff, IT support or facilities maintenance dozens of times a year cannot reasonably run a full tender for each instance, so the framework absorbs that administrative cost upfront and lets everyday buying happen faster.

PA23 or PCR2015: which rules apply to your framework?

The date a framework was awarded decides everything else about how it behaves. Frameworks awarded on or after 24 February 2025 sit under the Procurement Act 2023, while those awarded before that date remain governed by PCR2015 for their entire lifespan, even if that stretches into 2027 or beyond. No new frameworks can be established under PCR2015 now that PA23 is in force, though legacy frameworks keep running under the old rules until they expire.

Frameworks awarded before 24 February 2025 remain under PCR2015 for their full term. Frameworks awarded from that date onward fall under PA23, which introduces open frameworks and stricter transparency duties around the Central Digital Platform.

The practical differences matter more than the legal technicality. PCR2015 frameworks are closed by default: once the supplier list is set, no new supplier can join until the framework ends and a fresh one replaces it. PA23 introduces open frameworks, a genuinely new mechanism that allows a framework to reopen and admit new suppliers at set intervals during its life. PA23 also tightens notice and publication requirements, with contract award notices, framework details and modifications all expected to link through the Central Digital Platform, giving suppliers and the public a clearer trail of what has been bought and from whom.

For buyers, moving from a PCR2015 mindset to a PA23 one means rethinking framework design from the outset: will this framework reopen, and if so, on what schedule? For suppliers, it means checking two things before bidding: which regime governs the framework, and whether that framework is open or closed, because that decides whether missing this round is a four-year wait or a much shorter one.

To confirm governance on any live framework, check the contract notice itself, the framework details published alongside it, and the central register entries rather than relying on a supplier's marketing description of "a national framework." Framework operators sometimes describe old PCR2015 frameworks using language that sounds like the newer open model, so verify against the primary notice.

Closed, open and hosted frameworks: how each one operates

Frameworks come in three broad operational shapes, and knowing which one you are looking at changes your entire bidding strategy.

Closed frameworks are the traditional model. A fixed supplier list is set at the start, typically for up to four years, and no new suppliers join during that term. Longer terms are permitted in specific circumstances, usually where the sector demands longer investment horizons (major infrastructure or long-cycle capital equipment), but four years remain the practical default. If you miss the bidding window on a closed framework, you wait for the next generation.

Open frameworks, introduced under PA23, work differently. Rather than a single static list, an open framework is a scheme of successive framework agreements running under one umbrella, with new suppliers able to join at defined reopening points. The rules require reopening at least once in the first three years and at least once in the following five years, across a maximum lifespan of eight years. That gives suppliers who missed the original launch a genuine second and third chance to get on board, which is a meaningful shift from the closed model's all-or-nothing entry point.

Hosted or privately operated frameworks, often run by consultancies or membership bodies on behalf of multiple public buyers, need an extra layer of scrutiny. Governance quality and the strength of the buyer pipeline behind them vary considerably, so check Central Digital Platform notices and any published evaluation reports before committing significant bid resource.

Before engaging with any framework, run through this checklist:

• Confirm the reopening schedule, if any, and when the next entry point falls
• Check for supplier fees or levies and how they are calculated
• Review what amendments the framework permits during its term (added lots, price reviews, extended duration)
• Verify who actually operates the framework and whether it is hosted by a third party
• Look for the maximum term stated in the contract notice, not just marketing copy

How do buyers decide when to use a framework?

Buyers should not default to a framework simply because one exists. The decision starts with a sourcing check: does an existing framework genuinely match the requirement, in scope, lot structure and timing, or would a fresh open procedure serve the requirement better? Many authorities run this through a formal sourcing playbook or a project validation review before committing.

Once a framework is chosen, awarding the actual call-off contract follows one of two routes, and GCA guidance is clear that the choice depends entirely on what the framework's own terms allow:

1. Direct award without further competition, used when the framework's original terms set out enough detail (pricing, specification, service levels) to award straight to the most suitable supplier
2. Competitive selection, often called a mini-competition or further competition, where all capable suppliers on the relevant lot are invited to bid against the specific requirement
3. Publish the resulting contract notice, linking it to the Central Digital Platform so the award is traceable back to the parent framework
4. Record governance evidence, including provenance checks on the framework operator and any fee disclosures, before the call-off is finalised

Pro Tip: Before running a mini-competition, re-read the framework's original call-off procedure clause carefully. Some frameworks specify exact evaluation weightings for further competition; deviating from them, even with good intentions, can expose the award to challenge.

Buyers also carry a governance responsibility that is easy to skip under time pressure: verifying that the framework operator can evidence a real pipeline of call-offs, rather than a framework that exists on paper but rarely gets used. The Framework Practice Guide is explicit that frameworks create efficiency by front-loading due diligence, but that efficiency only pays off if the framework is actively used to deliver real contracts, not left dormant while buyers default to other routes.

How do suppliers get onto a framework, and what does winning actually mean?

Getting appointed to a framework usually means clearing three categories of assessment: legal standing (insolvency checks, conflicts of interest), financial capacity (turnover thresholds, credit checks appropriate to contract value), and technical capability (case studies, methodology, quality accreditations relevant to the lot). Evaluation panels weight these differently by sector, but technical and quality criteria typically carry more weight than price at framework stage, since price often gets tested again at call-off through mini-competition.

Here is the point suppliers most often misunderstand: winning a place on a framework is market access, not a guarantee of work. The Framework Practice Guide states plainly that being on a framework does not guarantee any volume of call-offs, and suppliers should verify the buyer's actual pipeline and the framework's provenance before investing heavily in the initial bid. A supplier can win a framework place and see no call-offs for eighteen months if the buyer's real demand does not materialise as expected.

That reality should shape how suppliers prepare:

• Build a reusable evidence library of past project outcomes, methodologies and client references before the bid deadline, not during it
• Prioritise social value evidence, since it now carries meaningful weight in most public sector evaluations, not just a tick-box section
• Keep accreditation certificates, insurance documents and financial statements current and centrally stored, ready for reuse across multiple bids
• Treat the framework win as the start of business development, not the end of it

Pro Tip: Ask the buyer, where possible, for historical call-off volumes from the previous generation of the same framework. Past spend data is often more revealing than anything in the tender documents about whether a framework is worth your bidding effort.

Once appointed, mobilisation preparation matters. Suppliers who treat their framework place passively, waiting for call-off notices to appear rather than maintaining relationships with likely buyers, tend to see far fewer awards than those who stay visible and responsive throughout the framework's life.

Call-off contracts: award methods, terms and realistic timelines

A call-off is the actual contract for goods or services, awarded under the framework's umbrella terms. GCA guidance confirms that whether a buyer can award directly or must run a further competition depends entirely on the framework's original terms, set when the framework itself was procured.

Direct award works when the framework specification is detailed enough to identify a clear "best fit" supplier without further evaluation, commonly used for standardised goods or well-defined recurring services. Buyers should still document why the chosen supplier and terms represent value for money, even without a formal competition, since that reasoning may be scrutinised later.

Mini-competition runs when the framework requires it, or when the buyer's specific requirement needs more tailored pricing or delivery terms than the framework's baseline allows. All eligible suppliers on the relevant lot receive the same invitation to tender, submit against published evaluation criteria, and receive a standstill period before the award is confirmed, mirroring the transparency expected of a standard procurement.

Typical call-off contracts include:

• A price mechanism tied to the framework's pricing schedule, sometimes with an open-book element for variable costs
• Performance KPIs specific to the requirement, layered on top of the framework's general service standards
• A defined mobilisation period, often two to eight weeks depending on contract complexity, before service delivery begins
• Break clauses or review points aligned to the framework's own term

Realistic timelines vary by route. Direct awards can move from identified need to signed contract within a few weeks. Mini-competitions typically take six to twelve weeks from notice to award once evaluation and standstill periods are factored in, with mobilisation adding further time before delivery actually starts.

A step-by-step checklist for suppliers preparing a framework bid

Suppliers who treat framework bidding as a repeatable process, rather than reinventing their approach each time, consistently submit stronger responses under less pressure. Work through these stages in order.

1. Confirm the governing regime by checking whether the framework notice references PA23 or PCR2015, and note whether it is open (reopening scheduled) or closed
2. Review the reopening schedule and pipeline visibility, checking published spend data or call-off history from any previous generation of the framework
3. Assemble core compliance documents early: financial statements, insurance certificates, relevant accreditations and quality certifications for the specific lot
4. Build your case study and social value evidence bank, matched to the specific evaluation criteria rather than generic company achievements
5. Decide lot strategy carefully, bidding only for lots where your capability and capacity genuinely match, since spreading thin across every lot weakens each individual submission
6. Clarify the pricing mechanism before submitting, particularly how the framework treats rate cards, indexation and any fees or levies payable to the framework operator
7. Plan mobilisation before award, not after, so that a successful bid does not stall while you scramble to resource delivery

How does technology support framework bidding in practice?

The biggest bottleneck in framework bidding is rarely writing quality. It is retrieval speed: finding the right past case study, the correct accreditation certificate, or the exact wording used in a previous winning response, often scattered across shared drives and old email threads. A structured evidence library, where every past submission, accreditation and social value example is tagged and searchable against specific requirement types, cuts that retrieval time dramatically.

A practical workflow looks like this: discover the relevant framework opportunity, map its requirements against your existing evidence library, generate a first draft response grounded in that evidence, run an internal quality check against the scoring criteria, then submit. AI-assisted review at the quality check stage can flag missing accreditations or absent standard clauses before submission, catching the kind of gap that gets a bid rejected on compliance grounds rather than quality.

Bidblock builds its platform around exactly this workflow, using an organisation's own evidence library, past responses and social value case studies to ground AI-drafted content rather than generating generic text from scratch. Bidblock states this approach has delivered a 75% win rate for organisations using the platform. This figure the company presents as its own claim rather than an independently audited industry benchmark.

• Tag evidence by requirement type, not just by past project name, to speed up retrieval under deadline pressure
• Keep social value case studies updated separately from technical case studies, since evaluators increasingly score them independently

Pro Tip: Run your internal QA pass against the actual scoring matrix published in the tender, line by line, rather than a general sense-check. Compliance failures on framework bids are disproportionately caused by missing a specific evaluation requirement, not weak writing.

What buyers and bidders should expect next under the Procurement Act 2026

Transparency is the direction of travel, and it changes more than paperwork. As notices link more consistently through the Central Digital Platform, pipeline intelligence, working out which frameworks actually convert into call-offs, becomes something suppliers can verify rather than guess at. That should shift bidding effort toward frameworks with demonstrable buyer activity.

Open frameworks will likely become the norm for fast-moving sectors like digital services and consultancy, which means suppliers need to plan bidding resource in cycles rather than treating framework entry as a one-off event. Buyers, meanwhile, face growing pressure to justify each framework's existence with a credible call-off pipeline rather than running frameworks that sit largely unused.

My honest read: the frameworks worth chasing are the ones where the contracting authority already publishes a clear intended call-off plan. Everything else is a guess dressed up as an opportunity.

— Syed

A faster way to prepare framework bids

Bidblock gives suppliers something most framework bidders lack: a single evidence library that turns every past submission, accreditation and social value case study into reusable material for the next bid, rather than starting each response from a blank page. Where a traditional approach means rebuilding compliance documents and case studies for every framework round, Bidblock grounds AI-drafted responses in your own historical evidence, which the company reports has delivered a 75% win rate for organisations using the platform.

That matters most at exactly the moments this article has covered: reopening windows on open frameworks, mini-competitions with tight turnaround, and post-award mobilisation where speed decides who actually wins the call-off. Bidblock offers a Free plan alongside Standard at £29 per month, Pro at £79 per month, and Max at £249 per month, scaled to how many tenders and evidence items you manage. If framework bidding currently eats more time than it should, visit Bidblock to see which plan fits your pipeline and start building your evidence library today.

Key primary sources and guidance to consult

Framework rules change with legislation, so working from primary sources rather than secondary summaries matters more here than in most procurement topics.

• Procurement Act 2023, section 45: statutory definition of frameworks and permitted fee arrangements
• Gov: the PA23 transition date and framework mechanics
• The Framework Practice Guide: operational advice for buyers and suppliers
• GCA: How to buy through framework agreements: buyer-side award routes and steps
• NHS framework categories via SBS: a working sector example of framework structure in health procurement

This article is general information, not a substitute for advice from a qualified lawyer. Consult a qualified legal professional about your own circumstances before acting on anything here.

Sources

• Gov
• Gov
• Procurement Act 2023 — section 45 (frameworks)
• How to buy through framework agreements — GCA

FAQ

What is a framework agreement in the UK?

A framework agreement is a contract between a public sector buyer and one or more suppliers that sets terms for future call-off contracts, rather than being a contract for delivery itself. Frameworks awarded from 24 February 2025 fall under the Procurement Act 2023, while older ones remain under PCR2015 until they expire.

Can you provide an example of a framework agreement?

NHS framework categories, published through NHS Supply Chain and SBS, cover areas like medical equipment, facilities services and clinical consumables, with NHS trusts placing call-offs against appointed suppliers as needs arise. Construction, IT services and consultancy frameworks follow the same structure with different lot categories.

Can you provide a list of NHS frameworks?

NHS Supply Chain and SBS publish current framework categories directly on their own sites rather than through a single central list, covering areas from clinical products to corporate services. Checking the SBS framework categories page directly gives the most current listing for a specific sector.

What are the government frameworks?

Government frameworks are agreements set up by contracting authorities, including central departments, the GCA, NHS bodies and local councils, to enable repeat buying without a fresh procurement each time. They range from major cross-government frameworks covering IT and professional services to smaller, sector-specific ones run by individual authorities, and each publishes its own contract notice confirming scope and governing regime.

How much does Bidblock cost for framework bid support?

Bidblock offers a Free plan alongside paid tiers: Standard at £29 per month, Pro at £79 per month, and Max at £249 per month, based on tender volume and evidence library size. Current plan details are available directly on the Bidblock site.