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Title page 1

Contents 7

Foreword 4

Acknowledgements 5

Abbreviations and acronyms 9

Executive summary 10

1. Introduction and project scope 12

1.1. Project background and report structure 13

1.2. Fighting bid rigging in public procurement 15

1.3. International legal instruments to combat collusion 16

1.4. Bid-rigging regulation and enforcement in the six countries 19

1.4.1. Austria 19

1.4.2. Bulgaria 22

1.4.3. Croatia 23

1.4.4. Cyprus 24

1.4.5. Greece 25

1.4.6. Romania 27

References 30

Notes 34

2. Fighting bid rigging through advocacy 36

2.1. Advocacy as a key element of competition law compliance 37

2.2. Key target audiences for bid-rigging advocacy 39

2.2.1. Public procurement officials 40

2.2.2. Private sector 40

2.2.3. Judges 41

2.2.4. Non-competition enforcers 41

2.3. Advocacy forms and mechanisms against bid rigging 42

2.3.1. Guidelines and opinions 43

2.3.2. Capacity building 45

2.3.3. Working groups and exchanges of staff 47

2.3.4. Campaigns: Videos, press campaigns, ads 47

2.4. Key topics for advocacy on fighting bid rigging 49

2.4.1. Provide guidance on identifying bid rigging (red flags) 49

2.4.2. Clarify how to report bid-rigging suspicions 51

2.4.3. Underline how tender design can limit the risks of bid rigging 52

2.4.4. Explain the risk of joint bids and subcontracts hiding bid-rigging conspiracies 53

2.4.5. Discuss when and how colluding bidders can be excluded from procurement procedures (debarment) 55

2.4.6. Encourage use of whistleblowing tools 58

2.4.7. Raise awareness about leniency and its conditions and benefits 59

2.4.8. Promote access to procurement data for cartel detection 61

2.4.9. Inform contracting authorities about their right to seek damages 63

2.4.10. Highlight the value of competition compliance 65

2.4.11. Enhance judicial knowledge on bid rigging and evidence in bid-rigging cases 67

2.5. Conclusions on fighting bid rigging through advocacy 69

References 69

Notes 74

3. Institutionalising co-operation to fight bid rigging 77

3.1. The role and objectives of institutionalised co-operation in fighting bid rigging 78

3.2. Formal and informal co-operation mechanisms 78

3.3. Lessons from fact-finding meetings on co-operation 79

3.3.1. Austria 79

3.3.2. Bulgaria 80

3.3.3. Croatia 81

3.3.4. Cyprus 82

3.3.5. Greece 83

3.3.6. Romania 84

3.4. Conclusions on fighting bid rigging through institutional co-operation 85

Notes 85

Annex A. Overview of project activities 87

Tables 38

Table 2.1. Competition advocacy against bid rigging: Categories and examples 38

Figures 8

Figure 1.1. Number of bid-rigging cartel decisions, 2021-2023 14

Figure 2.1. Bid-rigging detection list at a glance 51

Figure 2.2. Tender design checklist at a glance 53

Figure 2.3. Number of leniency applications, 2015-2023 59

Boxes 8

Box 1.1. European Commission case example: Military hand grenades cartel 19

Box 1.2. Construction as a sector prone to bid rigging: Enforcement experiences from Austria 21

Box 1.3. Importance of co-operation with contracting authorities: Experience from ongoing bid-rigging investigations in Bulgaria 23

Box 1.4. Enforcement experience from Croatia 24

Box 1.5. Construction as sector prone to bid rigging: Enforcement experiences from Greece 26

Box 1.6. Bid-rigging cases in the natural gas sector: Experiences from Romania 28

Box 2.1. The political visibility of bid rigging: The case of France 39

Box 2.2. Co-operation with non-competition enforcers in action: The Exotic Fruit cartel case and Ships Waste Oil Collector judgements 42

Box 2.3. Guidelines as a key channel for bid-rigging advocacy: The case of Spain 43

Box 2.4. Joint opinions by competition and procurement authorities, and ad hoc advice: The case of Romania 44

Box 2.5. Good practice in tender design: CNMC's advisory role 45

Box 2.6. UK CMA's e-learning module on bid rigging 47

Box 2.7. Raising awareness through video campaigns: Examples from Canada, the United Kingdom, Austria, Greece and the OECD 48

Box 2.8. Advocacy on joint bids: The Danish joint bidding guidelines 55

Box 2.9. The European Commission's Notice on tools to fight collusion in public procurement and on guidance on how to apply the related... 56

Box 2.10. Considerations for bidder exclusion 57

Box 2.11. Greece's dedicated whistleblowing platform for contracting authorities 59

Box 2.12. Advocacy on leniency: Good practice example from Austria 61

Box 2.13. How to build procurement databases from a competition enforcement perspective 62

Box 2.14. Promoting damages claims by contracting authorities: The Catalan Competition Authority 64

Box 2.15. The CatSalut damages claim in the Spanish "adult diapers" cartel 65

Box 2.16. Designing effective compliance programmes 66

Box 2.17. Key EU case law on evidence and scope of responsibility in bid-rigging cases 68

Annex Tables 7

Table A A.1. Project workshops 87

Table A A.2. Fact-finding interviews 88

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