1 
 STATISTICAL REPORT 2 014, 2015 AND  2016   
ON PUBLIC PROCUREMENT  
ACCORDING TO THE  
AGREEMENT ON GOVERNMENT PROCUREMENT  
     
 
Communication by the European Union  
 
The European Union ( EU) is pleased to submit to the GPA Committee its statistical 
report for the  year s 2014, 2015 , and 2016 . For the purpose of this report, and with 
the intention of further increasing transparency by a comprehensive use of 
electronic means, the EU resorts , for the first time, to the opportunity offered by 
Article XVI, paragraph 5 of  the Revised GPA.  
Unlike previous reports, which were based on detailed statistics  regarding  the 
above -thresholds procurement of all administrative levels as well as of Annex 3 
entities (Utilities) , this report contextualises  and complements  the published  
dataset s extracted exclusively from Tenders Electronic Daily  (TED) , the online 
version of the 'Supplement to the Official Journal' of the EU, dedicated to European 
public procurement.   
The EU considers that statistical reports are a crucial element of GPA notification 
policy and of the monitoring of the Agreement . Therefore, the EU opted  to 
accompany the required information about the dataset s and how the se data can be 
used to calculate the government procurement statistics in line with Art icle XVI, 
paragra ph 6 with its own estimat es of the main procurement indicators . 
Both the  TED  dataset s and the EU’s complementary estimates refer to all 
administrative levels covered by the GPA . The EU invites all Parties not to limit 
their  report s to  procurement  at centra l level , but to report  in detail on above -
threshold s procurement  for all administrative levels covered by the GPA , in 
particular at local and regional level, where an important part  of procurement is 
performed . 2 
 1. Dataset s and key figures  
The relevant dat asets on contract award notices registered on the Tenders 
Electronic Daily platform are available under the following link s:  
- TED – contract award notices 2014: 
https://data.europa.eu/euodp/en/data/dataset/ted -
csv/resource/9e3c0d22 -223a -4320 -84f0 -93b9d167595d ; 
- TED – contract award notices 2015: 
https://data.europa.eu/euodp/en/data/dataset/ted -
csv/resource/bb42d08d -554d -42f3 -b4ea -6f2e524cb5c4 ; 
- TED – contract award notices 2016: 
https://data.europa.eu/euodp/en/data/dataset/ted -
csv/resource/35605adc -3185 -4db8 -a84e -d39f017249e1 .  
These dataset s contain  variables that allow the identification of contract award 
notices covered by GPA  for the years 2014, 2015 , and 2016 .  
In eac h .csv file, one compound variable (GPA _coverage)  groups all the information 
needed to identify the contracts covered by GPA. This variable takes five values:   
• 1 – contract award notices covered by GPA. This refers to  contract s above 
threshold awarded  by c ontracting authorities/ entities covered by the EU’s 
GPA schedule , and for goods, services and works covered by the EU ’s GPA  
schedule. In addition,  contracts fulfilling these criteria but lacking a contract 
value or stating an unrealistically low contract value below EUR 4500 in 
TED have been  classified in this category1. 
• 2 – contract award notices issued by entities  not covered  by the EU ’s GPA  
schedule.  
• 3 – contract award notices issued by entities  that are  covered  by the EU ’s 
GPA  schedule, but for which t he goods, services or works concerned are not 
covered .   
• 4 – contracts not covered by GPA because their value is below threshold . 
• 5 – contracts not covered by GPA because the buyer is not a contracting 
authority/entity.  
The above -mentioned variable, as wel l as other  variables linked to GPA coverage 
(whether or not the entity is covered by the EU schedule , and whether the  contract 
is covered ; the main CPV code ; etc.) are presented in a  codebook , along with  
methodological notes . This  is available at:   
 
1 An explanation for this specific aspec t is provided in section 2  of this document Methodological issues  
for the estimated values  3 
 https://data.europa.eu/euodp/repository/ec/dg -
grow/mapps/2019/TED(csv)_data_information_v3.2.pdf . 
A more detailed methodolog ical note can be downloade d at:  
https://data.europa.eu/euodp/repository/ec/dg -
grow/mapps/TED_advanced_notes.pdf . 
Based on the  dataset  referenced above  and the methodology described in s ection 2, 
the following table summarises key figures for the years 2014, 2015, and 2016. For 
ease of reference, and to facilitate an assessment of relevant values over time, also 
figures reported in the EU’s statistical report for 2013 are provided. In thi s regard, 
it should be noted that the figures on covered procurement for the years 2014, 
2015, and 2016 are based on the Revised GPA – in force since 2014 – whereas 
figures up until 2013 were based on the GPA 1994. Among other changes, utilities 
in the  EU railway sector are covered under the R evised GPA, but were not covered 
under the GPA of 1994.  
EU procurement: Key figures in billion 
Euros  2013  2014  2015  2016  
Value of contracts covered by GPA * 303.87  334.94 361.91 402 .60 
Value of contracts above thresho lds * 398.00  412.35  454.89  512. 89 
Estimate of t otal general  government 
expenditures on goods , services  and works  
(excluding utilities)  1880.5  1941.2  2026.5  2008.4  
* EU Member States and EU Institutions  
Contracts covered by GPA  
This  report  presents the va lue of contracts procured in the EU  in the following 
years: 2014, 2015 , and 2016 .  
2014  
In 2014 , the total value contracted by the 28 Member States of the EU and covered 
by GPA was EUR 331 .43 billion. In addition , the EU ins titutions (European Council, 
European Commission  and the European External Action Service ) contracted EUR 
3.50 billion covered by GPA. In total, the contract value covered by GPA in 2014  
was EUR 334.94 billion.  Of the total covered procurement, goods accounted for 
EUR 87 .16 billion, work s for EUR 158 .31 billion, and services for EUR 89 .47 billion. 
The total  value  of covered procurement in 2014  was  10.2 % higher than the total of 
EUR 303.87  billion in 2013  (EU Member States and institutions combined).  
The greatest value of EU contracts cov ered by GPA in 2014  was procured by Annex 
2 entities consisting of bodies governed by public law, local authorities and 
regional authorities: EUR 182.18  billion. Central government entities (European 
Union entities and central government authorities of EU Member States)  
contracted EUR 76.31 billion covered by GPA , and entities operating utilities  in the 
covered sectors  EUR 76.44  billion.  
 4 
 2015  
In 2015 , the total value contracted by the 28 Member States of the EU and covered 
by GPA was EUR 359 .76 billion. I n addition , the EU institutions ( European Council, 
European Commission  and the European External Action Service ) contracted EUR 
2.15 billion covered by GPA. In total, the contract value covered by GPA in 2015  
was EUR 361 .91 billion.  Of the total covered pr ocurement, goods accounted for 
EUR 104.57  billion, works for EUR 143.19 billion, and services for EUR 114 .15 
billion. The total  value  of covered procurement in 2015  is 8.1% higher than the 
total of EUR 334.94 billion in 2014  (EU Member States and instituti ons combined).  
Also in 2015, t he greatest value of EU contracts covered by GPA was procured by 
Annex 2 entities consisting of bodies governed by public law, local authorities and 
regional authorities: EUR 189.99  billion. Central government entities (Europ ean 
Union entities and central government authorities of EU Member States)  
contracted EUR 82.96  billion covered by GPA , and entities operating utilities  in the 
covered sectors  EUR 88.95  billion.  
2016  
In 2016 , the total value contracted by the 28 Member St ates of the EU and covered 
by GPA was EUR 399 .98 billion. In addition , the EU institutions ( European Council, 
European Commission  and the European External Action Service ) contracted EUR 
2.63 billion covered by GPA. In total, the contract value covered by GPA in 2016  
was EUR 402.60  billion.  Of the total covered procurement , goods accounted for 
EUR 1 33.16 billion, works for EUR 160.19  billion, and services for EUR 109 .26 
billion. The total  value  of covered procurement in 2016  is 11.2 % higher than the 
total o f EUR 361.91 billion in 2015  (EU Member States and institutions combined).  
The greatest value of EU contracts covered by GPA in 2016 was  again  procured by 
Annex 2 entities consisting of bodies governed by public law, local authorities and 
regional authori ties: EUR 251.81  billion. Central government entities (European 
Union entities and central government authorities of EU Member States)  
contracted EUR 82.67 billion covered by GPA , and entities operating utilities  in the 
covered sectors  EUR 68.12  billion.  
Contracts a bove threshold s 
The total  value of  above -thresholds procurement s in the EU  is greater than the 
value of contracts covered by GPA .  
One  reason for this difference is that not all procuring entities are covered by GPA. 
In particular, utilities in the fields of gas, coal, oil and gas exploration and extraction 
as well as  postal services are not covered by GPA. Furthermore , Annex 1 and 2 
entities in the fields of water, energy, transport and postal services are not covered 
by GPA  unless they are cove red in the EU Annex 3 . Lastly, not all of the  EU 
institutions are covered by the GPA.  
Another reason  for the higher total value of above -thresholds procurement s in the 
EU is that not all types of contracts are covered by GPA. In particular , the following 
types of contracts are not covered by this report :  5 
 - Service contracts listed in Annex IIB of the 2004  EU Public Procurement 
Directive  (2004/18/EC)  and in Annex XIV of the 2014 one  (2014/24/EU)  
(such as , for example , hotel and accommodation services);  
- Procu rements in the fields of d efence and security (defence material and 
training, ICT, R&D, investigation and security services) by Annex 1 
authorities in the field of defence and security . 
In 2014, the total value of above -threshold s procurements in the EU wa s EUR 
412.35  billion. Thereof, the value of above -thresholds procurements contracted by 
entiti es not covered by GPA was EUR 11 .40 billion. In addition, the value of other 
above -thresholds contrac ts not covered by GPA was EUR 66 .01 billion.  
In 2015, the to tal value of above -threshold s procurements in the EU was EUR 
454.89 billion. Thereof, the value of above -thresholds procurements contracted by 
entities n ot covered by GPA was EUR 16.90  billion. In addition, the value of other 
above -thresholds contracts not covered by GPA was EUR 76 .08 billion.  
In 2016, the total value of above -threshold s procurements in the EU was EUR 
512. 89 billion. Thereof, the value of above -thresholds procurements contracted by 
entities not covered by GPA was EUR 26.69  billion. In addi tion, the value of other 
above -thresholds contracts not covered by GPA was EUR 83.60 billion.  
Estimated total procurement  
The total  volume of the EU  procurement  market , including below -thresholds 
procurements , is estimated using  the total general governmen t expenditures on 
goods , services  and works, excluding utilities2. In 2014 , the  EU procurement 
market is estimated to be EUR 1941  billion , EUR 2026 billion in 2015 , and EUR 
2008 billion in 2016. This represents an increase  of 6.8% compared to the EUR 
1880. 5 billion of 201 3. These figures are based on Eurostat data on government 
expenditures on certain categories of purchases  and are not exactly comparable to 
procurements. For example, these expenditures include direct purchases below 
thresholds (i.e. withou t a formal procurement).   
 
 
2 Due to difficulties t o get a reliable update for the  data on utilities procurement, the estimate of total 
general government expenditures  does not include  utilitie s. However, based on the EU  GPA statistical 
report s for 2012 and 2013 , the volume of utilities procurement  in the EU could be estimated to around 
EUR 600 billion.  6 
 2. Methodological issues  for the estimated values  
Compared to previous report s, this statistical report  for the years  2014, 2015, and 
2016  introduces  several  methodological changes  for the estimation of the 
procurement values . These methodological changes are due to the different  source 
of data used.   
Until 2013 , the main data source were  the statistical reports that EU Member States 
were obliged to compile and submit to the European Commission under the 
previous generation of EU public procurement directives  from 2004 . These  data 
were  complemented with data from  TED  were necessary. With the entry into force 
of the new EU public procurement directives in 2014, the reporting obligation of 
EU Member States was significantly scale d down. Therefore, as of 2014, TED  is the 
only comprehensive and comparable source  of data on public procurement in the 
EU. 
Although the TED data is of reasonabl y good quality regarding  the number of 
contracts  recorded , some challenges  remain  regarding the re porting of contract 
values . These  lead to either a lack of an actual  contract value in the database  or the 
use of an arbitrary low value. While it  is the responsibility of each  individual 
contracting authorities to correctly fill in  the value of all contra cts in TED, t he 
Europ ean Commission and the Member States are working on several actions to 
remediate this situation.  
The lack and manifest incorrectness of some contract values in the 2014 -2016 TED 
data required  the use  of certain  imputation methods . In order to ensure the 
comparability of procurement values over time, the imputation techniques used for 
this report  build upon those applied in previous exercises.   
The following adjustments were performed:  
- Contract award notices  were classified  by GPA cover age (variable 
“GPA_coverage ”), as explained in section  1 of this report. For this 
classification, the following elements were considered : the entity conducting 
the procurement ; the type of good/service/work  acquired  (based on CPV 
codes ); the value of the c ontract.  
- All c ontracts with multiple CPV  (Common Procurement Vocabulary) code s 
were systematically classified as works contracts, wherever one of the codes 
assigned was CPV 45, except for contracts with a  CPV not covered by the 
EU’s GPA schedule  (Annexes 4 to 6).  
- For contracts with missing or arbitrarily low contract values in TED, values 
were imputed , using the same imputation method systematically for all EU 
Member States . The imputed value s are based on the median s of the 
cont ract values per  Member Sta te, GPA annex and per type of contract . 
Whe re a median appeared too high or too low, due to a relatively small 
number of contracts, certain assumption s were made to replace the median  
with more realistic values.  7 
 - Contract values below EUR 4500 were consider ed incorrect/missing and 
therefore imputed using the aforementioned methodology. The reason ing 
underlying this decision is that, while below -threshold contracts can be 
published in TED on a voluntary basis, the administrative work required 
would not be jus tifiable for very  small contracts.  
 
3.  Description of annexes to the report  
For additional transparency, the EU has generated data tables summarising its 
calculations based on the aforementioned methodology. The following tables are 
attached to this repor t: 
- For each of the 28 EU Member States and each of the reporting years (2014, 
2015, 2016), one table summarising the total values of above -thresholds 
procurement, broken down by types of contract ( goods , works, services), 
GPA coverage, and GPA annex.  
- An eq uivalent set of tables summarising the respective values for the 
aggregate of 28 EU Member States.  
- A comparable set of tables summarising the values of above -thresholds 
procurement performed by the EU institutions.