Shortlisting

Shortlisting is the second phase of a two-stage selection process: first, suppliers are assessed against minimum pass/fail thresholds; second, those that pass are scored against additional criteria to produce a ranked list from which the buyer selects the number of tenderers it wishes to invite. Shortlisting is most commonly used in restricted procedures, competitive dialogue, and competitive procedures with negotiation, where managing the number of tenderers is a practical necessity for a complex or time-intensive evaluation.

What is Shortlisting?

Under Article 65 of Directive 2014/24/EU, contracting authorities conducting a restricted procedure may limit the number of candidates they invite to submit tenders. The number invited must be sufficient to ensure genuine competition, and the directive requires a minimum of five candidates (unless fewer have qualified). The maximum number to invite must be stated in the contract notice.

Shortlisting works as follows: the contracting authority publishes its selection criteria, including the minimum thresholds that all suppliers must meet (pass/fail) and, where applicable, the additional scored criteria that will be used to rank suppliers that pass. Common scored criteria at the shortlisting stage include:

Quality and relevance of references. Not just whether references are provided, but how comparable they are to the contract in scope, scale, complexity, and sector.

Depth of technical capability. For example, the number of qualified staff in a specific discipline, or the breadth of geographic coverage.

Degree of management system maturity. Evidence of how well-embedded quality, environmental, or information security systems are in practice, rather than simply whether certification exists.

Capacity and resource availability. Evidence that the supplier has sufficient uncommitted resource to take on the contract without overextending.

Shortlisting scores must be calculated in advance of reviewing submissions and applied consistently. If thirty suppliers pass the minimum thresholds and the buyer intends to invite eight, the top eight scorers are invited and the others receive a notification of non-selection with feedback explaining how they performed.

In the UK, shortlisting is used in similar multi-stage procedures and is subject to the same transparency and consistency requirements under the Procurement Act 2023. Buyers must tell unsuccessful candidates their score and the range of scores achieved by selected candidates.

Why Shortlisting Matters for Bidders

Passing minimum selection criteria is not the same as being shortlisted. A supplier that barely meets the turnover threshold and provides adequate but undifferentiated references may pass the pass/fail gate but score in the lower half of the shortlisting ranking and receive no invitation to tender. Understanding that shortlisting is a competitive scoring exercise, not just a compliance check, changes the approach to PQQ or SQ preparation.

Strategies for improving shortlisting scores include: selecting the most comparable and strongest references available, providing quantified evidence of impact and outcomes, and ensuring that descriptions of past work match the language and priorities of the contract notice. Generic, templated responses score lower than tailored, evidence-rich ones.

Example

A German engineering firm responds to a restricted procedure PQQ for a major water treatment infrastructure project. Thirty-two firms pass the minimum thresholds. The contracting authority shortlists eight firms using scored criteria. The German firm's three references are strong but described generically without matching the specific technical challenges in the contract notice. It scores 72 out of 100 and ranks ninth, missing the shortlist by one position. A competitor with one marginally weaker reference but a more targeted narrative scores 78 and is invited to tender.

Frequently Asked Questions

Can a supplier request feedback if it is not shortlisted?

Yes. In EU procurements, contracting authorities must provide feedback on request to unsuccessful candidates at the selection stage, including their score and the characteristics and relative advantages of the selected candidates. Under the UK Procurement Act 2023, a summary of selection scores is a required disclosure for above-threshold procurements.

What is the minimum number of candidates that can be shortlisted for a restricted procedure?

Directive 2014/24/EU requires a minimum of five for the restricted procedure. For competitive dialogue and competitive procedure with negotiation, the minimum is three. If fewer candidates have qualified, the buyer may proceed with the number available provided there is genuine competition, or may restart the procedure.

Can a buyer shortlist fewer candidates than the stated maximum?

Yes. The stated maximum is a ceiling, not a target. If only six suppliers pass the minimum thresholds and the buyer stated a maximum of ten, all six will be invited. If twenty pass and the maximum is ten, ten are shortlisted.