Bidding evaluation is a complex but important decision making process for buyer to ensure the project accomplish smoothly. Bidding evaluation has 1) separation in commercial and technical tender; 2) subjectivity in weights allocation. In order to solve the problems, this paper sought to build a new bidding evaluation model with an indicator system, based on Project Management Body of Knowledge (PMBOK). Data envelopment analysis (DEA) was introduced to assess the rank. With an alternative secondary function, the model extended the application of DEA cross-efficiency method. Experiment with a practical engineering showed the new model yield stable bidding scores and demonstrated its applicability.