Background

Background and Rationale

The National Economic and Development Authority (NEDA) and the United Nations Development Programme (UNDP) Philippines have embarked on a partnership to strengthen the conduct of evaluations of priority government programs under the PDP. Financed by the NEDA and implemented with full UNDP Country Office support, the Strategic M&E Project will help strengthen the M&E capacities of NEDA and key government agencies to support the achievement of the PDP and the Sustainable Development Goals (SDGs) through evidence-based decision making.

A key component of the project is the commissioning of independent evaluations on key themes and programs relevant to the PDP and the SDGs. These studies will evaluate the relevance, efficiency, effectiveness, and sustainability of priority social and economic programs that have been implemented or are being implemented by the government. The results of the evaluation studies are envisaged to inform how policies and programs are designed and implemented to achieve the desired results of the PDP and contribute to strengthening the government’s M&E systems.

One of these evaluations is on the implementation of the Roll-on/Roll-off Terminal System (RRTS).

The Government of the Philippines (GOP) enacted a policy to promote the development of RRTS through Executive Order No. 170 and 170 – A, Series of 2003 and Executive Order No. 170 – B, Series of 2005. The RRTS was envisioned to become a network of highway and vehicular ferry routes that form the backbone of a nationwide transport system. It was aimed to reduce the transport costs, particularly the inter-island transportation from Mindanao to Luzon through the Visayas. The use of roll-on/roll-off (RoRo) vessels was also seen as a more efficient and cost-effective system for transporting goods and people as compared to the traditional load-on/load-off system. Through the promotion of the nautical highway system via RoRo, the government sought to enhance tourism and commerce; help boost agro-fisheries modernization and food security programs; and, promote private sector participation in the establishment, construction, and operation of the RRTS facilities.

The Strong Republic National Highway (SRNH) network was established through the development of the three (3) nautical highways and the lateral links between ports in the Eastern and Western nautical highways. After the initiatives of the Arroyo administration, the succeeding administrations sustained and built on the SRNH. The Aquino administration sought to further develop the Central Nautical Highway or Central RoRo Spine. It likewise explored the possible expansion and connection into an Association of Southeast Asian Nation (ASEAN) RoRo network as a flagship program in the ASEAN Connectivity Masterplan (PDP 2011-2016). As the Duterte administration capitalizes on infrastructure to achieve sustainable development, it continues to see the strengthening of the RoRo network as a priority under the 2017-2022 PDP and the annual Budget Priorities Framework.

An independent evaluation is necessary to gain an objective view of the implementation by national government agencies (NGAs) and the local government units (LGUs) of the RRTS.

NEDA, through UNDP, is commissioning such an evaluation. It will make use of a mixture of appropriate methodologies, including the analysis of available data[1] and primary data collected in the field for the development of case studies of how local economies have benefitted from or been affected by the RRTS.

UNDP requires the services of a Technical Adviser who will provide strategic guidance on the design, methodology, data gathering and analysis tools, and other considerations for the evaluation of RRTS. The Technical Adviser will closely collaborate with Firms—including but not limited to consulting companies, academic institutions, non-profit research outfits, etc.—tapped by UNDP for the methodology design, data gathering, case study formulation, and analysis and evaluation. The Technical Adviser will also be tasked to consolidate and synthesize the results of the evaluation phases as conducted by the Firms.

The Technical Adviser will also be providing advice and assistance to the Evaluation Reference Group (ERG) for the study, which is chaired by the NEDA and composed of the Department of Transportation (DOTr), the Department of Public Works and Highways (DPWH), Philippine Ports Authority (PPA), Maritime Industry Authority (MARINA), and UNDP. Such ERG will provide direction and input to the design and conduct of the study as implemented by the Firms.

Objectives of the Evaluation

The overarching purpose of the evaluation is to assess the RRTS policy against its broad set of goals: increase in tourism, trade, agricultural productivity, and employment (including labor migration). Also, it aims to explore the contributions of the policy to the achievement of these goals on two levels: local and national. The study will also have two (2) phases: Western Nautical Highway for Phase 1, while Luzon and Mindanao-based RoRo ports will be considered for Phase 2. This is to ensure a nationwide and comprehensive assessment of the RRTS.

Specifically, at the local level and for Phase 1, six (6) case studies will be produced in ports located at the Western Visayas Nautical Highway. Although existing studies by the Philippine Institute for Development Studies (PIDS) and the Asian Development Bank (ADB) have already explored the overall impact on education, income, and health of areas covered by the RRTS, this evaluation will provide more granularity to the effects of the RRTs and explore unintended consequences, port operations, regional contributions of the RRTS, extent of local implementation and compliance of the RRTs, and integration to the Philippines.

At the national level, the evaluation study will specifically assess the extent by which the RRTS can be integrated to the current infrastructure development trends of the country and explore potential regulatory improvements and harmonization. This two-tier method of analysis, will surface issues at the local level that needs attention at the national level and issues, which emanate at the national level, which affect the local level. Moreover, it will also guide economic managers on how to best optimize these results and enhance the investment infrastructure of the RRTs. The evaluation will also assess the efficiency of national and local port operations. To also ensure the validity of further developing RoRo ports and routes, a framework or tool for cost-benefit analysis will be developed to assist in better identifying locations of future ports and routes.

[1] Includes the Cities and Municipalities Competitive Index (CMCI); volume of RoRo traffic per port per vehicle type; volume of passenger traffic per port by passenger type; number of shipcalls per port; volume of RoRo container traffic per ports; and, volume of RoRo cargo in tonnage per port by type.

Duties and Responsibilities

Scope of Work and Methodology

Under the overall guidance of the ERG of the RRTS evaluation study and reporting directly and regularly to the Strategic M&E Project Coordinator of UNDP, the Technical Adviser is expected to:

1. Oversee the evaluation study to be undertaken by the Firms and ensure the technical and scientific soundness of the Firms’ evaluation approach and methodolgy. That said, s/he is expected to provide overall guidance and direction to the Firm in the design, conduct, write up, review, and finalisation of the evaluation study;
2. Collaborate with the Firm contracted for Phase 1 of the evaluation in designing the approach and methodology following the specifications in this Terms of Reference; and towards the end of Phase 1, recommend refinements to the evaluation methodology in time for the contracting of Phase 2 of the evaluation;
3. Ensure the quality of the Firms’ deliverables including the Inception Report (to include evaluation approach, methods and matrix, preliminary findings), Draft and Final Evaluation Reports, Case Studies, Presentations, and other outputs, following the NEDA and UNDP’s quality standards for evaluations;  
4. Support the UNDP and NEDA in assessing the performance of the Firms in implementing the evaluation study;
5. Assist UNDP and NEDA in the scouting, shortlisting, selecting, and contracting the Firm that will conduct RRTS evaluation studies in the Phase 2;
6. Communicate and consult with NEDA and UNDP and other stakeholders and incorporate their comments in the evaluation report.
7. Develop a synthesis report of the three (3) evaluation studies covering Western Nautical Highway (for Phase 1) and the Central and Eastern Nautical Highways (for Phase 2). The said output should be drawn from the reports and case studies to be developed by the Firms;

In undertaking the evaluation, the Technical Adviser is expected to collaborate with the Firms in designing a mixed-method approach and provide guidance and feedback to the Firms:

1. Quantitative – gathering and analysis of existing data from the government (e.g. port statistics; revenues from relevant local taxes/fees) and other stakeholders (e.g., data from shipping and bus operators, etc., on shipments, revenue, etc.). The Firm, in collaboration with the technical adviser, shall develop the model to be used for analyzing such data.
2. Qualitative – through desk review and documents content analysis, as well as key informant interviews and focus group discussions with key stakeholders, identify and illustrate benefits and consequences of the RRTS to the localities, explore the institutional arrangements and other factors that help create or dampen such benefits, and illustrate other local-level factors that should ideally be considered by the national government in regulating and promoting RRTS development. At least four (4) case studies of ports and their localities along the Western Nautical Highway will be produced under Phase 1. Meanwhile, at least eight (8) case studies will be documented in Phase 2.

From the findings, the evaluation study will design a standard framework and methodology for the conduct of evaluations in the future on the RRTS. The framework may include the following: a) the improvement of the quantitative and qualitative tools and methodologies used in Phase 1 for use in Phase 2; and, b) initial design of a cost-benefit analysis tool or other methodology to support the government in assessing future investments in new or existing RoRo ports and other nautical highway components.

Expected Outputs and Deliverables

The Technical Adviser shall collaborate with and provide advice to the Firms contracted by UNDP for each phase of the evaluation, and to provide feedback to and assure the quality of the outputs of each of the Firms, to wit:

1. Inception Report – describes the subject of the evaluation, country context, provide an operation factsheet and a map, and provide a stakeholder analysis. The Inception Report will also describe the evaluation methodologies and the approach to be taken to cultivate ownership and organize debrief sessions and quality assurance systems developed for the evaluation. The Inception Report will include use of Evaluation Plan Matrices, and it will outline how the Firm will collect and analyse data to answer all evaluation questions. Finally, it must include an evaluation activity plan and timeline. The evaluation designs and proposed methodologies specified in the Inception Report must reflect the evaluation plan, budgets, and operational environments, and the extent to which methods lead to collection of reliable data and analysis that provide a basis for reaching valid and reliable judgements. The inception report shall be drafted by the Firm in close collaboration with the technical adviser with respect to the development of methodologies. An inception workshop may be held to support the development of the inception report.
2. A Draft Evaluation Report. The evaluation report will outline the evaluation purpose, scope and rationale, and the methodologies applied including the limitation that these may come with. Prior to finalising the report, the Firm should share to NEDA and UNDP and stakeholders and facilitate a validation/meeting workshop. The report will also be shared with the ERG and quality assustance for review. Based on the outline agreed upon during the inception stage, the draft report provides an initial consolidation of the findings and recommendations of the study based on the data gathered and analyzed so far. The report should include as attachments the case studies.
3. A Final Draft Evaluation Report. The report must reflect the TOR and Inception Report and outline evaluation questions and the Firm answers to these alongside other findings and conclusions that the teams may have obtained. The report will also outline interim lessons learned, recommendations, and proposed follow-up actions. It should follow the UNEG evaluation report guidance. The report refines and completes the consolidation and synthesis of the findings and recommendations of the study based on all the data gathered and analyzed. This report will be routed to key stakeholders for management response.
4. A Final Evaluation Report with Management Response which makes necessary refinements or adjustments to the report based on the management responses to be provided by the DOTr, PPA, DPWH, MARINA, and other agencies.

The Technical Adviser shall support UNDP and NEDA in preparing for Phase 2 of the evaluation, particularly a) review of the methodology used for Phase 1 and refinement in time for implementation for Phase 2; b) support to UNDP to the selection and performance rating of Firms.

1. The Technical Adviser shall produce a Synthesis Report of the three (3) evaluations covering the Western Nautical Highway (for Phase 1) and the Central and Eastern Nautical Highways (for Phase 2). The said output should be drawn from the reports and case studies to be developed by the Firms and synthesize common lessons for the national government to consider in refining its policy and programs to promote the RRTS. The synthesis shall likewise include the recommended design for a standard framework and methodology for the conduct of evaluations in the future on the RRTS and shall include the design of a cost-benefit analysis tool or other methodology to support the government in assessing future investments in new or existing RoRo ports and other nautical highway components.

The Technical Adviser shall also:

• Present the synthesis report to a public forum, as decided upon by the ERG. In doing so, they shall prepare a presentation slide deck;
• Produce condensed versions of the synthesis report, namely: i) a one-page summary of the key findings of the study; ii) a maximum five (5)-page executive summary; and
• Submit a proposed communication plan containing recommended strategies and actions for communicating the study and its results to key stakeholders and the general public.

Competencies

• Demonstrates integrity by modeling the UN’s values and ethical standards;
• Promotes the vision, mission, and strategic goals of UNDP;
• Displays cultural, gender, religion, race, nationality and age sensitivity and adaptability;
• Treats all people fairly without favoritism;
• Expertise in data collection and analysis
• Ability to work under pressure and tight deadlines;
• Strong analytical and research skills; and
• Excellent organizational, and communication skills;

Required Skills and Experience

Qualifications of the Successful Individual Contractor

The Technical Adviser shall have the following minimum qualifications:

• At least a master’s degree in transportation studies, economics, political science, social science, public administration, management, or other relevant fields. A doctorate degree is advantageous;
• At least five (5) years of work or consultancy experience in the monitoring and evaluation of development programs and projects, with preference to those with demonstrated specialization/ experience in evaluations. Those with professional experience in government and development sector are preferred.  
• Have published research work in relevant policy/program areas and/or research output from consultancy projects is preferred. Research works may include applied research studies, e.g. evaluation, action research, policy papers, etc.;
• Demonstrated knowledge of and specialization in the application of various quantitative and qualitative research methodologies;  
• Demonstrated specialization, through at least three (3) published or unpublished works, in at least one of the following areas: transportation economics, urban and regional planning, transportation governance, etc. thematic area relevant to the evaluation.
• Strong command of the English language (written and spoken). Those fluent in the national language are preferred. International consultants currently based on or have worked in the Philippines preferred.

Scope of Price Proposal and Schedule of Payments

1. Financial proposals must be expressed a daily fee which should include all costs (professional fees, travel costs, living allowances, communications, consumables, etc.). Each person-day of work delivered may be billed upon submission of a time sheet or report, the submission for which may be made immediately after the delivery of outputs as specified in Part E.
2. Cost of international airfare to and from the Philippines, and domestic airfare to and from Manila and the localities of field work, as indicated in Part E, shall be proposed separately and will not be part of the daily fee.

Recommended Presentation of the Offer

Interested bidders must submit the following:

1. Duly accomplished Letter of Confirmation of Interest and Availability and including the financial proposal, using the template provided by UNDP;
2. Personal CV indicating all past experience from similar projects or requirements, as well as the contact details (email and telephone number) of the Candidate and at least three (3) professional references;
3. Portfolio of Prior Research Work and other Relevant Projects, with Evaluation Studies listed first followed by published and unpublished research outputs. A list with hyperlinks to publicly accessible websites or shared cloud storage, and a sample research output, is required at this point. Printouts of the research outputs are discouraged. Include in the list a) information on contract cost, duration, and key outputs/performance indicators; b) if feasible, statements of satisfactory performance from the top clients in terms of contract value in the past and these clients’ contact information;
4. Brief description of not more than 5 pages long: a) why the candidate considers him/herself as the most suitable for the assignment, highlighting specialized background advantages for the scope of work and requirement; and b) the proposed methodology and approach for the evaluation in general and for working with the Firms given the specifications in this TOR and the attached Evaluation Plan.

Complete and detailed TOR along with the application requirements can be accessed thru this link:

http://procurement-notices.undp.org/view_notice.cfm?notice_id=50718