Maximising Social Impact: A Comprehensive Guide to the National TOMs

The National TOMs has become a familiar framework for organisations measuring social value, particularly where social value commitments form part of public sector procurement.

Now referred to as the Social Value TOM System, TOM stands for Themes, Outcomes and Measures. The framework gives organisations a structured way to identify, measure and report the social value created through contracts and other activities.

In this guide, we'll explain how the TOM System works, how it can appear in public sector tenders, the types of commitments suppliers may be asked to make, and how to build a credible response that can be delivered and evidenced.

What is the National Themes Outcomes and Measures (TOMs) Framework?

The framework commonly known as the National TOMs is now referred to by Social Value Portal as the Social Value TOM System. It provides a standardised approach to recording and reporting social value and is used across public, private and third-sector organisations.

The system is built around Themes, Outcomes and Measures. Its current four themes are:

• Work: providing opportunities
• Economy: driving inclusive growth
• Community: empowering communities
• Planet: environmental stewardship

Within each Theme sit Outcomes describing the benefits an organisation wants to achieve, supported by Measures that quantify the activities used to deliver them.

The TOM System continues to evolve, so avoid relying on a fixed number of measures or an old TOMs spreadsheet when preparing a tender response. Always work from the version, calculator or schedule supplied by the buyer.

An awarding body may use a social value calculator or spreadsheet to put a financial value against proposed commitments. If one is provided with the tender, follow the buyer's instructions carefully and make sure the commitments entered into the calculator match those described in your written response.

There is no universal wording for social value tender questions. The buyer may select particular TOM measures, ask for a written delivery plan or combine quantitative and qualitative assessment.

For more practical advice on structuring the written element, see our guide to answering social value tender questions.

Themes: A framework for social progress

Themes serve as the bedrock of the National TOMs and cover a spectrum of critical elements according to social value and impact. From fostering fair employment practices to championing environmental sustainability, the National TOMs identifies thematic areas that require attention and action. The current TOM System groups social value activity under four broad Themes: Work, Economy, Community and Planet.

The themes act as a structured roadmap for organisations, allowing them to chart their course toward achieving social progress. By highlighting these thematic areas, the National TOMs compels organisations to consider the broader implications of their procurement decisions. In essence, themes create a structured approach that is integral to realising the overarching goal of public procurement – to foster a more equitable, sustainable, and socially responsible society.

Outcomes: The desired impact

Within the National TOMs, the "Outcomes" component takes centre stage, setting out the desired impact of procurement decisions. It provides a clear path for organisations to outline the specific changes and improvements they intend to effect through their procurement processes.

The emphasis on creating social value is a hallmark of this component. It underscores that procurement decisions should not merely be transactional but should also focus on generating positive, meaningful outcomes for society. By specifying the intended results and effects of procurement activities, the National TOMs aligns public sector organisations with a broader purpose of social betterment.

Measures: Assessing and enhancing impact

To make a tangible difference, measuring and evaluating the impact of procurement decisions is crucial. The "Measures" component of the National TOMs is dedicated to this critical task. It involves the systematic collection, analysis, and reporting of data to assess the actual social impact stemming from procurement choices.

These measures serve as the compass guiding organisations to enhance their social value over time. By quantifying and scrutinising the outcomes of their procurement decisions, organisations can not only track their progress but also make informed decisions for continual improvement. The "Measures" component, therefore, forms an indispensable part of the National TOMs, ensuring that the system remains a dynamic force for positive social change.

Many TOM measures can be assigned a financial proxy value, allowing different types of activity to be expressed through a common Social Value £ figure. The underlying commitment still needs to be relevant, achievable and supported by a credible delivery plan.

The Significance of the National TOMs in Public Procurement

Public procurement is more than a simple transaction; it holds the potential to shape societies and influence the environment.

Catalysing Social Value

At its core, the National TOMs serves as a catalyst for fostering social value within public procurement. It acts as a guiding framework, encouraging organisations to integrate ethical and sustainable practices into their procurement processes. In doing so, the National TOMs empowers organisations to go beyond mere transactional exchanges and consider the broader implications of their actions. This shift towards responsible procurement yields numerous benefits, not only for the organisations involved but also for society at large.

One of the most compelling aspects of the National TOMs is its emphasis on ethical and sustainable practices. By urging organisations to prioritise fair employment practices, environmental sustainability, and other critical social values, it paves the way for stronger, more resilient communities.

Ethical procurement practices, for example, lead to fair wages and improved working conditions, directly benefiting workers and their families. Sustainable procurement decisions help protect the environment, reducing the carbon footprint and preserving precious resources for future generations.

Turning Commitments into Measurable Outcomes

One of the main advantages of the TOM System is that it gives buyers and suppliers a common structure for discussing social value.

Instead of simply promising to "support local employment" or "benefit the community", a supplier can identify a specific activity, set a target and establish how delivery will be measured. This makes social value easier to evaluate during procurement and easier to monitor once the contract is live.

For suppliers, that makes realistic target-setting particularly important. A commitment made to strengthen a tender may later become a contractual obligation, so the people responsible for delivery should be involved before targets are submitted.

Thornton & Lowe: Developing Strong Social Value Responses

Effective social value responses are essential for winning bids, particularly with the increasing focus on the TOM System. Thornton & Lowe supports you in developing impactful social value content that aligns with the buyer’s expectations and demonstrates your commitment to social impact.

• Tailored responses – We develop clear, measurable, and relevant social value commitments that resonate with buyers.
• Expert understanding of TOMs – Our team ensures your responses are fully aligned with national TOMs, helping you maximise scoring.
• Aligning with client priorities – Ensuring your social value approach is tailored to each buyer’s unique goals and requirements.
• Demonstrating real impact – We help you showcase the tangible benefits your business will bring to the community and the environment.
• Improving your scoring potential – Focusing on highlighting how your social value initiatives will contribute to the overall success of the project.

Whether you're developing a social value response or need guidance on national TOMs, Thornton & Lowe provides the support you need to win more contracts. Get in touch today to find out how we can help.

Tips to Boost Social Value

Boosting social value through procurement practices is not only a responsibility but also an opportunity to make a meaningful impact on society and the environment. Here are some tips to enhance social value in your procurement processes:

1. Research the buying authority’s interests and initiatives: Buying organisations seek to partner with suppliers who they can trust to echo their commitments and values throughout the contract lifetime. To present your organisation as most closely aligned with the buyer’s social value interests, research their Social Value Policy and charity initiatives to help align your commitments to their hot issues. Where the buyer has specified particular TOM measures in the tender documents, those requirements should take priority over a generic list of initiatives your organisation has used elsewhere.

2. Measure and report social impact: Effective measurement and reporting are crucial for tracking and demonstrating your commitment to social value. Invest in tools and resources that help you collect and analyse data effectively, such as free membership to the Social Value Portal. Establish how evidence will be collected before making the commitment. This can include employment records, training data, supply chain information, environmental reporting or evidence supplied by delivery partners, depending on the measure.

3. Engage your workforce: Your employees are a valuable resource for boosting social value. Incorporate them into your social value initiatives by providing training and awareness programs. Educating your workforce on the principles of responsible procurement and its positive impact on society can help create a culture of responsibility within your organisation.

4. Stay informed and adaptive: The field of socially responsible procurement is constantly evolving. Stay informed about emerging trends, best practices, and innovations in the industry. Be prepared to adapt your strategies to align with the changing landscape. This adaptability allows your organisation to remain at the forefront of social value practices, maximising your positive impact and boosting your quality scoring.

5. Set clear goals and targets: Establish clear and measurable social value goals for your procurement practices. Outline specific targets and Key Performance Indicators (KPIs) that align with the TOM measures specified by the buyer or other relevant social value requirements. Having well-defined goals provides a clear path to social progress and allows you to track your organisation's success in achieving them.

6. Prioritise diversity and inclusion: Diversity and inclusion are key aspects of boosting social value. Prioritise procurement practices that promote equal opportunities for marginalised and underrepresented groups. Encourage diverse supplier networks and ensure that procurement decisions foster inclusion, thus contributing to a more equitable society.

7. Foster innovation: Innovation can be a powerful driver of social value. Encourage your suppliers and internal teams to develop innovative solutions that address social and environmental challenges. Embrace new technologies, processes, and strategies that enhance your ability to make a positive impact.

Best Practices for the National TOMs Framework

Adopting best practices is paramount in maximising the positive impact of the TOM System. Here, we collated essential best practices that help ensure a smooth and effective implementation of the National TOMs.

1. Regular impact assessment: Frequent impact assessments are crucial for gauging the effectiveness of your procurement decisions in achieving social value. By conducting these assessments at various stages of the procurement process, you can identify areas for improvement and make necessary adjustments. Regular impact assessments keep your organisation on track towards fulfilling TOMs commitments.

2. Ongoing stakeholder engagement: Engaging with stakeholders, including suppliers, employees, and the community, is essential for successful National TOMs implementation. Regular communication with these groups ensures that your procurement decisions align with their expectations and values. Stakeholder engagement also provides valuable insights and promotes transparency, which is a central theme of the National TOMs.

3. Long-term commitment: Realising the full potential of the National TOMs requires a long-term commitment. Social impact and responsible procurement are not one-time initiatives but ongoing processes.

4. Robust data collection and reporting: Accurate and transparent data collection is at the core of the National TOMs. Implement systems and procedures for collecting and reporting data on the social impact of your procurement decisions. Ensure that you have the capabilities to measure the effects of its actions and report on progress toward achieving desired outcomes.

5. Supplier collaboration: Collaborate closely with suppliers who share your commitment to social value and the principles of the National TOMs. Engage in dialogues, set expectations, and work together to enhance ethical and sustainable procurement practices. Building strong relationships with socially responsible suppliers can significantly boost your ability to achieve the desired social outcomes.

6. Awareness and training: Create a culture of responsibility within your organisation through awareness and training programs. Employees should understand the principles of the National TOMs and their role in ensuring compliance and contributing to social value. Training programs can include workshops, online courses, and informative materials.

7. Adaptation and innovation: Stay informed about emerging trends and innovations in the field of socially responsible procurement. The landscape is continuously evolving, with new technologies and strategies becoming available. Be ready to adapt your organisation's procurement strategies to align with these changes and embrace innovative solutions that enhance social value.

8. Additionality and attribution: Your proposed social value should be additional to core contractual requirements, legal obligations and normal business-as-usual activity where required by the methodology. You should also be able to establish which organisation, contract or activity the reported value belongs to. Be particularly careful where delivery involves subcontractors or partners so that the same impact isn't claimed more than once.

Does the National TOMs Framework have any Challenges?

The TOM System gives organisations a structured way to measure social value, but developing, tracking and evidencing commitments can still create practical challenges for suppliers. Overcoming these hurdles is essential to successfully implement the National TOMs and maximise its positive impact.

One of the primary challenges when adopting the National TOMs is resistance to change within an organisation. Businesses, especially those who are accustomed to traditional procurement practices, may be hesitant to embrace a new system. Overcoming this resistance requires effective change management strategies, clear communication about the benefits of the National TOMs, and training programs to ensure businesses are confident in their ability to navigate the new system.

Similarly, supply chains are often complex and involve numerous suppliers, making it challenging to trace the origins of products and services. The National TOMs emphasises ethical and sustainable sourcing, which can be complicated in such complex supply chains. Organisations may need to invest in advanced tracking systems and work closely with suppliers to ensure compliance with ethical and environmental standards.

How to Overcome National TOMs Challenges

Many organisations struggle with gathering the necessary data, especially when dealing with multiple suppliers and disparate systems. Overcoming this challenge involves investing in data collection tools and integrating them into procurement processes. Additionally, setting clear data collection standards for suppliers and ensuring data accuracy is vital.

Implementing the National TOMs effectively requires dedicated resources, including time, personnel, and budget. Some organisations may face constraints in allocating these resources. To overcome this challenge, organisations can consider phased implementations, starting with a smaller subset of procurement categories and expanding gradually as resources become available.

Achieving the desired social outcomes often depends on the commitment and cooperation of suppliers. Some suppliers may not initially align with the principles of the National TOMs, making it challenging to establish the necessary partnerships. Overcoming this challenge involves open dialogues, setting clear expectations, and potentially seeking out alternative suppliers who share the commitment to social value.

Measuring the social impact of procurement decisions can be a complex task, and organisations may lack the expertise to carry out these measurements effectively. Overcoming this challenge requires investing in tools and systems that simplify impact measurement and collaborating with experts in the field to establish reliable measurement practices.

We can help with The National TOMs framework - get in touch and let us be the voice that helps you to boost your social value offering today.

The Procurement Act, TOMs & Social Value in Tenders

The Procurement Act 2023 provides the wider framework for much of public procurement in England, Wales and Northern Ireland, while social value can continue to form part of how contracting authorities design and evaluate procurements.

The TOM System isn't mandated by the Procurement Act. It is one method buyers can use to structure and measure social value, alongside their own policies and other frameworks. The approach used will therefore depend on the contracting authority and the specific procurement.

Central government suppliers should also be aware of the new PPN 026 Social Value Model, which applies to relevant procurements commencing from 1 January 2027. The new government model focuses on Good Jobs and Skills and shouldn't be confused with the TOM System.

For the wider policy background, see our guide to social value in tenders. We also explain the practical differences in our guide to the Social Value Model vs TOMs.

A Guide to Implementing the National TOMs in Your Organisation

Want to get started with the National TOMs but feeling a bit lost? No worries, here's a straightforward guide to help you implement the framework in your organisation and smash your social value goals.

1. First things first, get to know the ins and outs of the National TOMs Framework. It's like a trusty road map that helps you measure and justify your social value impact.
2. Identify the areas most relevant to your organisation and the buyer. The current TOM System is structured around four themes: Work, Economy, Community and Planet. You don't need to pursue activity under every theme. Focus on areas that align with the buyer's priorities, the contract and what your organisation can genuinely deliver.
3. Now that you know what you want to focus on, it's time to set some clear, quantifiable targets. The National TOMs has a handy list of measures you can use to get started.
4. Implementing the National TOMs as part of a contract delivery is a team effort. Make sure to involve your employees, suppliers, and community partners in the process. Having their support will make a world of difference.
5. Put some systems in place to gather and track data related to your social value outcomes. Use this data to keep tabs on your progress, figure out where you can improve, and showcase your impact.
6. Don't be shy about your social value achievements! Regularly report on your performance using the National TOMs framework and share your progress with both internal and external stakeholders. It makes great evidence for future bids!
7. Use the insights you've gained from your data to fine-tune your social value strategy over time. Stay in the loop with best practices and emerging trends to make sure you're always at the top of your game.

How to Demonstrate Social Value in Bids

For suppliers bidding for public sector contracts, social value can make a meaningful difference to the outcome of a tender. The weighting and evaluation method vary between procurements, so always check the buyer's scoring criteria rather than assuming a standard percentage applies.

Writing a social value response that feels credible and addresses the buyer's priorities isn't always straightforward. It's easy to overpromise, undersell your existing capability or focus on initiatives that aren't particularly relevant to the contract.

Step 1: Choose the Right Social Value Commitments

Every bid is different, so you need to tailor your TOMs commitments to the buyer. A council contract for facilities management, for example, may focus on local employment and SME engagement, while a government IT contract might prioritise digital skills training and carbon reduction.

How to find the right focus:

• Check the tender documents and any TOM measures supplied.
• Review the buyer's social value policy or strategy.
• Look at the buyer's published priorities, contract notices and relevant procurement documents.
• Consider what your organisation can realistically deliver through this specific contract.

💡 Example: If a council is prioritising employment, focus on local jobs and apprenticeships. If they are pushing for net zero, highlight carbon reduction and sustainable supply chains.

Step 2: Be Specific and Measurable

One of the biggest mistakes in social value responses is being too vague. Buyers don’t want generic promises—they want clear, measurable commitments that they can track.

Instead of this:
❌ “We are committed to supporting local employment.”

Write this:
✅ “We will recruit three full-time employees from the local area within six months. We will partner with [local job centre] to source candidates and provide training before they start.”

Why this works:
✔ It gives numbers – "three full-time employees" is clear and measurable.
✔ It has a timeframe – "within six months" shows when it will happen.
✔ It explains delivery – "partner with [local job centre]" gives credibility.

Buyers want to see that you’ve thought through the practicalities, not just thrown in a commitment to boost your score.

Step 3: Show How You’ll Deliver and Measure Your Commitments

Making a promise in a bid is one thing—delivering on it is another. Buyers want to know how you will put your commitments into action and how you will track and report progress.

Example:
"We will create five apprenticeship roles for long-term unemployed individuals within the first 12 months of the contract. We will:*

• Work with [local training provider] to identify candidates.
• Assign a mentor to each apprentice to support their development.
• Report progress quarterly to the buyer, tracking retention and training hours delivered."*

Why this works:
✔ It details who is involved (training provider, mentor).
✔ It shows accountability (quarterly reporting).
✔ It proves it can be tracked (retention, training hours).

If you’re committing to social value, you need to back it up with a plan.

What a Strong TOMs Bid Response Looks Like

A well-structured social value response should follow this flow:

📌 Example Bid Question: How will your organisation create local employment opportunities as part of this contract?

Strong response:
"We will create three full-time roles for unemployed residents within the contract’s first six months. To ensure successful recruitment and retention, we will:*

• Partner with [local job centre] and [training provider] to find suitable candidates.
• Provide a two-week pre-employment training programme.
• Assign mentors from our existing workforce to support new hires.
• Track and report employment outcomes to the buyer every quarter."*

This response is specific, practical, and credible - exactly what buyers look for. If the tender also includes a TOMs calculator or workbook, make sure the quantities in your written response match the commitments entered into it.

Common Challenges (and How to Overcome Them)

Many suppliers find TOMs responses difficult. Here’s why—and how to fix it.

🚧 Challenge: Not Sure What Social Value to Offer
📌 Fix: Start with the buyer’s priorities. If their tender doesn’t specify, research their public commitments and past contracts to see what they value most.

🚧 Challenge: Overpromising Social Value Commitments
📌 Fix: Only commit to what you can realistically deliver. Buyers will check delivery, and failure to meet commitments can affect contract renewals and future opportunities.

🚧 Challenge: Struggling to Measure and Track Social Value
📌 Fix: Use simple tracking methods, such as:

• Keeping a log of apprentices hired or local suppliers used.
• Submitting quarterly reports with data on employment, training, or environmental impact.
• Assigning a social value lead within your team to oversee commitments.

Buyers aren’t just looking for good intentions—they need to see practical follow-through.

National TOMs: FAQs for Suppliers Bidding in the Public Sector

1. What are the National TOMs? The National TOMs is the former and still commonly used name for the Social Value TOM System, a framework for recording and reporting social value. TOM stands for Themes, Outcomes and Measures.
2. As a public sector supplier, do I need to use TOMs? Only where the buyer requires it, or where you've chosen to use the framework for your own measurement. Not every public sector organisation uses TOMs, so follow the tender documents and the buyer's social value requirements.
3. How do I get started with TOMs? Start with the buyer's requirements. If a TOMs schedule or calculator has been supplied, review the selected measures, identify those relevant to your organisation and agree realistic commitments with the teams responsible for delivery.
4. What if I'm not sure how to measure my social value? Check the definition, unit and evidence requirements for the relevant measure. Make sure you understand what is being counted and how you will provide evidence once delivery begins.
5. Do I need to report on every single measure in the National TOMs? No. Where a buyer has selected particular measures, follow its instructions. More generally, focus on activity that is relevant and achievable rather than trying to make commitments against as many measures as possible.
6. How often should I report on my social value? Follow the contract requirements. Reporting may be monthly, quarterly, annually or at another agreed interval depending on the buyer and contract.
7. What if I'm not hitting my social value targets? Raise potential delivery issues early and work with the buyer on an appropriate response. Good internal monitoring should help identify problems before a formal reporting deadline.
8. Can I use the National TOMs even if the public sector organisation doesn't ask for it? You can use the TOM System internally to help measure and understand social value. For the tender itself, however, make sure your response follows the buyer's specified evaluation framework rather than introducing a different methodology unnecessarily.