What is meant by tender under two cover system?

The two cover system in tendering refers to a method where bids are submitted in two separate envelopes or covers. The first cover typically contains the technical proposal, which outlines the bidder's qualifications and compliance with project specifications, while the second cover contains the financial proposal, detailing the price. This system allows for the technical aspects to be evaluated independently before considering the financial bids, ensuring a fair assessment based on merit before cost factors are introduced.