Why they are different
Law 4412/2016 has two books. Book I covers contracting authorities: ministries, municipalities, hospitals, universities. Book II, transposing Directive 2014/25/EU, covers contracting entities, meaning those operating in defined utility sectors: energy, water, transport, postal services, ports and airports.
The reasoning is that these bodies operate in markets with commercial characteristics, so the legislator gives them more flexibility. See also the glossary entry on the contracting authority.
| Book I, contracting authority | Book II, contracting entity | |
|---|---|---|
| TED threshold, supplies and services | 140,000 euro central government, 216,000 euro other authorities | 432,000 euro |
| TED threshold, works | 5,404,000 euro | 5,404,000 euro |
| Restricted procedure | Only with justification | Freely, as a standard option |
| Negotiated procedure with publication | Only in exhaustively listed cases | Freely |
| Qualification system | Not available | Available: a register of pre qualified suppliers |
The thresholds apply for 2026 and 2027, as set by the Commission delegated regulations. See the update on the new thresholds.
Who they are
- Energy. The distribution network operator, the transmission system operator, the gas supply and transmission companies, and electricity generation and supply companies to the extent they meet the Book II criteria.
- Water. The Athens and Thessaloniki water companies, and the municipal water and sewage utilities for their network activity.
- Transport. The rail infrastructure and project companies, the urban transport operators in Athens, and Attiko Metro for extension works.
- Ports and airports. Port authorities and airport operators.
- Postal services. The national postal operator for the relevant activity.
A critical detail: one body can be a contracting authority for part of its activity and a contracting entity for the rest. A municipal water utility building a supply network acts as a contracting entity, while for its administrative purchases it may fall under Book I. The tender notice always states which book it relies on, and that is the first thing to check.
The CPV codes of utilities
- 31 Electrical machinery and materials. Transformers, switchgear, cables, meters. The core code of energy networks.
- 45 Construction work. Networks, substations, tunnels, lines, pumping stations. The largest by value.
- 50 Repair and maintenance services. Maintenance of networks, rolling stock, fleets and installations, usually on multi year contracts.
- 34 Transport equipment. Rolling stock, buses, special vehicles.
- 42 and 43 Machinery. Pumps, compressors, works machinery.
- 24 Chemical products for water and wastewater treatment.
- 48 and 72 Software and IT services for SCADA systems, telemetry, fleet management and customer service.
- 71 Engineering services for studies, supervision and certification.
The specifics worth knowing
- The qualification system. Many contracting entities keep a register of pre qualified suppliers by category. You register once, after an assessment of technical and financial capacity, and tenders are then addressed to those on the register. If you are not on it, you do not even see the invitation. This is the single most important practical difference from Book I.
- Higher thresholds do not mean less publicity. Below 432,000 euro the entity has wide procedural discretion, but it still registers in KIMDIS whatever falls under it.
- Technical specifications and approvals. Network materials require type approval and testing by the entity itself. Type approval is often slow and is a real barrier to entry.
- Multi year framework contracts. Network maintenance and consumables are usually awarded under framework agreements of three or four years. Lose one and you lose the market for years.
- Payments. Utilities pay from commercial revenue rather than a state budget, so they are usually faster and more predictable than Book I bodies.
Where tenders are published
Tenders above 432,000 euro are published on TED. The entities keep their own procurement pages, which matter more here than elsewhere, because that is where qualification system invitations and below threshold tenders appear. Whatever falls under KIMDIS is registered there, and decisions of entities subject to transparency rules appear on Diavgeia.
For a network supplier, monitoring TED and the entities' own sites is more productive than monitoring KIMDIS alone, the opposite of what holds for municipalities and hospitals.
The GOVADI platform tracks contracting entities separately from contracting authorities, with the correct threshold per body, so the "above threshold" filter does not apply 216,000 euro where 432,000 euro is the rule. Framework agreements are flagged as such, with their expiry date, so you can prepare for the next cycle.
Frequently asked questions
What is the difference between a contracting authority and a contracting entity?
A contracting authority falls under Book I of Law 4412/2016 and means the state and its bodies: ministries, municipalities, hospitals, universities. A contracting entity falls under Book II and operates in utility sectors: energy, water, transport, post, ports. It has higher thresholds and more flexible procedures.
What is the TED publication threshold for a Greek utility?
For Book II contracting entities the threshold is 432,000 euro for supplies and services and 5,404,000 euro for works, for 2026 and 2027. That is significantly higher than the 216,000 euro that applies to municipalities and hospitals.
What is a qualification system and why does it matter to me?
It is a register of pre qualified suppliers by category, kept by many contracting entities. You register once after a capacity assessment and then receive the invitations. If you are not registered you usually do not see the tender at all, so registration is a precondition rather than an option.
Can one body be both?
Yes. The same body can act as a contracting entity for its utility activity and as a contracting authority for everything else. The tender notice always states which book it relies on, and that determines the thresholds and the procedure.
Do utilities pay faster than the public sector?
Usually yes, because they pay from commercial revenue rather than a state budget, so they do not depend on the flow of a grant. The contractual deadline is the same, but in practice it is met more consistently.