Purpose
Before every procurement, the contracting authority must review which procurement regime applies. This depends on three variables: the status as a contracting authority (Section 99 GWB), the subject matter of the contract (supplies, services, construction works, concession) and the estimated contract value (Section 3 VgV) in relation to the respective applicable EU threshold. This skill carries out the review in a structured manner and recommends the type of procedure.
Inputs
- Contracting authority (legal form, where applicable public funding > 50%, sector activity under Annex I SektVO)
- Subject matter of the contract (supply service, service, construction service, concession; description)
- Estimated contract term (including extension options)
- Estimated monetary value per year and total value (net)
- Division into lots (planned, number, respective value)
- Any related procurements in the last 12 months (Section 3(6) VgV)
Sub-agent architecture
The researcher supplies the relevant provisions (GWB, VgV / SektVO / KonzVgV / VSVgV, UVgO, VOB/A), the current Threshold Ordinance and the case law on the concept of a contracting authority as well as on the lot allocation rule. The drafter carries out the three-stage review (contracting authority → contract value → type of procedure) in the style of a legal opinion. The reviewer checks whether the thresholds have been correctly assigned, whether the contract value has not been artificially split into lots (Section 3(7) sentence 1 VgV) and whether the recommended type of procedure is tenable.
Procedure
1. Status as a contracting authority, Section 99 GWB
Three-part review:
| Variant | Provision | Content |
|---|---|---|
| Public contracting authority | Section 99 nos. 1–3 GWB | Regional authorities, special funds, legal persons under public or private law with tasks in the general interest, non-commercial, predominantly publicly financed / subject to supervisory control |
| Sector contracting authority | Section 100 GWB in conjunction with SektVO | Activity under Annex I SektVO (water, energy, transport, postal services) |
| Subjective-functional contracting authority | Section 99 no. 4 GWB | Private persons with predominant public construction funding / subsidisation |
CJEU standard on "function in the general interest, of a non-commercial nature": CJEU, judgment of 10 November 1998 – Case C-360/96, BFI Holding (https://curia.europa.eu/juris/liste.jsf?language=en&num=C-360/96); CJEU, judgment of 22 May 2003 – Case C-18/01, Korhonen (https://curia.europa.eu/juris/liste.jsf?language=en&num=C-18/01).
2. Estimation of contract value, Section 3 VgV
Principle of the full-value principle (Section 3(1) VgV): total contract value over the full term, net, including options and extensions.
| Constellation | Provision | Calculation |
|---|---|---|
| Fixed-term contracts ≤ 48 months | Section 3(11) no. 1 VgV | Value of the entire term |
| Open-ended or > 48 months | § 3 (11) no. 2 VgV | 48 times the monthly rate |
| Supply services leasing | § 3 (10) VgV | Total estimated value |
| Framework agreement | § 3 (12) VgV | Estimated total value of all call-offs |
| Lots | § 3 (7) VgV | Total value of all lots; none artificial splitting |
| De minimis clause lots | § 3 (9) VgV | 20% quota / 80% value: small lots < EUR 80,000 (supplies/services) or < EUR 1 million (construction) may be awarded below threshold, provided that ≤ 20% of the total value |
Prohibition of splitting with intent to circumvent § 3 (7) sentence 1 VgV. Criterion functionality test (same procurement subject matter, substantive-temporal connection): cf. BGH, order of 18.06.2012 – X ZB 9/11, NZBau 2012, 715 [unverifiziert – prüfen].
3. Comparison with EU threshold value
Threshold values are adjusted every two years by delegated regulation of the Commission (as of 2024/2025: Regulation (EU) 2023/2497) [unverifiziert – aktuelle Folge-VO prüfen].
Indicative threshold values 2024/2025 (net, check):
| Contract type | Threshold |
|---|---|
| Construction contracts (classic, sectors, concessions) | EUR 5,538,000 [unverifiziert] |
| Supplies/services supreme federal authorities | EUR 143,000 [unverifiziert] |
| Supplies/services other public contracting authorities | EUR 221,000 [unverifiziert] |
| Supplies/services sector contracting entities | EUR 443,000 [unverifiziert] |
| Social and other specific services Annex XIV Directive 2014/24/EU | EUR 750,000 [unverifiziert] |
| Concessions | EUR 5,538,000 [unverifiziert] |
Obligation: check the current status when applying the skill.
4. Choice of procedure type
Above-threshold range (≥ threshold)
Applicable rules:
- VgV for classic contracts of public contracting authorities
- SektVO for sectoral activities (Annex I SektVO)
- KonzVgV for concessions
- VSVgV for defence/security
Procedure types § 14 VgV:
| Procedure | Norm | Requirement |
|---|---|---|
| Open procedure | § 15 VgV | at any time |
| Restricted procedure with call for competition | § 16 VgV | at any time |
| Negotiated procedure with call for competition | § 17 VgV | Conditions § 14 (3) VgV |
| Competitive dialogue | § 18 VgV | Conditions § 14 (3) VgV |
| Innovation partnership | § 19 VgV | innovative service not available on the market |
| Negotiated procedure without competitive tender | Section 14(4) VgV | narrow exceptions (e.g. urgency, exclusive rights) |
Below-threshold sector (< threshold)
- UVgO for supplies and services, insofar as introduced by the Land/Federal Government — observe Land procurement laws
- VOB/A Section 1 for construction contracts
- Principle: public invitation to tender as the standard procedure, restricted invitation to tender and negotiated procedure only where the conditions of the UVgO or VOB/A are met
5. Documentation
Procurement memorandum Section 8 VgV / Section 6 UVgO with justification of the choice of procedure, value estimation and lot decision (Section 97(4) GWB).
Sources and Citation Style
Binding: ../../references/zitierweise.md.
Statute
- Section 99 GWB (Public contracting authority)
- Section 100 GWB (Sector contracting authority)
- Section 106 GWB (threshold values)
- Section 107 GWB (exceptions, in-house Section 108 GWB)
- Section 3 VgV (estimation of contract value)
- Section 14 VgV (types of procedure)
- Art. 4 Directive 2014/24/EU (EU threshold values)
- Regulation (EU) 2023/2497 – delegated regulation adjusting the threshold values
[unverifiziert – Folge-VO prüfen]
Commentaries
- Burgi, Vergaberecht, 4th ed. 2022, Section 13 marginal no. 1 et seq. (contracting authority), Section 17 marginal no. 1 et seq. (contract value)
- Eßer, in: Pünder/Schellenberg, Vergaberecht, 4th ed. 2022, Section 99 GWB marginal no. 10 et seq.
- Ziekow, in: Ziekow/Völlink, Vergaberecht, 5th ed. 2024, Section 3 VgV marginal no. 1 et seq.
- Müller-Wrede (ed.), Beck'scher Vergaberechtskommentar, Section 99 GWB
Case law ([unverifiziert – prüfen in Beck-Online/juris/eur-lex])
- ECJ, judgment of 10.11.1998 – Case C-360/96, BFI Holding (general interest, non-commercial)
- ECJ, judgment of 22.05.2003 – Case C-18/01, Korhonen (subjective-functional)
- BGH, order of 18.06.2012 – X ZB 9/11, NZBau 2012, 715 (contract value, prohibition of splitting)
- OLG Düsseldorf, order of 11.07.2018 – Verg 1/18, NZBau 2018, 638 (lot arrangement)
[unverifiziert]
Output format
SCHWELLENWERT- UND VERFAHRENSPRÜFUNG
Mandat: <…>
Auftraggeber: <…>
Vergabegegenstand: <…>
Stand: <Datum>
I. Sachverhalt
- Auftraggeber: <…>
- Beschaffungsgegenstand: <…>
- Geschätzter Wert (netto, gesamte Laufzeit inkl. Optionen): <EUR>
- Laufzeit: <Monate>
- Lose: <…>
II. Auftraggebereigenschaft (§ 99 GWB)
Subsumtion: <…>
Ergebnis: <öffentlicher AG / Sektor / subjektiv-funktional / keiner>
III. Auftragswertschätzung (§ 3 VgV)
Berechnung: <…>
Lose-Test § 3 Abs. 7 VgV: <Splitting? Bagatellquote § 3 Abs. 9?>
Ergebnis: geschätzter Gesamtwert <EUR netto>
IV. Anwendbare Schwelle
Bezug: VO (EU) <…> [unverifiziert – aktuelle VO prüfen]
Einschlägige Schwelle: <EUR>
Ergebnis: Ober-/Unterschwellenbereich
V. Empfohlene Verfahrensart
Begründung: <§ 14 VgV / UVgO / VOB/A>
Verfahren: <offen / nicht offen / Verhandlungsverfahren / …>
VI. Risiken / offene Punkte
🟢/🟡/🔴
- <Lossplitting-Risiko>
- <Auftraggeberbegriff strittig>
- <Schwellenwert-Stand>
VII. Quellenverzeichnis
<gem. references/zitierweise.md>
Examples
Example — IT service, municipality, 4-year term
Facts: City administration (public contracting authority Section 99 no. 1 GWB) plans licence + maintenance for specialised software, 4-year term, EUR 70,000 net per year.
Contract value estimation: Section 3(11) no. 1 VgV — 4 × 70,000 = EUR 280,000 net.
Threshold: EUR 221,000 (other public contracting authority, service, as at 2024/2025)
[unverifiziert]. Contract value > threshold → above-threshold sector, VgV applicable.Type of procedure: Standard procedure open procedure Section 15 VgV. Negotiated procedure Section 17 VgV only where the conditions of Section 14(3) VgV are met (e.g. conceptual service with prior uncertainty). Recommendation: open procedure, provided the service description can be specified clearly.
Risks / typical errors
- Lot splitting with intent to circumvent § 3(7) sentence 1 VgV → request for review by an unsuccessful bidder likely.
- Outdated thresholds cited → incorrect choice of procedure → annulment by the public procurement tribunal.
- Forgotten extension options in the estimate → actual contract value exceeds the threshold, award below the publication requirement.
- Contracting authority status denied, although predominant public financing > 50% exists — § 99 no. 2 GWB interpreted too narrowly.
- Negotiated procedure without competition for participation § 14(4) VgV without a tenable justification — strict exceptional character.