What does bill of quantities mean?
The bill of quantities (Leistungsverzeichnis, LV) is a central document in public procurement. It describes all the work to be performed under a contract in individual items. Each item contains a precise description of the required work, the quantity and the unit in which it is invoiced. Bidders calculate their unit prices and total prices based on these items.
In construction, the bill of quantities is often structured according to the system of the standard specification book (STLB-Bau) and provided in GAEB format. For supplies and services, there are fewer standardized formats, although the structure generally stays similar. A well-structured bill of quantities distinguishes between basic items, alternative items, contingency items and on-demand items. A clear division into titles, sections and items makes the bids received easier to compare.
Preparing the bill of quantities is the responsibility of the contracting authority or the specialist planners it engages. The requirement of product-neutral tendering must be observed: work must generally be described in a way that does not favor a particular product or manufacturer. Deviations from this principle are allowed only in justified exceptional cases and must carry the addition "or equivalent".
Relevance for bidders
For bidders, the bill of quantities is the most important document for preparing a bid. It defines the exact scope of work and forms the contractual basis for later performance. A careful review of every single item is essential, because missing or incorrectly priced items can lead to significant economic risks.
Bidders should check the bill of quantities for completeness and plausibility. If anything is unclear or contradictory, it is advisable to send bidder questions to the awarding office (Vergabestelle) early. Errors in the bill of quantities can in some cases also lead to the procurement procedure being canceled, which is why early communication is in the interest of everyone involved.
Legal framework
The requirements for the specification are governed by various provisions. Above the thresholds, the relevant provisions are in Sections 121 and 122 GWB (German Act against Restraints of Competition) and Sections 28 to 34 VgV (Public Procurement Ordinance). For construction work, the rules of the VOB/A (Construction Contract Procedures, Part A) apply, in particular Section 7. Below the thresholds, Section 23 UVgO (Sub-Threshold Procurement Rules) governs the requirements for the specification. As a general rule, the work must be described clearly and exhaustively, so that all bidders must understand the description in the same way.