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                          GOVERNMENT OF TRIPURA

                                                            Dated                    , 2007
Sub:- Request for proposal for conducting Social Audit of R.D. Schemes in Tripura.

       Expressions of Interest (EOI) were received from interested firms through open
invitations. After receiving the EOI of interested parties, they were asked to give a
presentation before a select panel of officials. Those firms, which have qualified the
preliminary technical evaluation, are hereby being sent RFP (Request for Proposal). The
preliminary terms of reference were also elucidated in the open advertisement for giving each
interested party an idea about the activities to be covered under Social Audit of NREGS
       The detailed Terms of Reference (TOR) for the above proposed activity are
enclosed at Annexure-I. Selected Agency/Agencies will act to conduct Social Audit in the
four Districts of the State. The technical bid and the financial bid should be in prescribed
formats (Annexure-II & III) and in separate sealed envelopes.
       The bids shall be received by the undersigned on or before 6th November, 2007. Bids
received after this time or not received in prescribed format, would not be entertained.
Thus the last date for receiving the bids is 3:00 P.M. of 6th (Sixth) November of 2007.
       The technical bids shall be opened on same day i.e. 6th November 2007 at 4:00
P.M. and would thereafter be evaluated by a Committee constituted for the purpose. The
technical bids would be evaluated on the basis of: a) Relevant experience in the field b)
Profile of the company, c) Human Resource to be deployed for the study, d) methodology to
be adopted by the Firm/Agency for Social Audit. If the Committee so feels, the Firm/Agency
may be requested to make a presentation.
       Financial bids of only those institutions/organizations which are short-listed by the
Committee on the basis of the technical bid will be considered. Finally, conduction of Social
Audit will be awarded to the institution/organization selected by the Committee on the basis
of the Technical bid and amount quoted in Financial bid following due procedure of two bid
       The Social Audit has to be conducted within the stipulated time, and the Head of the
applying Firm/Agency would submit, along with technical and financial bids, an undertaking
to make the proposed team of experts/staff available for the study. After the finalization of

the technical & financial bids an agreement will be signed between the R.D. Department and
selected Firm(s) to this effect.
        The selected Firm/Agency will have to start the social audit from a particular date to
be fixed by the Department after its award, and each of the deliverables would be completed
as per the time frame in the TOR. In case the selected Firm/Agency declines to take up the
activity after a notice of award has been issued, it would be barred for any activity,
evaluation or assistance of any kind from Rural Development Department, Govt. of Tripura
for a period of 3 years from the date of award. Further a penalty as described in the TOR may
also be imposed on the firm/society etc.
        It is mandatory for every interested Firm/Agency to bid for all the four districts of
the State.    The Award for different districts can be given to different Agencies. The
comparison between agencies will be made on the basis of details given in Technical &
Financial Bids for a particular District. In case of financial bid the total cost of social audit for
the stipulated four years will be the criterion for selection and not the cost for a particular
year. All these documents can be either received from the Office or downloaded from
the website of R.D. Department, Government of Tripura viz. .
        If the Rural Development Department, Govt. of Tripura so desires, it may reject any
or all bids without assigning any reason. The decision of the Evaluation Committee shall be
final, and no enquiries, or application for review, shall be entertained.

Enclosures: Annexures – I, II, III, IV.

                                                                         ( Brijesh Pandey )
                                                                       Joint Secretary to the
                                                                          Govt. of Tripura.


1. The CEO, Society for Social Services, Madhya Bharat Chapter,
2. The Senior Manager, CS, ORG Centre for Social Research, New Delhi.
3. The Branch Manager, SMEC, Guwahati.

[Please do not attach any additional material, papers, documents, reports etc., if it is not
asked for.]

                                                                                    Annexure – I
                                TERMS OF REFERENCE (TOR)

                        Conducting Social Audit under NREGS Tripura

1. Introduction

       The National Rural Employment Guarantee Act, 2005 (NREGA) guarantees 100 days of
wage employment in a financial year to any rural household whose adult members are willing to
do unskilled manual work. The Act will cover all districts of the country within five years.
NREGA can also serve objectives like generating productive assets, protecting the
environment, empowering rural women, reducing rural-urban migration and fostering social
equity, among others.

       The NREGA is a People’s Act in several senses. One of them is that the Act empowers
ordinary people to play an active role in the implementation of employment guarantee schemes
through Gram Sabhas, Social Audits, participatory planning and other means. An innovative
feature of NREGA is that it gives a central role to ‘social audit’ as a means of continuous public
vigilance. On similar lines social audit of other R.D.Schemes will also be conducted.

2. Objectives of the Social Audit

       The basic objective of a social audit is to ensure public accountability in the
implementation of projects, laws and policies. One simple form of social audit is a public
assembly where all the details of a project are scrutinized. However, ‘social audit’ can also be
understood in a broader sense, as a continuous process of public vigilance.

       In this perspective, a social audit is an ongoing process to ensure that the potential
beneficiaries and other stakeholders of an activity or project are involved at every stage: from
the planning to the implementation, monitoring and evaluation of the project. This process
helps in ensuring that the activity or project is designed and implemented in a manner that is
most suited to the prevailing (local) conditions, appropriately reflects the priorities and
preferences of those affected by it, and most effectively serves public interest.

3. Target Groups

       Rural household people who include SCs, STs, RMs, Women, Physically Challenged
Groups etc.

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4. Implementing Agencies

 The implementing agencies for NREGA are mainly Gram Panchayat, Block Level –
 Intermediate Panchayat called Panchayat Samiti and/or Block Advisory Committee (BACs)
 through Programme Officers(BDOs), District Level – Zilla Parishad though District Programme
 Coordinator(D.M & Collector), Line Departments like Agriculture, Forest, Fishery etc besides
 any other agency so designated to execute the work from time to time to job. Similarly
 implementing agency for other RD schemes are PRI’s & Other line departments.

5. Earmarking of Allocation

(i)     50% NREGA funds are allotted to the Gram Panchayats. Remaining is devided equally
 between Zilla Parishad and Panchayat Samity/BAC.

The sectoral allocation as decided by the Government. (subject to the variation from time to
 time) is given below :,

Water bodies + Fisheries           = 15%

Irrigation + Drinking water       = 20%

Housing                             = 20%

Rural connectivity of uncovered –-paras (only) under Bharat Nirman = 15%

Agriculture + Horticulture Plan   = 15%

Rubber Plantation                   = 5%

Maintenance works                   = 10%

(ii)    SGRY – To provide additional and supplementary wage employment and thereby
 provide food security in all rural levels by creation of social and economic assets. Cost sharing
 basis between Centre and State 75:25.

(iii)   IAY - Construction of New Houses & upgradation of old houses are taken up.

 (a) For construction of new houses – 80% of the allocation.

 (b) For upgradation old houses      – 20% of the allocation.

 (c ) The cost of each house is decided by Government.

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 (d) A part of construction cost is shared by the beneficiary.

(iv)    SGSY – Funds allotted for different activity

 (a) Infrastructure    – 25%

 (b) Training          - 10%

 (c ) Revolving Fund- 10%

 (d) Subsidy against bank loan – 55%

(v)     IWDP :- (i) Cost Norm Rs.6000/- per hectare.

                 (ii) Percentage of components,

                (a) Water shade treatment /Development works/Activities – 85%

                (b) Community mobilization and training – 5%

                (c ) Administrative overhead – 10%

(vi)    (a) ARWSP :-Target of TSP area – 50%(minimum)

Central share – 50%              (ii) State share – 50%

(iii)   100% for creation of new sources.

        (b) Swajaldhara :-      (i) Central share – 90%               (ii) State share – 0%

(iii) Community contribution – 10% (for SC/ST- 2.5%). It is used 100% for new source creation.

        (c ) Total Sanitation Campaign (TSC) :-

        IHHL for BPL – 60:20:20, Unit cost- Rs.1500/- (900:300:300)

        Women Sanitary Complex – 60:20:20, Unit Cost – Rs.20,000/-

        School latrine – 70:30, Unit Cost – Rs.20,000/- Earlier it was 60:30:10

        Anganwadi Toilet - 70:30, Unit Cost – Rs.20,000/- Earlier it was 60:30:10

6. Conducting Social Audit

        It has been decided to conduct the Social Audit in terms of the stated objectives and
 guidelines of the respective RD Schemes with special focus on NREGA & TREGS. The study

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will be aimed at providing a quantitative and qualitative review of the status of implementation
of the

(a) NREGA – 2005 & TREGS – 2006

(b) IAY ( Indira Awas Yojana )

(C) SGSY (Swarnajayanti Gram Swarojgar Yojana )

(d) IWDP ( Integrated Water-shed Development Programme )

(e) ARWSP / Swajaldhara etc. in the selected districts of the State.

(f) TSC (Total Sanitation Campaign )

         Thus, social audit can be seen as a means of promoting highest level of public
participation and scrutinizing the implementation of programme through parameters such as -

   Transparency: Complete transparency in the process of administration and decision
   making, with an obligation on the government to suo moto give people full access to all
   relevant information. The information about works should be displayed in the local language
   proforma given in Annexure B-13 at the worksite and in proforma B-14 at a prominent place
   in Gram Panchayat.

   Participation: An entitlement for all the affected persons (and not just their representatives)
   to participate in the process of decision making and validation.

   Consultation and Consent: In those rare cases where options are predetermined out of
   necessity, the right of the affected persons to give informed consent, as a group or as
   individuals, as appropriate.

   Accountability: The responsibility of elected representatives and government functionaries
   to answer questions and provide explanations about relevant action and inaction to
   concerned and affected people.

   Redressal: A set of norms through which the findings of social audits and other public
   investigations receive official sanction, have necessary outcomes, and are reported back to
   the people, along with information on action taken in response to complaints.

         In the specific context of NREGA & TREGS, the process of social audit should include
public vigilance and verification of the following 11 stages of implementation:

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      Registration of families
      Distribution of job cards
      Receipt of work applications
      Preparation of shelf of projects and selection of sites
      Development and approval of technical estimates and issuance of work order
      Allotment of work to individuals
      Implementation and supervision of works
      Payment of unemployment allowance
      Payment of wages
      Evaluation of work
      Mandatory social audit in the Gram Sabha (Social Audit Forum)

 Similarly in IAY & other schemes, the following steps are involved in implementation :-

(1)    Selection of individual beneficiaries :-

      a) For IAY – Allotment of houses (i) SC-21% (ii) ST-43% (iii) R.M – according to this
                 percent in the district.

      b) For SGSY – Formation of Self Help Groups for different activities,

      (i) SC-17% (ii) ST-33% (iii) Woman – 50% (iv) R.M- 15%

      c)         For Swajaldhara :-

           i)       100% authority of selection of type of scheme is given to the community.

           ii)      Minimum 33% representation of women in the Village Water Sanitation
                    Committee(VWSC) as a mark of Women’s Participation in decision making.

      d) For SGRY :-

                 i) 22.5% of the annual allocation (inclusive of foodgrains) allocated both at the level
                     of District and Intermediate Panchayats shall be earmarked for individual/group
                     beneficiary schemes of SC/ST families living below the Poverty Line (BPL)

                 ii) Minimum 50% of the Village Panchayat allocation (inclusive of foodgrains) shall be
                     earmarked for the creation of need based village infrastructure in SC/ST
                     habitations / wards.

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            iii) Efforts would be made to provide 30% of employment opportunities for women
                under the programme.

     (2)       Allocation of resources G.P. wise and ADC village wise.

     (3)       Utilisation of funds as according to provisions of the Schemes

7. Methodology, Coverage and Functions/Implementation

           At each of the mentioned 11 stages of NREGA in last clause , there are various ways in
which the implementation process may fail to meet the norms spelled out earlier. An indicative
list of these ‘vulnerabilities’ is given in Annexure I/A, along with the possible means of
preventing or addressing them. The methodology and functions of Social Audit shall be
inclusive of the responsibility assigned to “Social Audit Forum” in the Chapter 11 title
“Transparency and Accountability: Public Vigilance and Social Audits” of the NREGA
Guidelines issued by Ministry of Rural Development, Government of India. The details of
responsibilities and functions of “Social Audit Forum” are given in Annexure I/B for ready

In the context of selected districts of Tripura, the coverage shall be as follows.

1)     All the Gram Panchayats & ADC Villages shall be covered once in each quarter of the

2)     Any work order having total expenditure (including all components) greater than
       Rs.10,000/- shall be mandatorily covered for social audit.

3)     All the Muster Rolls under NREGA shall be verified and counter checked with the work
       order and physical work executed.

4)     Quality aspect of the assets created shall be checked against the specification given in
       the work order or estimates or any other documents related to it.

5)     At least 40% of the total works executed in each Panchayat shall be mandatorily covered.

6)     The No. of assets created shall be verified with official records like Asset Register etc.
       Physical verification of assets created.

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7)   Impact of NREGA & TREGS and other R.D. Schemes on the livelihood of rural population
     with reference to money spent and assets created under NREGA.

8)   Need of inter departmental coordination & inter-sectoral convergence to improve the
     livelihood security of rural population.

9)   Visiting Panchayats and meet Panchayat members regularly.

10) Training/Workshop and Capacity building to be conducted in each quarter in Gram
     Panchayat level, once in six (6) months in Block/District level.

11) Physical verification of various Registers / records.

12) Visit of 100% Gram Panchayats and ADC villages.

13) Work Orders of more than Rs.10,000/- has to be verified completely.

14) 100% verification of Rural shelters created.

15) Record verification to be done by representatives of the organization/firm. Verification of
     the various progress reports sent by Gram Rozgar Sevak, Programme Officer,District
     Programme Coordinator etc.

16) Checking whether works conform to the provisions of the Acts, Guidelines and directions
     issued by the State / Central Govt. from time to time.

17) To attend in Vigilance & Monitoring Committee meetings, Gram Sabha meetings once in
     a quarter.

18) To check quality aspects of assets created and their suitability for the society.

19) To check transfer of fund from State to the District, District to the Blocks & Blocks to the
     Gram Panchayats likewise.

20) To check permanent wait-list of BPL families for providing houses under IAY programme.

21) To check display of permanent IAY wait-list in gram panchayat office.

22) Any other points which arises in future.

23) The guidelines of various RD.schemes may be suitably modified from time to time. In that
     case the objectives of Social Audit will also change according to such modification.

9. Coverage in terms of Area

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       To conduct Social Audit in all the 4 Districts of the State where R.D.Schemes are in
implementation viz. West Tripura, South Tripura, North Tripura and Dhalai, Districts. The
all Gram Panchayats and ADC billages will be covered. However contract will be made
separately for each district depending on technical & Financial Bids.

10. Time Frame

       Social audit including verification of records to be done Quarterly and Reports to be
submitted to R.D.Department (the State Government ) in Quarterly and one Comprehensive
Annual Report at the end of the each year covering all aspects during the year. The
assignment of conducting Social Audit by selected agency shall be initially for one year in the
each district of Tripura. The year for social audit will start from a particular date to be
decided by the Department soon after signing of the agreement. The Social Audit will
commence from that date. The next year will counted after the completion of the four quarters
of the 1st Year. The report should specifically spell out the lacunaes & hurdles in implementation
of the NREGA & other R.D. schemes and ways to improve the present system within the overall
framework. The appointment of the agency may also be extended to the maximum 3(three)
years (one year each at a time ) on the basis of recommendations of an “Evaluation
Committee” to be constituted by the State Government to review the progress of Social Audit
conducted by the firm/agency. The feedback from the field officers / implementing staff,
quarterly progress report and annual report on Social Audit shall also form part of the material
to decide on extension.

11. Cost of the Study

       Cost would depend on the technical and financial bids submitted by the Agencies. The
cost of Social Audit should be submitted separately for each of the four Districts for evaluation
Purpose. Te cost for different districts will be considered independently. The separate contracts
will be made for separate Districts. Agencies shall be awarded the Contract on the basis of
the individual costs for all the four Districts. The cost should be given in the Financial
Bid for the next three years as per the format given in Annexure-III.

12. Monitoring of Progress of conducting Social Audit

                                          Page 8 of 12
       The monitoring will be done by Field Level Officers & State / District Level Evaluation
Committee & its representatives constituted by the Rural Development Department, Govt. of
Tripura. Rural Development Department will be in constant touch with the awarded Agency to
discuss the progress of work and action plan. The Rural Development Department, Govt. of
Tripura would examine the 1st draft of the report and accordingly suggestions, if any, would be
made to the Agency. The final report will be discussed in the workshop to be organized by the
Rural Development Department, Govt. of Tripura and the Evaluation Committee.

13. Services to be provided by the client (Rural Development Department, Govt. of

       Rural Development Department, Govt. of Tripura would provide support which it seems
to be necessary for undertaking the Social Audit.It will also provide secondary data that are
available with the State Govt’s various Departments, and other information required for social
audit, convene Gram Sabha Meetings, providie place to organize workshops for interactions
with government officials and PRI representatives etc.

14. Deliverables by the Agency

       The deliverables are spelt-out in the paragraph on “Methodology, coverage and
functions/implementation” and the TOR.

15. Payment Clause

Procedure in respect of payment for each year shall be made in phase wise manner as follows,

   1) 10% Advance within 45 days from the date of awarding the contract.

   2) 20% after completion of each quarter of the work and after its approval by the
       “Evaluation Committee”.

   3) Balance 10% shall be released only on receipt of Annual Report and its approval by
       the “Evaluation Committee”.

   4) The same procedure shall be followed for subsequent years.

                                         Page 9 of 12
16. Others

  i.   In order to conduct social audit, the agency must have skill base of large, expert
       manpower (permanent as well as temporarily hired) for conducting and coordinating
       data collection, data filtering and data analysis simultaneously. No requirement of
       manpower and transportation will be met by the Rural Development Department, Govt.
       of Tripura.

 ii.   The data generated from conducting the Social Audit would be the sole property of the
       Rural Development Department, Govt. of Tripura. However, the agency may be
       allowed to use the data specifically for research/analysis with the prior permission of the
       Rural Development Department, Govt. of Tripura.

iii.   Neither any capital cost would be incurred under the fee money for conducting the
       Social Audit nor would any liability be created for the Rural Development Department,
       Govt. of Tripura, beyond the original fee sanctioned for the job.

iv.    The selected Agency would enter in to an agreement in the form of an MOU with the
       Rural Development Department, Govt. of Tripura and write a bond on Non-judicial
       Stamp Paper of Rs.100/- (format in Annexure-IV) and submit Pre-receipt of the
       amount due for instalment(s).

 v.    Rural Development Department, Govt. of Tripura reserves the right to terminate the
       Evaluating Agency’s contract at any point of time without assigning any reasons. In
       such eventuality, the agency shall have to refund the amount released by the Rural
       Development Department, Govt. of Tripura together with a penal interest of 12% per

vi.    Penalty Clause : Each quarterly report should be submitted within the following month
       of the preceding quarter in a year. Failure to do or delay in submission of reports of
       each quarter shall attract a penalty of Rs.1,000/- per day which shall be deducted in
       each month of a quarter subject to a maximum of 10% of the total cost. Similarly,
       Annual Report should be submitted within next one and half month of the concerned
       year failure to which shall attract a deduction of 10% of total amount of the project’s
       cost. Poor quality of report or non-coverage of areas will also invite the penalty. The
       matter shall be discussed in the Evaluation Committee. The Committee shall be

                                         Page 10 of 12
        empowered to impose penalty of maximum of Rs.1,00,000/- on the firm for each year.
        This will be in addition to penalty due to delay or reduction cost.

vii.    Security Deposit: The firm will have to deposit Rs. 25,000/-(Rs. Twenty Five
        Thousand only ) as Security Deposit per district in the form of Demand Draft or
        Cheque. Therefore at the bidding time Agency will have to give Security Deposit of Rs.
        100000/- ( Rs. One Lakh only) in the form of Demand Draft or Cheque in favour of
        Commissioner & Secretary, R.D. Department, Government of Tripura.. After the Award
        the Security Deposit ( @ Rs. 25000/- per district) of only the firm(s) which have been
        awarded the work will be kept and for rest, amount will be returned within 30 days of
        awarding the contract.

viii.   The Firm/Agency should designate at least 1(One) representative based at Agartala,
        who is well versed with the local language. It should be done within one month of the
        awarding contract.

 ix.    While submitting bids every paper of the bid should be mandatorily signed by the
        competent authority of the Firm/Agency.

 17. Arbitration Clause

         (a) In the event of any question, dispute or difference arising under or out of or in
              connection with the conditions mentioned in TOR and sanctioned letter, the same
              shall be referred for the Sole Arbitration of any person appointed by the
              Commissioner & Secretary to the Govt. of Tripura, Rural Development
              Department. There shall be no objection if the person so appointed is a
              Government Servant.

         (b) In the event of the Arbitrator dying, neglecting or refusing to act or resigning or
              being unable to act for any reason or his award being set aside by the Court for
              any reason, it shall be lawful for the said Commissioner & Secretary to appoint an
              Arbitrator in the place of the outgoing Arbitrator in the manner aforesaid and the
              persons so appointed will proceed with the references from the stage at which it
              was left by his predecessor. It is also a term of this contract that no persons,

                                         Page 11 of 12
              other than a person appointed by the Commissioner & Secretary in the Rural
              Development Department, Govt. of Tripura as aforesaid shall act as Arbitrator
              and if for any reason that is not possible the matter shall not be referred to
              arbitration at all.

        (c) Subject as aforesaid the Arbitration and Conciliation Act, 1996 and the Rules
              there under any statutory modification thereof for the time being in force shall
              apply to the arbitration proceedings under this clause.

        (d) Upon every and any reference as aforesaid the assessment of costs of the
              incidental to the reference and award respectively shall be in discretion of the
              Sole Arbitrator.

        (e) The venue of the arbitration proceedings will be premises of the Rural
              Development Department, Govt. of Tripura, Agartala or such other place as the
              Sole Arbitrator may decide.

        (f)   If no request in writing for arbitration is made the Agency within a period of one
              year from the date of completion of job, all claims of the Agency shall be deemed
              to be waived and absolutely barred, the Governor of Tripura shall be discharged
              and released of all the liabilities under the subject contract.

[Please do not attach any additional material, papers, documents, reports etc., if it is not
asked for.]

                                           Page 12 of 12
                                                                                   Annexure I/B

       Apart from the ongoing process of social audit, there will be a mandatory review of all
aspects of the social audit at the Gram Sabha meetings to be held at least once every six months
for this purpose. At these ‘Social Audit Forums’ information will be read out publicly, and people
will be given an opportunity to question officials, seek and obtain information, verify financial
expenditure, examine the provision of entitlements, discuss the priorities reflected in choices
made, and critically evaluate the quality of work as well as the services of the programme staff.
       Thus, the Social Audit Forum will not only give people an opportunity to review
compliance with the ongoing requirements of transparency and accountability, but will also serve
as an institutional forum where people can conduct a detailed public audit of all NREGA works
that have been carried out in their area in the preceding six months.
       An effective Social Audit Forum requires careful attention to three sets of issues: (1)
publicity and preparation before the Forum; (2) organizational and procedural aspects of the
Forum; and (3) the Mandatory Agenda of the REGS Social Audit Forum. These issues are taken
up one by one in the next three sections.
       The success of the Forum depends upon the open and fearless participation of all people,
particularly potential beneficiaries of the programme. Effective public participation requires
adequate publicity about the Forum as well as informed public opinion. This itself requires that
people have prior access to information from the President of the Gram Panchayat in a
demystified form.
       The date, time, agenda, importance and sanctity of the Forum must be widely publicized
so as to ensure maximum participation. The following measures will help:
        Provide advance notice of the date of the Social Audit Forum (at least a month in
advance), and stick to an annual schedule in terms of the months in which these are held.
        Use both traditional modes of publicity (such as informing people through the beating of
drums) as well as modern means of communication (such as announcements on microphones).
        Circulate announcements through notices on notice boards, through newspapers and
pamphlets, etc.

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        Conduct these audits in a campaign mode so that the entire administration gears up to
meet the institutional requirements of the Forum.

Preparation of Documents
        The effective participation of people in a Social Audit Forum depends on full access to
information. This is helped by easy access to all documents and information while the works are
in progress. However, collating information and demystifying it is also an important part of
preparing for a Social Audit Forum. For instance, summaries of the available information should
be prepared in advance, so as to make it more intelligible. These summaries should be made
available to the public in advance, and also read out aloud during the Social Audit Forum. Thus:
        All the relevant documents, including complete files of the works or copies of them,
should be made available for inspection at the Gram Panchayat office at least 15 days in advance
of the Social Audit Forum. There should be free and easy access to these documents for all
residents of the Gram Panchayat during this period, and no fees should be charged for inspection.
During this period, copies of the documents should be provided at cost price, on demand, within
one week of the request being made.
        Summaries of muster rolls and bills must be prepared in advance for presentation at the
Social Audit Forum. If possible, these summaries should be displayed on charts on the day of the
Forum, and at the Gram Panchayat office during the preceding 15 days.
        The original files should be available on the day of the Forum, so that any information
can be cross-checked.
        The works to be taken up for audit should be listed in advance, and the list should be put
up on the notice boards, along with the other items on the agenda.
Procedural Aspects
        Sound procedures are essential for the credibility of a Social Audit Forum. Proceedings
should be conducted in a transparent and non-partisan manner, where the poorest and most
marginalized can participate and speak out in confidence and without fear. Care has to be taken
that the Forum is not manipulated by vested interests.
Towards this end:
   The timing of the Forum must be such that it is convenient for people to attend—that it is
   convenient in particular for REGS workers, women and marginalized communities.
   The quorum of the Forum must be the same as for all Gram Sabhas, with the quorum being
   applied separately to all relevant categories (e.g. women, SC, ST and OBCs). However, lack

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   of a quorum should not be taken as a reason for not recording queries and complaints; social
   audit objections must be recorded at all times.
   The Social Audit Forum must select an individual to chair its meetings who is not part of the
   Panchayat or any other Implementing Agency. The meeting must not be chaired by the
   Panchayat President or the Ward Panch.
   The Secretary of the Forum must also be an official from outside the Gram Panchayat.
   The person responsible for presenting the information should not be a person involved in
   implementing the work. The vigilance committee members, or a schoolteacher for instance,
   could be considered for the purpose of reading aloud the information as per the required
   All officials responsible for implementation must be required to be present at the Social Audit
   Forum to answer queries from members of the Gram Sabha.
   Decisions and resolutions must be made by vote, but dissenting opinions must be recorded.
   Minutes must be recorded as per the prescribed format, by a person from outside the
   Implementing Agencies, and the minutes register must be signed by all participants at the
   beginning and at the conclusion of the meeting (after the minutes have been written).
   The mandatory agenda (given below) must be gone through, including the transparency
   checklist. All objections must be recorded as per the prescribed format.
   The ‘action taken report’ relating to the previous Social Audit Forum must be read out at the
   beginning of each Forum.
   In addition, every District could bring in technical expertise (engineers and accountants) from
   outside the District to help prepare information for dissemination, attend selected Social Audit
   Forums and take detailed notes.
   Immediately after the Forum, they could visit the worksites and conduct detailed enquiries in
   cases where people have raised objections or testified that there is corruption.
   The reports of these Social Audit Forums, and the reports of the technical team, should be
   submitted to the Programme Officer and the District Panchayat within a specified time frame
   for necessary action.
   During the Social Audit Forum, the Right to Information Act and social audit manuals should
   be publicized so that the Forum serves as an ongoing training ground for the public vigilance

The Programme Officer is responsible for ensuring that the Social Audit is convened.

                                             Page 3 of 7
The District Programme Coordinator will regularly review that Social Audits are being conducted.
The SEGC and CEGC will also review the Social Audit mechanisms and processes from time to
time. Follow-up action on Social Audit must be ensured at each level.

        ‘Mandatory Agenda’ refers to the minimum agenda of every Social Audit conducted by
the Gram Sabha. The checklist below will help in reviewing whether the norms and provisions in
the Act, Rules and Guidelines are being observed.
        The Mandatory Agenda should include the following questions/issues:
A. Whether the process of registration was conducted in a transparent manner:
   Was a list prepared by the Gram Panchayat of all the possible households that might seek
   Was the first registration done in a special Gram Sabha conducted for the purpose?
   Was the list of registered persons read out for verification at the Gram Sabha?
   Is registration open in the Gram Panchayat on an ongoing basis?
   Is the registration list regularly updated and put up on the Gram Panchayat notice board?
   Is there anyone remaining who wants to register, but who has not yet been registered?
B. Whether job cards were prepared, issued and updated in a transparent manner:
   Were job cards issued within one month of registration?
   Is the list of job cards regularly updated and put up on the Gram Panchayat notice board?
   Is a file containing photocopies of all job cards available for inspection in the Gram Panchayat
   Was the job card issued free of cost, or was there a charge imposed for issuing the job card?
   Is there anyone who has not received a job card, or is there any other pending complaint?
C. Whether the applications for work are being treated as per the norms:
   Are workers receiving dated receipts for their application for work?
   Are people being given work on time?
   Is the allotment of work being done in a transparent manner, with lists of work allotments
   being put up on the Panchayat notice board for public notice and display?
   Are those who have not been given work on time receiving unemployment allowance? How
   many people have outstanding payments of unemployment allowance, and are they being
   compensated for late payment as per the Guidelines?

                                            Page 4 of 7
   Was the of a list of workers who have received unemployment allowance (if any) in the last
   six months, along with the amounts disbursed, and the basis for calculation of the amounts,
   read aloud?
   Are there any pending complaints about the receipt of work applications, the allotment of
   work and the payment of unemployment allowance?
   Is the 33 per cent quota for women being satisfied in the allotment of work?
   Is the roster based on date of application received being followed for the allocation of work?
   Are those who are allocated work outside the 5-km. radius being given a transport and living
   allowance equal to 10 percent of the minimum wage?
D. Transparency in the sanction of works:
   Was the shelf of projects prepared in the Gram Sabha?
   Was the technical estimate prepared by the Junior Engineer in consultation with residents of
   the village?
   Were the works sanctioned from the shelf of projects as per the norms?
   Was the list of all the REGS works sanctioned in the preceding six-month period be read out
   aloud, along with the amount sanctioned and the amount spent on the works in the Gram
   Panchayat area?
   Has the Gram Panchayat board been updated with the list of works painted on it ?
E. Transparency in the implementation of works:
   Were ‘work orders’ issued in a fair and transparent manner, with adequate publicity?
   Was there a board at the worksite giving details of the sanctioned amount, work dimensions
   and other requisite details?
   Was an open ‘project meeting’ held before the commencement of the work, to explain the
   work requirements to the workers, including the labour and material estimates as per the
   technical sanction?
   Were the muster rolls available for public scrutiny at all times at the worksite?
   Was a worksite material register maintained, along with verification by at least five workers
   whenever material came to the site?
   Was a daily individual measurement of work conducted in a transparent manner where piece-
   rate norms were in force?
   Was the final measurement of the work (for weekly wage payments) done by the Junior
   Engineer in the presence of a group of workers?
   Did members of the vigilance committee make regular visits to the worksite and monitor the
   implementation of various aspects of the work?

                                             Page 5 of 7
   Were any complaints made? Were they addressed within seven days by the grievance-
   redressal authority as specified in the Act?
   Was an open ‘project meeting’ held within seven days of completion of the work, where all
   those who worked on the site, and residents of the village where the work took place, were
   invited to look at the entire records?
F. Wage payments:
   Were wages paid within seven days?
   Were wages paid at a designated public place at a designated time?
   Were all payment details available for public scrutiny before the payments were made
   (through putting up muster roll copies on notice boards, etc.)?
   Were payment details read out aloud in public while making payments?
   Were payments made by an agency other than the one implementing the work?
   Was a record maintained of payments made beyond the specified time limit?
   Was compensation given as per the provision of the Payment of Wages Act, 1936 for late
   Are any wage payments still due?
   Have there been any instances of workers earning less than the minimum wage, and if so,
G. Post facto auditing of the records and accounts of each work undertaken:
   Does the file have all the documents required?
   Were all the documents available for scrutiny at least 15 days before the Social Audit Forum?
   Were charts of the summary sheets available for public display and scrutiny before and during
   the Social Audit Forum?
   The muster roll summary must be read out aloud to check for discrepancies
   The summary of the bills must be read out aloud to check for discrepancies
   The measurement book summary must be read out aloud.
   The photographs taken before, during and after the work must be available for public display
   and scrutiny during the Social Audit Forum.
   Was the Monitoring and Vigilance Committee formed as per the norms?
   Has the vigilance committee submitted its report?
H. Other important issues connected with REGS works:
   Sections of the vigilance committee report that deal with the following aspects of work should
   be read out aloud in order to form the basis of discussion in the Gram Sabha:
   quality of work
   work dimensions

                                             Page 6 of 7
selection of location
whether minimum wages were paid
whether wages were paid on time
whether all bill payments have been made
whether any complaints were made to them during the work
what redressal has taken place regarding complaints or grievances
whether prescribed worksite facilities were made available;
what maintenance the project requires.
General maintenance issues relating to development works in the Gram Panchayat should also
be noted and discussed at the Social Audit Forum.
A list of incomplete works and works not in use should be prepared by the Gram Panchayat
Secretary and presented before the Forum for consideration and corrective action.
The last financial audit report should be made available to the Social Audit Forum, and audit
objections, if any, should be read out aloud.
Any Utilization Certificate (UC) or Completion Certificate (CC) issued since the last Social
Audit Forum should be read out aloud.
If wages or unemployment allowances are due to anyone, the dues should be listed and
reported to the Programme Officer for necessary action.
The Forum provides an opportunity to check whether all the boards in the Gram Panchayat
have been updated as per the requirements.
The services of the REGS staff like the Gram Rozgar Sevak, the Junior Engineer and any
other staff can also be audited for quality of service.
The timely flow of funds from the Programme Officer to the Gram Panchayat should also be

                                           Page 7 of 7

The Commissioner & Secretary
Rural Development Department
Govt. of Tripura, Agartala.

                    Bid for Conducting Social Audit under NREGS Tripura

CHECK LIST :                 Technical Bid has four parts – A, B, C, D
                                 Financial Bid has one part- A

   1. Separate sealed envelops super-scribed as “Technical bid”/“Financial bid” of the

   2. Separate sealed envelops containing Technical Bid (Annexure II) and Financial Bids
      (Annexure III) submitted to Rural Development Department, Govt. of Tripura in a
      common sealed envelope clearly super-scribed “Bid for conducting Social Audit under
      NREGS Tripura” and bearing the name and address of the bidder organization

   3. Each page legibly printed, numbered, signed, dated and stamped

   4. Attested photocopy of registration certificate of the organization enclosed with Technical

   5. Certificate signed & stamped by head of organization: “key professionals, support & field
      staff, and equipments/facilities as mentioned in technical bid shall be available for this
      study in due time”.

   6. Verification signed by head of organization
      ( please tick                mark in the relevant boxes)

   Date                                                    Signature

   Place                                                   Name

                                                           Seal of the Organization

Please do not attach any additional material, papers, documents, reports etc., if it is not
asked for.

                                           Page 1 of 4
       Bid for conducting Social Audit of various R.D. Schemes in Tripura

                                   TECHNICAL BID

     Name of organization
      Name and Designation of Contact
 2    Person

      Postal Address of the Organisation
 3    (with PIN CODE)

      Physical Address, if different from
 4    postal address (With PIN CODE)

      Telephone with STD Code
      FAX No. with STD Code
      Mobile No. of Contact Person
      E-mail Address of Contact Person
      Name and Designation of Head of the
      Organisation responsible for
      conducting Social Audit with whom
      R.D. Department will interact for this

      Establishment Details
      Year Established
                                               Educational & Research Institution/
      Type of Organisation (Tick One)
 b.                                            Consulting Organisation/ Any Other (give
      Regd. No. ; Name and Place of
                                               (Attach attested photocopy of Registration
 c.   Registering Authority

 d.   No. of full time employees
                                               Support Staff

      No. of part time employees
                                               Support Staff

                                      Page 2 of 4
 11. Experience of the Organization in implementation of Rural Development projects
     specially in Social Audit sector in the past 3 (three) years that are relevant for
     demonstrating its expertise.

                                                               Name of
           Type of
                          Name &        Duration     Cost   sample State(s) Sector, Sub-
Sl.        activity:
                         Address of     (From –      (Rs.    & numbers of    Sector and
No.     Evaluation/Res
                           Client         To)        Lakh     districts in  Main Outputs
         earch study
                                                             each State(s)

 1            2              3             4          5            6              7






 12. The turnover of last three (3) years preceding the current financial year.

                  Year                                  Turn over
                                                      (Rs. in Lakhs)


 13. Name of the Districts for which Technical & Financial bid have been submitted

        a) …………………………….                 b)…………………………………

        c)……………………………..                 d)…………………………………

                                       Page 3 of 4

                                                                No. of key
         Sl. No.        Name of the District                   persons to be
            1           West Tripura

            2           South Tripura

            3           North Tripura

            4           Dhalai


As per TOR given in Annexure I, the selected Agency should develop and refine the method
of conducting Social Audit and sampling only marginally disturbing the detail methods,
sample etc. spelled out in the TOR. However, any suggestion in this aspect may be given in


Date:                                             Signature (Team Leader)

Place:                                            Name

Seal:                                             Designation


It is certified that:

1.   The information given above is TRUE to the best of my knowledge. The organization
     shall stand liable for any information given above which is later found to be FALSE,
     including the forfeiture of any payment due to it.

2.   The professionals, staff, equipment and all requisite infrastructural facilities mentioned in
     this bid shall be made available for this study in due time.

3.   I am competent to sign this Certificate.

Date:                                                     Authorised Signatory

Place:                                                    Name:

Seal of the Organisation:                                 Designation
                                         Page 4 of 4
The Commissioner & Secretary
Rural Development Department
Govt. of Tripura, Agartala.

FINANCIAL BID : Bid for Conducting Social Audit of R.D. Schemes in Tripura (Cost should
                be given both in figures and words in Indian Currency.)

Name of Bidder Agency / Organization with address: ________________________________

Name of the
                             West Tripura                                 South Tripura
 Cost for 1st
 Cost for 2nd
 Cost for 3rd
 Cost for 4th
**Total Cost
of four years

 Name of the
                             North Tripura                                      Dhalai
 Cost for 1st

 Cost for 2nd
 Cost for 3rd
 Cost for 4th
**Total Cost
of four years.

**The cost includes all types of expenses such as expenses for holding of workshop/s, if any, non-salary
expenditure on field work etc. this also includes any tax incidental to this activity

Date:                                                    Authorised Signatory

Place:                                                   Name:

Seal of the Organization:                                Designation:
                                                                                Annexure IV

         FORMAT OF BOND (not to be attached to either Tech. Bid or Fin. Bid)


KNOW ALL MEN BY THESE PRESENTS THAT, We                                               an agency
registered under (Act under which the agency is registered) and having its office at
in the State of                        (hereinafter called sureties jointly and severally bond)
and    our        respective   heirs   executors     administrators    legal    the     obliger
hereinafter called representatives and assignees by these presents, are held and firmly
bound to the Governor of Tripura (hereinafter called the Government) a sum of Rs.
together with all other sums (including interests thereon) die and payable to the

And whereas the obliger is an implementing Agency for the programme/project of rural
development as approved by the Government and described in the letter No.                of the
Government, subject to the Terms and conditions contained therein (hereinafter
collectively referred to as “Sanction Letter)”

And whereas the Government, for the due implementation of the said approved
programme/ project, has agreed to extend to the obliger as such implementing Agency as
aforesaid financial assistance by way of fee of the order of Rs.          out of which of Rs.
have already been said to the obliger (the receipt where of the obliger does hereby admit
and acknowledge) upon the obliger irrevocably promising to and assuring the Government
that the said Sum of Rs.           shall be utilized solely and exclusively for the purpose of
implementation for the said approved programme/ project and for no other purpose in
strict compliance of the stipulations and reservations contained in the sanction letter
including executions of the Bond by the obliger and sureties which/who shall always
remain bound to the R. D. Department, Government of Tripura for due fulfillment of the
terms and conditions in the sanction letter. Now condition of the above written obligation
is such that if the obliger shall duly implement the said approved programme in
compliance of all the conditions, stipulations and reservations in the sanction letter, then

Page 1 of 3
the above written Bond obligation shall be void and of no effect but otherwise it shall
remain fully enforceable, effective and operative against the obliger and the sureties and
their respective assignees by these presents, against each of them. These presents further
witness that
(a) The decision of the                          Secretary to the Government of Tripura, Rural
Development Department or the Administrative Head of the Department administratively
concerned with the matter of the questions whether has been breach or violation on the
part of the obliger of any of the terms conditions mentioned in the letter of sanction shall
be final and binding on the obliger.
(b) The Obliger shall in the event of breach or violation of any of terms and conditions
mentioned in the letter of sanction refund to the Government of its own or on demand and
without demur the entire amount of or such part thereof as the R.D. Department,
Government of Tripura alongwith the borrowing rate interest (interest therein at the rate
of 12% (Twelve percent) per annum from the date of receipt of said amount by the obliger
up to the date of refund thereof to the Government failing which the impugned amount
would be recoverable as arrears of land revenue.
(c) The obliger or the Sureties shall, in the event of breach or violation of any of the terms
and conditions contained in the letter of sanction, refund to the R. D. Department,
Government of Tripura on demand and without demur the entire amount of Rs.
………………. of such part thereof as may be mentioned in the notice of demand issued
by the Government alongwith the interest thereon at the prevailing borrowing rate of the
R.D. Department, Government of Tripura from the date of receipt of the said amount by
the obliger/sureities till the date of payment therefore is received by the Government.
(d) Without prejudice to (c) above, the R.D. Department, Government of Tripura shall
have the right, without any demur on the part of the obliger or the Sureties, to revoke the
said financial grant wholly or partially and/ or to take over such assets or to call upon and
complete the obliger to transfer all such assets to the State Government, Panchayati Raj
Institution or any other
institutions associations, if the obliger commits any breach of the conditions and
stipulations contained in the sanction letter.
IN WITNESS WHEREOF THESE presents have been executed on behalf of the obliger
and the

Page 2 of 3
sureties the day and the year herein above written and accepted for and on behalf of R.D.
Department, Government of Tripura by                                     Secretary, Rural
Development Department, Government of Tripura (name and designation) on the day year
appearing against his/her signature.

Signature (for and on behalf of obliger)

( The Obliger)




Signature and Name in Block Letters, Designation and Office

Seal of the Organisation/ Institution.

In the presence of Witness.

(1) Name and address:

(2) Name and address:

Bond accepted for and on behalf of the Governor of Tripura.

Please do not attach any additional material, papers, documents, reports etc., if it is
not asked for.

Page 3 of 3

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