CPWD Works Manual 2022
The mandate book of the Central Public Works Department, launched on CPWD Day (12 July 2022) and implemented from the same date. Arranged in the sequence of execution of works, it covers four Parts — Funds & Accounts, Construction, Maintenance, and Green Buildings — incorporating all circulars from 2019 to June 2022, GFR 2017, GeM, EPC contracting, and the Make-in-India regime. The Manual sets the binding provisions; the companion SOPs 2022 carry the workflows.
What This Manual Is
Manual vs SOP — and the Reading Rules
The Manual is arranged in the ordinary sequence of execution of construction and maintenance, including pre-construction and pre-maintenance activities. It is split into four Parts:
Functions, funds, budget and accounts — provisions common to both construction and maintenance.
Provisions related to construction works (Chapters 3–8).
Provisions related to maintenance and repair works (Chapters 9–15).
Green Buildings and Sustainability Measures (Chapter 16).
Where the Manual/SOPs conflict with the General Conditions of Contract (GCC), the GCC prevails in contract management. Above everything, Acts and laws notified by Government, GFR provisions and CVC guidelines prevail over the Manual and SOPs. The Manual must be read as imposing a positive duty on CPWD officers for timely delivery of works with quality.
A higher authority may always exercise powers delegated to a lower authority; if a lower authority fails to act, the higher authority may step in — but with recorded reasons. Relaxation of any SOP provision in the interest of the work is allowed by an officer not below ADG/SDG with recorded reasons. The "Compendium of Financial Powers Delegated to CPWD Officers" sits in SOP Annexure-66.
The 44 Salient Features — the high-yield headline changes
The Manual lists 44 salient features; these are the ones most worth memorising as quick-fire facts:
| Theme | What changed in 2022 |
|---|---|
| Structure | Mandatory provisions kept in the Manual; operating procedures moved to SOPs. Workflows redesigned to minimum approval levels — essentially T/S Authority + Site Engineers. |
| Technical Sanction | Definition of T/S simplified. No T/S for "Design and Build"/EPC contracts. For maintenance, T/S only for rehabilitation works, not general maintenance. Revised T/S only on deviation in scope due to structural requirements. |
| Excess over A/A & E/S | No expenditure over A/A & E/S without client approval; for MoHUA budgetary works, excess up to 10% allowed. |
| Reports & PPR | Preliminary Project Report (PPR) for works > Rs 10 Cr; presentation to client for projects above Rs 100 Cr. |
| Quality | QA team at circle level dispensed with; Engineer-in-Charge responsible for overall quality; TPQA limit per Directorate directions. |
| Disputes | Dispute Resolution Committee (DRC) dispensed with; conciliation/arbitration procedure modified. |
| Measurement & payment | All measurements via e-MB module on PFMS; time schedule for bill payment defined; testing charges borne by contractor. |
| New provisions | SPV & IEM for large projects; Global Tender Enquiry (GTE); order of preference in EPC mode; Regional Audit Committees reconstituted. |
| Green | GHAR Green-level certification mandatory for works ≥ Rs 50 Cr. |
Glossary of Abbreviations You Must Know
| Abbr. | Expansion |
|---|---|
| A/A & E/S | Administrative Approval & Expenditure Sanction |
| T/S | Technical Sanction |
| PE / DE / DPR | Preliminary Estimate / Detailed Estimate / Detailed Project Report |
| NIT / NIQ | Notice Inviting Tender / Notice Inviting Quotations |
| EMD / PG | Earnest Money Deposit / Performance Guarantee |
| GCC | General Conditions of Contract |
| EPC | Engineering, Procurement and Construction |
| GeM / GFR | Government e-Marketplace / General Financial Rule |
| PFMS | Public Financial Management System |
| MB / MAS | Measurement Book / Material at Site |
| CSSA | Cash Settlement Suspense Account |
| DC | Departmental Charges (agency charges levied by CPWD) |
| SOR | Schedule of Rates |
| TPQA | Third Party Quality Assurance |
| CTE | Chief Technical Examiner (technical wing of CVC) |
| IEM | Independent External Monitor |
| DG / ADG / SDG | Director General / Additional DG / Special DG |
| CE / SE / EE / AE / JE | Chief / Superintending / Executive / Assistant Engineer / Junior Engineer |
| E-in-C | Engineer-in-Charge |
| CCA / PAO / DDO | Chief Controller of Accounts / Pay & Accounts Officer / Drawing & Disbursing Officer |
| MoHUA / MoUD | Ministry of Housing & Urban Affairs / Ministry of Urban Development |
| PAC | Public Accounts Committee |
| A/R & M/O | Annual Repair and Maintenance Of |
Key Definitions — exact wording examiners reward
| Term | Definition |
|---|---|
| A/A & E/S | Communication of formal acceptance of the proposals by the competent authority of the requisitioning Administrative Ministry/Department. |
| Technical Sanction | A certificate that the detailed estimate has been prepared and approved on the basis of a properly detailed design. |
| Preliminary Estimate | Estimate on a plinth-area cost basis (CPWD Plinth Area Rates) or any other method, without detailed items, for obtaining A/A & E/S. |
| Detailed Estimate | Complete estimate based on SOR rates for covered items and market rates for the rest, supported by detailed drawings and specifications. |
| Enabling / Rough Cost Estimate | Enabling = for pre-construction activities. Rough Cost = approximate cost on client request, with or without preliminary design. |
| Original Works | All new constructions, site preparation, additions/alterations, special repairs to newly purchased/abandoned buildings, including re-modelling or replacement. |
| Minor Works | Works that add capital value to existing assets but do not create new assets (treated as Original Works under Capital Head per GFR Rule 130). |
| Deposit Work | Construction/repair financed from Govt grants to autonomous bodies via their Ministries, or from non-Government sources — funds of public nature not in Union accounts, or public contributions. |
| Emergent vs Urgent Works | Emergent: arises suddenly, inescapable, brooks no delay. Urgent: needs fast start/completion in a compressed schedule on top priority — not at par with emergency works; funds must be ensured first. |
| Extra Item / Substitute Item | Extra = completely new item in addition to the schedule. Substitute = executed in place of a scheduled item. |
| Contingencies | Estimate provision for unforeseen incidental expenses of miscellaneous character, contingent to completing the work. |
| Engineer-in-Charge | The officer (or representative) entering into the agreement with the contractor on behalf of the President of India. |
| Earnest Money | Security paid by a bidder against backing out before acceptance or refusing to execute after award. |
| Concept | Key Fact |
|---|---|
| Launched / effective | 12 July 2022 (CPWD Day), immediate effect; replaces 2019 Manual |
| Published under | Authority of DG, CPWD; covers circulars 2019–June 2022 |
| Manual vs SOP | Manual = mandate/provisions; SOP = workflows |
| Four Parts | I General · II Construction · III Maintenance · IV Green |
| Order of precedence | Acts/GFR/CVC > GCC (in contract mgmt) > Manual/SOP |
| Relaxation of SOP | By officer not below ADG/SDG, recorded reasons |
| Compendium of Powers | In SOP Annexure-66 |
| PPR / presentation | PPR > Rs 10 Cr; presentation > Rs 100 Cr |
| Green certification | GHAR Green-level mandatory ≥ Rs 50 Cr |
General Provisions — Functions of CPWD
CPWD is the Central Government agency operating throughout the country for four functions:
- Planning, construction, maintenance and repairs of all buildings and other works assigned by Central Government Ministries, Departments, PSUs, autonomous bodies and other organizations.
- Valuation of properties/assets when requested by statutory authorities such as Income Tax, ED, CBI.
- Assessment of rent for hiring private properties and valuation for purchase by Ministries/Departments.
- Advising the Government of India on technical matters relating to public works.
Standard Forms of Contract (memorise the CPWD form numbers)
| Form | Used for |
|---|---|
| CPWD Form 7 | Percentage Rate Tender — rates quoted as % above/below the estimated cost. |
| CPWD Form 8 | Item Rate Tender — rates against each item; used where most items are non-scheduled/specialized. |
| CPWD Form 9 | Supply of materials — rates for supply of materials, raw or finished. |
| CPWD Form 10 | Piece Work — to start work in anticipation of formal acceptance; cancelled once regular contract is signed. |
| CPWD Form 11A | Work Order — works awarded without call of tender; binds quantity and time. |
| CPWD Form 12 | Lump sum Contract — lump sum amount for given designs/specifications/functional requirements. |
| CPWD Form 47 | Demolition of Buildings — demolition and removal of debris. |
| Annual Rate Contract | For repetitive minor / A&A works needing immediate start and uniform rates; agencies fixed before the financial year. |
| World Bank Documents | Standard WB bidding documents for WB-aided works; only work-specific changes acceptable to the Bank; "Employer"/"Engineer" substituted with CPWD/EE. |
| EPC form | For EPC works — rates/percentage on estimated cost per NIT conditions. |
Five Modes of Funding Works
PAO of client department authorizes PAO of CPWD/MoHUA to charge expenditure to the client's Heads of Account — used for inter-departmental fund transfer within GoI.
Outlay from Union financial estimates, voted by both Houses, through MoHUA.
For works of State governments, local bodies, PSUs, autonomous organizations.
Cash Settlement Suspense Account — for Cabinet Secretariat and Ministry of Defence works; expenditure first booked in suspense, then billed to client; LOC given by CCA against client assurances.
Project executed in India but completely funded by foreign countries.
Central & Regional Works Boards
Chairman + four Members. DG, CPWD = Chairman; Members are Director (Works) MoHUA, CCA MoHUA, and CE CSQ (Civil). Director (Finance), CPWD = Secretary. May co-opt experts/Department reps for specialized projects (aviation, factory works).
Chairman + three Members. Special DG concerned = Chairman; ADG of region and Director(Finance)/CCA representative as Members; concerned CE/SE presents the case. CE(W&TLQA) = Member Secretary. May co-opt the client representative.
Works of Inescapable Nature — Emergent & Urgent
Works arising all of a sudden, of inescapable nature, brooking no delay — natural calamities (earthquake, flood, etc.), explosions/fire/war/terror attack, restoration of essential services, ceremonial functions on death of President/VP/PM (and ex-holders), restoration in buildings of national importance, critical hospital services, and any work declared emergent by the CE (or next authority). The competent authority (CE/ADG/SDG) must record a certificate that the work (a) arose suddenly and (b) is inescapable, brooking no delay. Executed without call of tenders via work order or hand receipt after spot quotations collected by officers not below AE/AEE. Normal works needing a compressed schedule are NOT emergent.
Not at par with emergency works. Need early start/completion in a compressed schedule on top priority; availability of funds must be ensured first. E-in-C assesses urgency. Work orders normally placed after open call of quotations (web publicity) for works up to Rs 5 lakh; works above Rs 5 lakh go through e-tendering. In exigencies, spot quotations with recorded reasons. Details of both emergent and urgent works are compiled quarterly by each circle/zone (SE/CE) and submitted to ADG/SDG.
For any clarification or amendment, technical/engineering matters go to DG, CPWD (Technical Adviser to GoI); financial-policy or delegation matters go to MoHUA.
| Concept | Key Fact |
|---|---|
| CPWD functions | Construction/maintenance · valuation · rent assessment · technical advice |
| Form 7 / 8 | Percentage Rate / Item Rate Tender |
| Form 11A / 12 / 47 | Work Order / Lump sum / Demolition |
| Funding modes | Letter of Authorization · Budgeted · Deposit · CSSA · Foreign |
| Central Works Board chair | DG, CPWD; Secretary = Director(Finance) |
| RWB chair / Member Secy | Special DG / CE(W&TLQA) |
| Emergent certificate by | CE/ADG/SDG (sudden + inescapable) |
| Spot quotations by | Officers not below AE/AEE |
| Urgent works web threshold | Up to Rs 5 lakh quotations; above → e-tender |
| Clarifications | Technical → DG CPWD · Financial → MoHUA |
Budget & Reconciliation of Accounts
The five mandatory documents of accounts (per CPWD Accounts Code & O/o CCA, MoHUA)
Record of bills.
Account of each contractor.
Work-wise expenditure record.
Account of materials.
Record of cash transactions.
The Budget is the Annual Financial Statement of all Central Government transactions (in and outside India) for the current and ensuing year; instructions come from the Budget Division, Ministry of Finance. The Director General is the budget authority for all CPWD budget proposals to MoHUA. Losses of Government assets follow GFR 2017.
Consolidated Fund, New Service & Charged Expenditure
"New Service" = expenditure from a new policy decision not earlier brought to Parliament. "New Instrument of Service" = relatively large expenditure from important expansion of an existing activity. Neither can be incurred from the Consolidated Fund without prior Parliamentary approval through a Supplementary Grant.
Court-decree satisfaction on budgeted works is generally Charged. But payments are NOT treated as Charged when they are: awards under the Land Acquisition Act, compensation under the Workmen's Compensation Act 1923, arbitrator awards under the Arbitration and Conciliation Act 1996, awards under the Industrial Disputes Act 1947 (all paid from the Voted portion), and refunds of revenue/security deposits in Public Accounts. A forfeited deposit refund is Charged. For deposit works, awards are charged to the work in all cases.
New construction proposals (projects other than MoHUA) sent by CE/Budgetary Head to Director(Fin), CPWD by 31 August; Director(Finance) forwards findings to MoHUA by 30 September. Revenue estimates submitted to CCA, MoHUA by 30 November. Form-8 statement of excesses/savings submitted to the Ministry by end December.
Savings, Excesses & Supplementary Demands
Anticipated savings must be surrendered sufficiently in advance of year-end, as soon as foreseen — not held in reserve for future excesses. Savings arise from postponement of expenditure, economy, or original over-estimating.
Where authorized appropriation is insufficient or a new service arises mid-year, a Supplementary Demands for Grants proposal goes to Parliament. If money is spent in excess of the granted amount, the demand for that excess is laid before both Houses for authorization (subject to the PAC report). Under Rule 66, GFR, if savings aren't available within the grant or the expenditure is on New Service, a Supplementary Grant/Appropriation under Article 115(1) of the Constitution is needed before payment.
Appropriation Account & Re-appropriation
The Appropriation Account compares total grants (original + supplementary) with actual expenditure, explaining variations (excess or saving) under each sub-head. Reasons for variation are required when, broadly, the excess exceeds 10% of the total sanctioned provision or the saving exceeds 10% of the original/supplementary provision (or as prescribed, whichever is higher).
A transfer of funds from one primary unit of appropriation to another, sanctioned only by the competent authority under DFPR (and Rule 65, GFR 2017). Transfer within one primary unit across two or more Zones is not re-appropriation (Appropriation Accounts are prepared on total grant per primary unit across all Zones). Re-appropriation orders increasing a sub-head beyond the prescribed limit are reported to Parliament with the final Supplementary Demands batch.
Reconciliation: Budget controlling authorities and the concerned DDO/Divisional Officer/AAO are jointly responsible for reconciling departmental figures with PAO books — done monthly, initial responsibility with the Accounts Officer. CEs/DG maintain consolidated Zone-wise, grant-wise records in Form GFR 12.
Audit, Audit Committees & the PAC
Under Departmentalization of Accounts, the Chief Accounting Authority (Secretary) is responsible for monthly/annual accounts; CCA, MoHUA prepares the audited Appropriation Accounts and submits them to the CGA, Ministry of Finance. Internal Audit of Divisions/Offices is done by the CCA office; External Audit by the CAG office.
| Audit Committee | Chairman | Meets |
|---|---|---|
| Central Audit Committee | DG, CPWD | Half-yearly |
| Regional Audit Committee | SDG/ADG of Project Region/Region | Quarterly |
| Zonal/Circle Audit Committee | CE/SE of the Zone/Circle | Monthly |
A "miniature Parliament" with Lok Sabha and Rajya Sabha representatives. The Secretary represents the Government in PAC meetings; DG (CPWD) and SDG/ADG/CE assist with information. The PAC satisfies itself that disbursed amounts were legally available, expenditure conformed to authority, and every re-appropriation followed the rules.
| Concept | Key Fact |
|---|---|
| 5 accounts documents | Bills Register · Contractor's Ledger · Register of Works · Materials Account · Cash Book |
| Budget authority | Director General, CPWD |
| Unspent funds | Lapse at year-end (Consolidated Fund) |
| New Service/Instrument | Needs prior Parliament approval (Supplementary Grant) |
| Supplementary Grant article | Article 115(1); GFR Rule 66 |
| Surrender of savings | GFR Rule 62; not held in reserve |
| Expenditure pace | Last quarter ≤ 33% BE; March ≤ 15% |
| Re-appropriation | GFR Rule 65 / DFPR; reconciliation monthly (Form GFR 12) |
| Internal / External audit | CCA office / CAG office |
| Audit Committees meet | Central half-yearly · Regional quarterly · Zonal/Circle monthly |
| PAC represented by | Secretary; DG & SDG/ADG/CE assist |
Construction — General Provisions & Pre-construction
Construction works are all new constructions, rehabilitation and seismic retrofitting works, charged to capital heads. All pre-construction activities are coordinated by the T/S Authority (the officer under whose T/S powers the A/A & E/S amount is expected to fall).
The estimate & sanction chain
Client requisition → PE / Enabling / Rough Cost Estimate
Prepared and submitted to the client for A/A & E/S. An MoU may be signed (magnitude notified by Directorate); if no MoU, its provisions are written into the PE.
DPR / Detailed Estimate
DPR if the client needs it for A/A & E/S. On receipt of A/A & E/S, the DE is prepared after ensuring an encumbrance-free site.
A/A & E/S accorded
By the competent authority of the Administrative Ministry/Department/Client, on the basis of PE/DPR.
Technical Sanction accorded
Before inviting tenders (for percentage/item rate tenders), then NIT and award.
A/A & E/S and Technical Sanction
For percentage/item rate tenders, the T/S (issued before inviting tenders) consists of: T/S Memo; A/A & E/S Memo/Order; Detailed Estimate, detailed architectural drawings & specifications; Geotechnical Investigation Report; structural drawings for the foundation and preliminary structural drawings of the superstructure; and preliminary drawings for internal/external services.
For "Design and Construct"/EPC contracts, Technical Sanction per the CPW Departmental Code is NOT applicable — the contractor takes full responsibility for design and execution. Scope, specifications, approved conceptual drawings and schedule of quantities are kept on record. Revised T/S is required only on deviation in scope of work due to structural requirements.
A T/S Authority may combine sanctions for the same work into a single T/S (provided the total falls within his competence), or split a sanction within his competence with recorded reasons. Government buildings are exempt from municipal bye-laws under Section 3, Government Buildings Act 1899 — no approval of architectural drawings from local bodies, though the E-in-C must give notice before erection.
Contingencies, Departmental Charges & SOR
The T/S Authority (after client approval) has full powers, up to tender acceptance limits, to execute smaller works cropping up during execution. Usable for site office, watch & ward, surveying, material testing, estimating, structural designing, architectural drawings, models, and hiring an inspection vehicle.
No DC for Government works. Levied for Private Organizations, Local bodies and PSUs (rates in SOP Annexure-5). No DC if a GoI organization's regularly-entrusted project doesn't take off even after plans/estimates. For deposit works, E-in-C takes a funding certificate from the client.
SOR for Delhi issued by DG, CPWD; SDGs issue SOR for their project regions. SORs are ordinarily revised once in two years. Cost index for Delhi issued by CE(CSQ) Civil; for other places by ADG — issued as on 1 April and 1 October every year.
Deposit Works & Specialized Works
CPWD officers have full powers to undertake deposit works up to their delegated T/S powers (for works fully funded by Central/State Govt., including PSUs and Govt-funded institutions). Before accepting any deposit, the competent officer sends the PE to the client. Scope must not be altered without the client's written permission. An MoU (SOP Annexure-4) is drawn before taking up the work; a combined MoU can cover multiple small works under one client.
Tenders for all specialized works are invited in Two/Three Bid system from specialized agencies, CPWD and Non-CPWD contractors meeting eligibility. ADG/SDG can declare any work specialized for their region (uploaded on CPWD website). Specialized E&M systems (Lifts, HVAC, DG sets, fire alarm, sub-station, wet riser & sprinkler) for MoHUA budgeted works should carry a 5-year maintenance/operation provision. On completion, the main agreement is closed and a supplementary agreement drawn for maintenance/operation.
Excess Over A/A & E/S
| Situation | Rule |
|---|---|
| Deposit works & works on letter of authorization | Revised estimate submitted for expenditure in excess of 10% of A/A & E/S. |
| Any work — general rule | No excess over A/A & E/S without client approval; client informed and approval taken before incurring; revised PE submitted in time. |
| MoHUA budgetary works | Excess up to 10% of A/A & E/S may be authorized by CPWD officers, provided the total (incl. excess) is within the officer's power to accord T/S. |
| Concept | Key Fact |
|---|---|
| Estimate ladder | PE/Enabling/Rough Cost → DPR/DE → A/A&E/S → T/S → NIT |
| Pre-construction coordinated by | T/S Authority |
| T/S issued | Before inviting tenders (percentage/item rate) |
| EPC / Design & Construct | No T/S; revised T/S only on structural scope deviation |
| Govt buildings & bye-laws | Exempt — Section 3, Government Buildings Act 1899 |
| Departmental Charges | None for Govt works; levied on Private/Local body/PSU |
| SOR revision | Once in two years; cost index on 1 Apr & 1 Oct |
| Specialized works tendering | Always Two/Three Bid; 5-yr maint. for E&M systems |
| Excess (MoHUA budgetary) | Up to 10% of A/A & E/S, within T/S power |
Modes of Bidding System
Work awarded after call of quotations is construed as awarded without call of tenders. Normally tenders are called for all works; precise reasons must be recorded by the E-in-C before dispensing with the call.
Labour Co-operatives & SC/ST Price Preference
Works up to the fixed limit awarded at current market rates without call of tenders. EMD exempted up to Rs 3 lakh (Security Deposit still deducted from bills). Monthly running payments if work executed > Rs 50,000. Such works don't count toward the annual ceiling for work orders.
| SC/ST contractor band | Concession |
|---|---|
| Up to Rs 2.50 lakh | Price preference up to 5% (vs lowest valid bid); tenders even from non-registered contractors; no earnest money. |
| > Rs 2.50 lakh and up to Rs 5.75 lakh | Price preference up to 5%; only registered contractors; earnest money at a reduced rate of ½%. |
The 5% preference is computed on the lowest valid tenderer's quoted amount, and is subject to justification of rates (Para 5.1.6). These concessions were admissible up to 31.12.2023.
E-Tendering & Types of Tenders
Mandatory to e-publish all tender enquiries, RFPs, EOIs, pre-qualification notices and bid awards on the Central Public Procurement Portal (CPPP) and the Department's website, and to receive all bids through e-procurement portals. The CPWD platform is https://etender.cpwd.gov.in (linked to eprocure.gov.in). Cases requiring confidentiality for national security are exempted, approved by the Secretary with the Financial Adviser's concurrence.
| Type | Essence |
|---|---|
| Restricted Tenders | Any value, with prior competent-authority approval and recorded reasons. Tenders from CPWD-registered contractors or via two/three-bid are not restricted tenders. |
| Composite Tenders | Followed for all building and road works (irrespective of cost) — civil + horticulture + internal/external electrical and services. T/S Authority may dispense with recorded reasons. |
| Two Bid System | Bid-1 = Technical-cum-eligibility; Bid-2 = Financial. |
| Three Bid System | Bid-1 Eligibility; Bid-2 Technical specifications; Bid-3 Financial — where specs are finalized from bidder details. |
| Global Tender Enquiry (GTE) | No GTE for tenders up to Rs 200 Cr (per MoF amendment to GFR Rule 161(iv)). Below this, exceptional GTE needs prior approval of Secretary (Coordination), Cabinet Secretariat. |
A pre-bid conference clarifies doubts before submission; corrigenda go on the e-portal; it may be held more than once for complex works. Manual tendering is only an exceptional, recorded-reasons fallback.
EPC Contracts & the Special Purpose Vehicle
Following the CCEA decision (NITI Aayog OM, 5 Sept 2016) to substitute item-rate contracts with EPC (Turnkey) where appropriate, the cut-off above which contracts are taken up on EPC methodology is Rs 100 Cr. Three modes exist, ranked by preference:
Engineering, Procurement & Construction fully contracted; conceptual drawings by CPWD Architects. Technology Neutral.
Architectural planning by CPWD/Client architects; EPC contractor does E, P & C on that planning. Technology Neutral.
Architectural designs & engineering done in-house by CPWD/consultant; EPC contractor executes. Technology Pre-Selected.
Only if: (a) client resolves for a particular technology, (b) client has finalized all drawings, or (c) functional/site requirement demands. Pre-selection needs prior ADG/SDG approval with justification. Estimated cost worked out on CPWD plinth-area rates with cost index; reasonableness of the L1 bid checked by CE/NIT approving authority. Responsibility for investigation, design, planning, procurement, construction, safety, quality and risk lies with the contractor; soil report appended for indicative purpose only.
On MoHUA/Ministry requirement, DG CPWD may take up works on "Alternate Mode" funding via an SPV under the Company Act (after MoHUA approval), staffed by CPWD officers and governed by CVC and CAG rules.
NIT, Publicity & Validity
All tenders are invited "For & on behalf of the President of India". The estimated cost put to tender is based on the rates in the T/S. Before NIT approval, the checklist includes A/A & E/S (except emergent works), site availability, statutory clearances, T/S (except Design-and-Build/EPC & emergent works) and funds availability. Testing charges (incl. packaging, transport, testing) are borne by the contractor.
| Bidding limit | System |
|---|---|
| Up to max tendering limit of CPWD Class-I (B&R) contractors | Single Bid (T/S Authority may opt for Two/Three Bid with recorded reasons + CE approval). |
| Above that limit | Two/Three Bid System. |
Publicity period: 7 days for works up to Rs 5 Cr; 14 days for works > Rs 5 Cr (variable with recorded reasons, but never below 3 days; corrigendum needs min 3 days). Validity: 30 days from last date of receipt where only financial bids are invited; 75 days from last date of technical bid in all other cases. The Executive Engineer is responsible for keeping validity alive.
If no response or unreasonably high rates: open to next lower class (incl. Railways/MES/State PWD contractors) and/or modify eligibility, after ADG/SDG approval. If the lowest bidder backs out, re-tender transparently — and the backed-out contractor cannot participate in re-tendering.
| Concept | Key Fact |
|---|---|
| Labour co-op EMD exemption | Up to Rs 3 lakh |
| SC/ST price preference | 5%; no EMD ≤ Rs 2.5 L, ½% EMD up to Rs 5.75 L |
| E-tendering rules | GFR 159 & 160; CPPP + etender.cpwd.gov.in |
| Composite tenders | All building & road works (any cost) |
| GTE threshold | No GTE up to Rs 200 Cr |
| EPC cut-off | Rs 100 Cr; Mode I preferred → II → III |
| SPV governed by | Company Act; CVC & CAG rules |
| Tenders invited on behalf of | President of India |
| Publicity | 7 days ≤ Rs 5 Cr · 14 days > Rs 5 Cr · min 3 days |
| Validity | 30 days (financial only) / 75 days (others) |
| Testing charges | Borne by contractor |
Contract Management
Standard forms adopted as far as possible; no work commenced without prior execution of contract (Indian Contract Act); terms once entered not materially varied; no uncertain/indefinite liability without prior MoF consent. Integrity Pact provision in GCC, with IEM oversight (CVC Circular 05/01/22 dated 25.01.2022). Once a contract is determined, no revocation.
Earnest Money & Acceptance of Tenders
| Estimated cost band | Earnest Money |
|---|---|
| Up to Rs 10 crore | 2% of the estimated cost. |
| More than Rs 10 crore | Rs 20 lakh + 1% of estimated cost put to tender in excess of Rs 10 crore. |
| Petty works ≤ Rs 25,000 | EE may, at discretion, dispense with EMD. |
BG as EMD valid 90 days (financial bids only) / 180 days (two/three-bid) from submission. EMD of all but the lowest bidder refunded after bid validity or on acceptance of the successful bidder (whichever earlier); for two/three-bid, technically-failed bidders refunded within 30 days of technical result. Forfeiture: withdrawal/modification within 7 days of last submission → forfeit 50%; after 7 days → forfeit 100%; failure to furnish PG → EMD fully forfeited automatically without notice. In all forfeiture cases the bidder is barred from re-tendering.
Justification of tenders is prepared by the E-in-C before opening Financial Bids, on market rates of material/labour at site on the last day of receipt. Negotiations are not normally conducted; if necessary, restricted to the lowest bidder only in exceptional circumstances with the next higher authority's approval and recorded convincing reasons.
Performance Guarantee, Security Deposit & Agreement
5% of the contract amount, valid for a minimum of 60 days beyond completion of all contractual obligations. Submitted within (max) 7 days of the Letter of Intent; extendable by another 7 days with per-day interest. For supplementary agreements, fresh PG @ 5% of that amount. EMD refunded on receipt of PG.
Date of start: 3–10 days from issue of Letter of Intent (decided by NIT approving authority); commencement letter issued only after PG submitted. Security Deposit is deducted from running and final bills per GCC; agreement pages signed by E-in-C and contractor; the agreement record kept in Form CPWD 42; E-in-C is responsible for safe custody. Bank guarantees (EMD/PG/SD/mobilization/milestone) must be effectively monitored.
Execution, Quality & Advances
The officer who records/test-checks measurements is responsible for the quality, quantity and dimensional accuracy of that item. The Engineer-in-Charge is responsible for the overall quality of work. Where TPQA is deployed, SE/CE monitor compliance with TPQA observations. A QR-code with work details is displayed on site for public access.
| Advance | Essence |
|---|---|
| Mobilization Advance | For specialized/capital-intensive works; provision kept in tender per GCC; applicability indicated in Schedule 'F'. |
| Plant, Machinery & Shuttering Advance | For capital-intensive works, per GCC; applicability in Schedule 'F'. |
| Secured Advance | On materials brought to site, for a completed-item contract. Stage payments (E&M/specialized) are not secured advance. |
Extra/Deviation Items & Measurement
Extra items are not in the agreement but needed to complete the work; deviation is increase/decrease in agreement quantities. Rates worked out per Clause 12 of GCC. Deviation/extra items are used exclusively for that work; total expenditure must not exceed A/A & E/S (except MoHUA budgetary works, where ≤ 10% over A/A & E/S). Casual reasons like "required at site" are not acceptable.
E-in-C within own competency: 30 days. Higher authority: submission by E-in-C 15 days → processing by planning unit next 15 days → decision next 15 days (7 days each where more than one higher authority). If the contractor submits no claim in the GCC period, the E-in-C initiates the item, intimating that no later claim will be entertained.
All measurements are done per GCC and entered through the PFMS e-MB module. Inadmissible items claimed are recorded "without prejudice" for record only. Advance payments can be made on a running-account bill (Form CPWA 26) for work done/measured-or-not-measured on the contractor's application. Sub-standard work is accepted (at reduced rates) only where conforming materials are unavailable, re-doing is structurally impossible, or CE/SE finds it expedient.
The physical Hindrance Register is dispensed with for works whose NIQ/NIT was uploaded on/after 19.02.2019. Contractor registers a hindrance online; JEs/AEs comment within 2 days, then EE acts within the next 2 days. On a Clause-5.2 notice, the E-in-C replies within 10 days. All correspondence is considered for EOT/rescheduling of milestones.
Completion, Payment & Arbitration
| Completion certificate authority | Recorded by |
|---|---|
| Building/infrastructure ≤ Rs 10 Cr | EE |
| Building/infrastructure > Rs 10 Cr | EE and SE or CE |
| Horticulture ≤ Rs 1 Cr | DDH |
| Horticulture > Rs 1 Cr | DDH and SE or CE |
A provisional completion certificate (with a list of balance items) is recorded on substantial completion. The Occupancy Certificate (where required) is obtained from local bodies within 3 months of physical completion, monitored monthly. "Completion/As-Built" drawings of all services are handed to the client and maintenance unit.
A supplementary agreement is drawn for minor items not immediately executable (pre-requisite not contractor's responsibility, or maintenance/operation post-completion). Residual work up to 10% of the EE's/SE's T/S power may be decided by them; CE/SE have full powers for residual parts within the sanctioned amount.
Pre-arbitral and arbitration process per the contract's arbitration clause and the Arbitration and Conciliation Act, 1996; the arbitration clause comes into existence on issuance of LOI. For foreign-open tenders, an alternative international commercial arbitration provision is added after advice from the Ministry of Law and Justice. (Note: the Dispute Resolution Committee was dispensed with in the 2022 Manual.)
| Concept | Key Fact |
|---|---|
| EMD rate | 2% (≤ Rs 10 Cr); Rs 20 L + 1% (> Rs 10 Cr) |
| EMD forfeiture | 50% within 7 days · 100% after 7 days · 100% if no PG |
| Performance Guarantee | 5%; valid 60 days beyond completion; within 7 days of LOI |
| Date of start | 3–10 days from LOI |
| Agreement record | Form CPWD 42 |
| Overall quality | Responsibility of the Engineer-in-Charge |
| EI/deviation time limit (E-in-C) | 30 days within competency |
| Measurements via | PFMS e-MB module |
| Ad-hoc payment | 75% within 10 working days; balance ≤ 28 working days |
| TDS / GST | Section 194C IT Act 1961 / GST Act |
| Occupancy certificate | Within 3 months of physical completion |
| Arbitration | Act of 1996; clause on LOI; DRC dispensed with |
Stores, Quality Assurance & Miscellaneous
Stipulation of material in contracts has been stopped in CPWD works, so purchase of stores normally does not arise. In exceptional circumstances, the "Manual for Procurement of Goods and Services" (Ministry of Finance, Department of Expenditure) is referred; the T/S Authority decides eligibility and terms.
Quality Assurance — CTE Organization & QA Wing (Chapter 7)
Conducts inspections of CPWD works from the vigilance angle, on its own or on a complaint, for works of any magnitude (original and repair). Quarterly returns of works-in-progress submitted to CTE. The E-in-C must not quote/reference CTE inspections in correspondence with the contractor — CTE paras are issued as the E-in-C's own observations.
QA ensures progressively improved, uniform quality. For budgeted works, TPQA engaged for works above Rs 20 crore (or per Directorate). Where no TPQA, the QA units of Project Regions/Regions do random checks. (Recall: the circle-level QA team was dispensed with, and the E-in-C carries overall quality responsibility.)
Disposal of Buildings & Stores (Chapter 8)
No building is disposed by sale/demolition unless ascertained that it is not required by any Department, and/or is dangerous/beyond economic repair, or a vacant site is needed for a replacement. A survey report is prepared and sanctioned; then the reserve price is fixed on the assessed salvage value of dismantled materials. Salvage value = cost of dismantled materials less the cost of dismantling. For buildings not owned by CPWD/DoE, the owner/client's approval is needed.
Disposal by e-auction, sealed quotations or any suitable method. If unsellable even at scrap value, any other mode — including eco-friendly destruction — may be adopted. The E-in-C has full powers to fix the reserve price of purely temporary structures erected during construction.
Consultants, Hiring & Valuation
ADG/SDG appoints and prepares a panel of Private Architects/Consultants per the "Manual for Procurement of Consultancy and Other Services 2017" (MoF). Engagement is by the T/S Authority with recorded reasons, by calling bids from empanelled consultants. Consultant-prepared structural/E&M designs are authenticated "Good for Construction" by CE/SE/EE/AE before issue to the contractor (except EPC). Consultancy work may be assigned to IITs, NITs, Govt Engineering Colleges, CBRI and other Govt institutes without call of tenders.
For hiring private accommodation for Central Govt departments at Delhi, the EE (License Fee), CPWD is Chairman of the Hiring Committee (with the Asst Director of Estates and Asst Director (Finance), MoHUA). EEs/SEs/CEs can hire private accommodation for storage within the sanctioned estimate. CPWD has encadred officers in the Income Tax Valuation cell for valuation of properties referred by Income Tax, Customs & Excise, CBI, ED — per the Guidelines for Valuation of Immovable Properties 2009 (CBDT).
| Concept | Key Fact |
|---|---|
| Material stipulation | Stopped; refer MoF Manual for Procurement of Goods |
| CTE Organization | Technical wing of CVC; vigilance-angle inspections, any magnitude |
| CTE in correspondence | E-in-C issues paras as own observations, no CTE reference |
| TPQA (budgeted works) | Engaged for works above Rs 20 crore |
| Salvage value | Cost of dismantled materials less cost of dismantling |
| Stores disposal | e-auction / sealed quotations; scrap value; eco-friendly destruction |
| Consultants engaged by | T/S Authority, recorded reasons; panel by ADG/SDG |
| "Good for Construction" | Authenticated by CE/SE/EE/AE |
| Hiring Committee chair (Delhi) | EE (License Fee), CPWD |
| Valuation guidelines | CBDT 2009 Guidelines for Valuation of Immovable Properties |
Maintenance Works
Seven categories of maintenance works
- Annual repair and maintenance works (A/R & M/O).
- Special repair works — major repair/replacement/remodelling of a portion due to major breakdowns or deterioration.
- Additions/Alterations works.
- Maintenance of residences of VIPs.
- Day-to-day repairs.
- Petty repair works.
- Up-gradation work and aesthetic improvements in existing buildings.
Per GFR 2017 Rule 130, minor works that add capital value but do not create new assets are treated as Original Works under Capital Head. The E-in-C pre-decides the classification for estimating, booking and exercise of financial powers.
Modes of Execution & Client Interface
Maintenance should usually be in comprehensive maintenance mode — Civil, Electrical (excluding standalone operational and specialized works) and horticulture done through a single agency via composite tenders, with up-gradation/special repairs/A&A clubbed in. Other modes where comprehensive isn't feasible:
Day-to-day maintenance with materials issued from the maintenance store.
By call of tenders, where comprehensive isn't resorted to.
Emergent/urgent cases — spot quotations (emergency) or call of quotations (urgency).
Up to Rs 25,000 through hand receipts at reasonable rates, at E-in-C discretion.
For repetitive minor works needing immediate start & uniform rates; agencies fixed before the financial year.
Complaints are registered online through the "CPWD Sewa" web portal and mobile app, managed by CPWD service centres; toll-free numbers 1800114499 / 18002664499.
Powers to Undertake Maintenance
Officers have full powers to undertake works within their T/S powers. But for buildings not originally constructed by CPWD, and mechanical/electrical equipment not originally procured/installed by CPWD, maintenance may be undertaken only with prior approval of CE or SDG/ADG. Officers have full powers (within T/S competence) to augment electric supply for VIP residences up to the load sanctioned for Ministers, Supreme Court/High Court Judges, MPs, and Secretaries/Additional Secretaries.
Preliminaries — A/A & E/S, T/S, NIT
A separate Annual Works Plan is prepared per discipline (Civil, Electrical, Horticulture) and approved by CE/SE. For MoHUA budgetary works, no A/A & E/S is required for maintenance from budgeted works — except Additions & Alterations, where excess up to 10% of A/A may be authorized within T/S power. Technical Sanction is NOT required for general maintenance; it is issued only for works involving structural rehabilitation.
The estimated cost in the NIT is based on DSR/market rates for general maintenance; for structural rehabilitation it follows the T/S rates. The period of comprehensive maintenance is not more than three years for GPRA/GPOA works. Composite comprehensive-maintenance-cum-development tenders predominantly horticultural (> 50% horticulture, not exceeding Rs 1.80 crore) are called only from eligible enlisted horticulture contractors.
Deviation on Tendered Amount, Bidding & QA
Completion cost of any maintenance work shall not exceed 2.0 times the tendered amount (and 10% of sanctioned cost for budgeted works). Deviation approval ladder: up to 1.25× by the E-in-C; 1.25×–1.50× by SE/CE; 1.50×–2.0× by ADG/SDG — all with recorded reasons. For deposit/letter-of-authorization/CSSA works, completion cost shall not exceed A/A & E/S without prior client approval and funds.
Modes of bidding, contract management (apart from the deviation ceiling) and quality assurance for maintenance are analogous to construction works.
Maintenance Stores & Miscellaneous
Procurement of goods/services available on GeM is mandatory (Rule 149, GFR 2017); purchases up to Rs 5,000 via hand receipt/imprest/cash. Advance payments (GFR Rule 172) capped at 30% of contract value (private firm), 40% (State/Central Govt agency or PSU), or six months' amount for a maintenance contract — with bank-guarantee safeguards. CPWD officers may make advance payment up to 90% for supply of stores within their tender-acceptance powers.
The AE (or JE where no AE) ensures safe custody of stores. Government property (movable/immovable) is not normally insured — no liability without prior MoF consent (immovable) or DG, CPWD (movable). Materials accounted in the MAS (Material at Site) register. Physical verification of MAS/dismantled-material/T&P accounts is done by the next-higher authority at least once a year. Losses written off to head MH 2059 PW Minor Works–Losses on Stock. Every Division maintains a Register of Buildings, kept up to date; unsafe buildings are survey-reported and disposed of without land by auction (GPRA/GPOA need DoE, MoHUA approval).
| Concept | Key Fact |
|---|---|
| Maintenance categories | 7 (A/R&M/O, special repair, A&A, VIP, day-to-day, petty, up-gradation) |
| Minor works treated as | Original Works, Capital Head (GFR Rule 130) |
| Default mode | Comprehensive maintenance (single agency, composite) |
| Petty repairs limit | Rs 25,000 via hand receipts |
| Complaint app | CPWD Sewa; toll-free 1800114499 / 18002664499 |
| Non-CPWD building maint. | Prior approval of CE or SDG/ADG |
| T/S for maintenance | Only for structural rehabilitation; none for general |
| Comprehensive maint. period | ≤ 3 years for GPRA/GPOA |
| Deviation ceiling | 2.0× tendered amount (1.25× EE / 1.50× SE-CE / 2.0× ADG-SDG) |
| GeM | Mandatory (Rule 149); advance up to 90% for stores |
| Physical verification | By next-higher authority, at least once a year |
Green Buildings & Sustainability Measures
Emerging Technologies, C&D Waste & Pollution Control
To be used for all CPWD works irrespective of cost and location; any one such technology may be adopted. If not implemented, exemption from DG, CPWD is required.
Recycled C&D waste material used subject to quality control and standards; suitable clauses/items incorporated in the contract by the NIT approving authority per Directorate directions.
Fly ash bricks/blocks from recycled C&D waste / AAC blocks are mandatory in masonry for non-structural members (in place of burnt clay bricks) in Delhi NCR, Mumbai, Chennai, Kolkata, Bangalore, Hyderabad, Ahmedabad and Surat. Used in order of preference for buildings under 15 m; for buildings over 15 m, AAC blocks are used.
All works carry provisions for control of pollution from construction/demolition activities, concrete batch-mixing plants and dust, per MoEF/MoHUA/CPWD Directorate guidelines.
Skill India & Make in India
| Work value | Skill India on-site training (NSDC norms) |
|---|---|
| > Rs 50 Cr and up to Rs 100 Cr | Train at least 10% of the unskilled workers engaged. |
| > Rs 100 Cr | Train 20% of the unskilled labour. |
Pursuant to Rule 153(iii) of GFR 2017, the Department for Promotion of Industry and Internal Trade (Ministry of Commerce & Industry) issued orders for procurement through local suppliers — purchase preference to local suppliers in all procurements. Related guidelines from MoF (Dept. of Expenditure), MeitY and CVC are uploaded on the CPWD website and must be followed.
| Concept | Key Fact |
|---|---|
| GHAR certification | Green-Level mandatory for works ≥ Rs 50 Cr (Green Rating Manual 2021) |
| Emerging technologies | All works; exemption needs DG, CPWD |
| Fly ash / AAC blocks | Mandatory non-structural in 8 cities; AAC for buildings > 15 m |
| Skill India training | 10% (>50–100 Cr) · 20% (>100 Cr) of unskilled labour |
| Make in India rule | GFR Rule 153(iii); purchase preference to local suppliers |