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Terms of Reference: External Evaluation of the Integrated Service Delivery & Rights based programme in Brick Kilns of (N) 24 Parganas, West Bengal
 GOAL India

 Location: West Bengal
 Last Date: October 25, 2010
 Email: (Reference:


Terms of Reference: External Evaluation of the Integrated Service Delivery& Rights based programme in Brick Kilns of (N) 24 Parganas, West Bengal by GOAL India.

 External Evaluation Terms of Reference, October 2010 

1.     Introduction

GOAL is an international humanitarian organization dedicated to alleviating the suffering the poorest of the poor. GOAL in India supports the overall mission of the organization by implementing poverty alleviation programmes in West Bengal , through partnerships with national NGOs with the objective of building the capacities of the poorest of the poor towards self sustenance and self determination, while simultaneously reducing their vulnerability to crises, neglect, abuse and exploitation. GOAL India is committed to eradication of poverty in all forms: social, economic, cultural, political etc and has strategized investment in area based integrated programmes to address the multiple needs of individuals, households and communities in underdeveloped urban and rural areas of West Bengal.   

Under the framework of the Country Strategic Plan (2007-2011) ,  GOAL India has been implementing the Integrated Service Delivery & Rights based Programme in Brick Kilns of (N) 24 Parganas, West Bengal.  Refer Annexure I for project summary. 

The Country Strategic Plan (2007-2011), makes a commitment to an evaluation which will focus on “the poverty impacts of the CSP 2007-2011” . To maximise the utility of such an evaluation, this evaluation needs to be carried out before the end of the current plan / programme period  2007-2011.  

The Primary audience for the evaluation will be the GOAL India Management team, while the secondary audience will include the GOAL India national partner organizations, GOAL HQ and Irish Aid, other audiences will include local stakeholders. 


The purpose of this evaluation is to provide GOAL India with an independent, evidence –based assessment of how the programme strategies adopted by GOAL India for the Integrated Service Delivery & Rights Based programme in Brick Kilns has contributed to reducing the poverty and vulnerability of targeted communities . The assessment will help inform the development of  a performance based GOAL India support strategy for the development of poverty alleviation programme in India beyond 2011 and contribute to how GOAL India partners might strengthen their programming.  


The evaluation will focus on the contribution that the Integrated Service Delivery & Rights Based programme in Brick Kilns has made to poverty reduction and what the stakeholders ( partners and communities) have achieved with the support provided by GOAL India. The overarching question for the evaluation will thus be : 

“To what extent has the Integrated Service Delivery & Rights Based Programme for Brick Kilns contributed to reducing poverty and vulnerability”?  

In respect to this question, the evaluation will provide an assessment based upon outcomes and achievements of the Integrated programme. The assessment will examine in detail qualitative and quantitative evidence from a substantive and representative sample of the brick kilns in (N) 24 Parganas. In assessing performance, the evaluators will take cognisance of the theory of change, results’ framework and strategy for poverty reduction as stated in the GOAL India CSP 2007-2011. 

GOAL India recommends that the evaluation will use the OCED-DAC evaluation criteria of relevance, effectiveness, efficiency and sustainability[1]. As appropriate , assessments against these criteria will be backed by evidence of outcomes at the immediate and/or intermediate objective levels. Assessments will refer to the annual proposal of the Integrated service Delivery & Rights Based Programme in Brick Kilns in Barasat (I) & (II) blocks, (N) 24 Parganas.  

Key questions for consideration include: 


1. To what extent is the Integrated Service Delivery & Rights Based Programme in Brick Kilns  a relevant response to the multi-dimensional  aspects of poverty and vulnerability ?.


 2. To what extent has the Integrated Service Delivery & Rights Based Programme in Brick Kilns  been effective ( immediate and intermediate outcome levels) in helping reduce poverty and vulnerability through supporting responses to crises, strengthening the development of workers and improving access to resources and services?

 3. To what extent did the Integrated Service Delivery & Rights Based Programme in Brick Kilns  , informed by situational analysis and policies , focus on the achievement of results, accountability and the measurement of longer term impacts?


 4. To what extent has the programme involved the targeted communities ( workers, brick kiln owners and their staff)  and local stakeholders at the village,  Gram Panchayat, Block and district level thereby helping strengthen programme participation and ownership in the delivery of poverty and vulnerability focussed programme?.

 5. What factors have enabled the Integrated Service Delivery & Rights Based Programme in Brick Kilns  to deliver efficiently on the strategic objectives as elaborated in the project proposals ?.

 6. To what extent has the Integrated Service Delivery & Rights Based Programme in Brick Kilns   been efficiently managed by GOAL India and its partners?


 7. Is there any evidence that the benefits resulting from the GOAL India funding support are likely to be sustained? 


 This document will not clarify exhaustively the methodology to be undertaken by a consultant(s) in carrying out this evaluation; it will be the responsibility of each interested consultant to identify how s/he/they would propose to undertake the assignment and bench mark it against internationally recognised best practice.

 The following are to be borne in mind however:

 §  The overall objective of the evaluation framework is to examine the extent to which the Integrated Service Delivery & Rights Based Programme in Brick Kilns has been able to promote improvements specifically related to coverage of interventions and quality of outcome[2].  Adhering to the logic model/ results based management approach , the results of the assessment shall not only be used to flag what the initiative has achieved but also shall provide diagnostic insights into the processes and comment on the efficiencies. 

§  In consonance with the implementation design, a cross sectional evaluation design is proposed
§  wherein both quantitative and qualitative components are used to assess the results and outcomes.

 §  The Mix design will be followed for the quantitative component and quantitative findings will be substantiated with the qualitative findings to assess the overall impacts. Also, to make the design more robust it is proposed to have the comparison group during the assessment so that the impact can be attributed to the project.

 §  The key objective of the assessment  will be to measure and compare changes in key project indicators. To measure changes, which could have occurred due to project interventions, sample size should be statistically adequate to identify and measure those changes.  

§  To make the evaluation effective, the  output should necessarily present a synthesis of the “What (& why) is happening”, “What (& why) had happened” and “What (& why) can happen” i.e. Present, Past and Future.   

§  There is significant prior documentation pertaining to the programme, in the form of proposals, monitoring reports etc. All of this documentation will be made available to the consultants for reference. 

§  Fieldwork will be required to facilitate the consultant(s) to arrive at a conclusion pertaining to each of the matters outline above. Staff members of GOAL India and of Partner organizations will be readily available to offer views and ensure efficient implementation of the evaluation fieldwork. 

§  The assessment will employ participatory tools and skills to facilitate discussions. 


 The outputs of this evaluation process will be;

 1)     A detailed report that outlines progress made in relation to set objectives, including the findings, analysis, key lessons and recommendations. The report will also outline key challenges and emerging opportunities for GOAL India and the respective GOAL India partners. The findings will be supported by quantitative and qualitative evidence  related to outcomes.

2)     Provide specific recommendations on the future direction of the Integrated Service Delivery & Rights Based Programme in Brick  Kilns  with specific reference to the latest best practice.

3)     Recommendation of appropriate methodologies and indicators for measuring the impact of the Integrated Service Delivery & Rights Based Programme in Brick Kilns as well as a review of current methodologies and indicators.

 The report will be expected to include clear justifications for the choices and recommendations proposed. These should include short term and long term recommendations. 

The consultant(s) will be expected to formally present a draft report to GOAL India within two weeks of concluding the evaluation fieldwork.  The presentation should highlight major findings and observations and core recommendations.  The formal presentation will afford GOAL India, the opportunity to comment on the evaluation findings and suggest final amendments. 

Subsequently, a final report will be expected from the consultant(s) within one week of the presentation/ receipt of feedback from GOAL India on the draft report. 


 It is envisaged that the entire process, including fieldwork, documentation and presentation of evaluation findings will be completed in not longer than 40 days. 

The evaluation is planned to commence on the 1st week of November, 2010 and a report submitted by 10th of   December, 2010.   


All interested consultants are requested to submit a document tendering for this assignment.  Each tender should provide detail on the following: 

§  The consultant’s understanding of the TOR

§  Proposed methodology to be adopted in achieving TOR

§  Time frame for completion of task

§  Proposed team for the assignment with their CVs.

§  Non-financial resources required (e.g. transport, personnel time, administrative arrangements, etc.)

§  Preferred payment schedule.

§  Two references (One of your own choice and the other from your last client/employer).

§  Proposed budget; including an overall quotation in Indian Rupees for all the services to be provided and must itemize the following:

§  An all inclusive day rate for (professional and administrative)

§  An amount for per diems (daily subsistence allowance) if applicable.

§  Any other cost indicating the nature of such costs.

§  Summary of the total costs for the services proposed. 

Please note that , costs for proposal preparation and of negotiating a contract, including travel cannot be reimbursed as a direct cost of the assignment. 

The detailed proposal will be sent to GOAL India by the 25th of October,2010 either through e-mail  at with subject line marked as “ GI Integrated Service Delivery & Rights Based Programme in Brick Kilns  –Evaluation 2010 – Proposal” or through post , addressed to “The Administrator” , GOAL India , 39- Hindustan Park, Kolkata -700029. Please inscribe on the outside of the envelope in bold “GI Integrated Service Delivery & Rights Based Programme in Brick Kilns –Evaluation 2010 – Proposal” 

8. Proposal Evaluation and appraisal

 The  proposal will be evaluated based on the following criteria 

§  Known reliability in delivery of timely and quality services

§  Suitability of experience, field specific and thematic

§  Suitability of qualifications

§  Demonstrated understanding of the evaluation proposed

§  Cost. 

Annexure I 

Summary of the Integrated Service Delivery & Rights Based Programme in Brick Kilns: 

The Integrated Service Delivery & Rights Based programme in Brick Kilns was initiated in 2006 with Narayantala Mass Communication Society (NMCS). GOAL India identified the brick making industry in 2006 as one of the areas where the largest number of poor are seasonally engaged to produce bricks for the expanding construction needs of a rising economy. The GOAL supported project for workers in brick kilns, began in 2006 in 10 kilns in Barasat II block of (N) 24 Parganas to provide education, health and psychosocial services to children and adults. The project expanded to a further 5 kiln communities in 2007 to increase the connection between the project and kiln workers[3].  In 2008, GOAL enhanced its persuasion strategies and established direct linkage with Government Departments to ensure entitlements of the migrant communities. In 2008, GOAL conducted an internal evaluation, and redesigned the programme to create more impact in the lives of the migrant communities. 

From the evaluation, it was experienced that the primary issue behind sustainability is the complex nature of stakeholder involvement in the high profile but completely unorganized and non-regulated industry. The vulnerable state of workers employed in the brick kilns are due to a combination of factors. Among the many, the following are worth mentioning: 

1. The Individuals themselves are unaware of their own rights and entitlements.

2. They are compelled by poverty to bear exploitation.

3. Policy and judicial inadequacies in implementation of constitutional enactments.

4. Corrupt and indifferent politicians. 

5. Inadequate civil society action. 

Learning from the evaluation, the project was scaled up to another 10 kilns to pilot the replication of the successful initiative along with two new implementing partners, Kotalipara Development Society (KDS) and Barasat Unnayan Prostuti (BUP). The objectives of the project expansion to further 10 kilns communities in 2009 were to increase service coverage, but importantly to broaden the presence and base of civil society to leverage changes in the kilns. In concluding the 2009 phase & fourth year of the programme, workers in 25 kilns were being supported to meet their education, health and entitlements needs through three implementing partners. The programme has been further upgraded to include 10 more kilns in 2010, bringing the total number of kilns under the programme to 35 in Barasat (I) & (II) Blocks of (N) 24 Parganas.

 The conditions experienced by individuals and families residing and working in the brick kilns are akin to a modern form of slavery or bonded labour. Children and women happen to be the worst sufferers. They continue to live in morbidity due to different occupational and health hazards arising from long hours of back breaking work, inadequate nutrition, improper hygiene, inadequate access to sanitation and drinking water, unsafe deliveries, occurrence of reproductive tract infections, anaemia, smoke inhalations during cooking etc. Women and children in particular are also exposed to risks of sexual abuse.

 GOAL India is committed to addressing the needs of the poorest of the poor and making appropriate, measurable and sustainable improvements in their knowledge, skills, behaviours, achievements, life chances and life quality.  GOAL India realizes that it is not for the organisation to directly support all those who are being abused and exploited, it can however deliver a model of intervention that offers solutions to the complexities and one that will inspire replication for others.

Annexure II




§  There will be 50% reduction in the incidence of water borne diseases among kiln residents across 25 kilns arising from 90% of residents having access to clean water and sanitation facilities.


§  Number of cases of prevalent diseases (water borne) within a defined time period in target population.


§  Project records will demonstrate improved health among all residents at the 35 kilns and, in particular, improved health and survival among pregnant women, new born babies and children under-six years residing at the project kilns.


§  % of Individuals who perceive an improvement in health status since the same time last year.  [Consistent with GOAL Core Indicator 1.1]


§  The proportion of morbidity in children U6 attributed to a specific disease or cause. [Consistent with GOAL Core Indicator 7.4]


§  Percentage of women who attended at least 2 ANC visits before delivery and 1 PNC visit following delivery.


§  Percentage of population with knowledge of at least two ways of prevention of HIV. [Consistent with GOAL Core HIV Indicator 4.1]


§  Percentage of population who indicate that they would support / accept community member who was living with HIV [Consistent with GOAL Core Health Indicator 4.2]

§  All babies born to Indian families residing in the kilns will be recognised citizens of India with the full rights and entitlements of any citizen

§  Percentage of children with birth registration certificates.


§  80% of the children (6-14 years) will be functionally literate, having basic reading, writing and arithmetic competencies)


§  Standardised tests reveal a minimum of 80% of participating children are functionally literate in accordance with standard definitions of functional literacy.


§  20% of the children (6- 10 years) will be mainstreamed in formal primary education.


§  By 2010, at least 20% of the children supported through the project are in formal education

§  Reports of sexual exploitation of adolescent children (11-18 years) will have reduced by 60%.


§  Reports of incidence of sexual exploitation reduced by at least 60 % by 2010.

§  Children (under 10 years) residing in 50% of the brick kilns covered under the programme will not be engaged in child labour.


§  50% of project kilns not engaging children under-10 years in brick production by 2010.


§  Child Protection groups will have increased number of reported cases of sexual exploitation and improved self protection and initial case management mechanisms.


§  80% of the total children participate in the child protection group meetings.

§  80% of the children are aware about and refer to the personal safety protocol designed by the project.


§  50% of adults will be functionally literate (have basic reading, writing and arithmetic competencies)


§  Standardised tests will be reveal a minimum of 80% of participating adults are functionally literate in accordance with standard definitions of functional literacy.


§  Adult workers in 50% of kilns covered under the programme will be employed on the basis of fixed working hours and will be in receipt of at least minimum standard wages for their labour.


§  Wage registers at the brick kilns.


[1] While it is recognized that the evaluation may not be able to measure long-term effects resulting from interventions supported by the programme (impact level), it is expected that where evidence of such impact is available( positive or negative ) this will be documented.

[2] Refer Annexure II

[3]  While the same communities return to the brick kilns to work each year, they do not necessarily return to the kiln in which they worked the previous season. Key reasons for this include the fact that kiln owners do not want workers to get too entrenched in the same working area.


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