UNITED NATIONS CHILDREN’S FUND
REQUIRES
International consultancy –Institutional – to conduct beneficiary assessment for the Child Care
System Reform (IPA 2014)
The Agency will be selected based on the following criteria:
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Experience in conducting surveys, evaluations, assessments etc.;
Technical expertise on child care (children without parental care, children with disability,
community based services development, alternative family placements, transformation of
institutions, gate-keeping);
Knowledge of HRBA and gender mainstreaming;
Familiarity with the child protection / social welfare system in in Montenegro;
Knowledge of the UN Convention on the Rights of the Child and relevant international
standards in the area of child protection;
Previous experience in working with UNICEF is an asset;
Communication skills.
The beneficiary assessment team should include a national consultant.
The qualifications and skill areas required include:
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Sufficient number of qualified contracted experts and staff members to respond to the tasks in
the ToR (including the national consultant);
University degree, preferably advanced in social sciences;
At least 5 years of professional experience in the area of social and child protection;
Excellent written and spoken English or Montenegrin;
Excellent analytical and report writing skills;
Excellent communication and presentation skills;
Ability to keep with strict deadlines.
The Terms of Reference for the position and the Supplier Profile Form can be found on the website
www.unicef.org/montenegro or picked up at UNICEF Montenegro office.
Please apply with:
1. Supplier Profile Form
2. Technical Proposal
a. Agency Profile
b. CV of key experts
c. Narrative proposal (addressing all aspects and criteria outlines in the ToR)
3. Price proposal (financial offer consisting of fee for the services to be provided, travel and
subsistence costs)
Send your application by email, mail or fax, quoting “Beneficiary assessment” to the following address by
December 6, 2015:
UNICEF, Stanka Dragojevica bb, UN Eco Building, 81 000 Podgorica
Fax: +382 20 447 471
Email: podgorica@unicef.org
UNICEF IS A SMOKE FREE ENVIRONMENT
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Terms of Reference
International consultancy –Institutional – to conduct beneficiary assessment for the Child Care System
Reform (IPA 2014)
Background and Context
Since becoming an independent State in 2006, Montenegro has officially joined the international community
and in doing so a new blueprint has emerged for nation building. On 28 June 2006, it became the 192 nd
Member State of the United Nations, and on 11 May 2007, the 47th Member State of the Council of Europe.
Montenegro presented its official application for membership of the European Union in December 2008 and
two years later it became a candidate country for EU membership. Like its neighbouring countries, it has a
rich cultural heritage, a diverse history and is well poised to enjoy integration with the European community.
Montenegro belongs to a group of upper Middle Income Countries with GDP per capita EUR 5561in 2014.
Montenegro experienced rapid economic growth ranging between 8.6-10.7 percent of GDP in 2006 and
2007 respectively. However, as a result of the global economic crisis that hit the country in the second half
of 2008, the real GDP growth rate saw a steep decline. After slow and modest economic recovery in the
period 2010-2011, Montenegrin economy returned to recession in 2012 with -2.5% real growth rate of GDP.
In 2013, the economy started to recover and the real growth rate of GDP was 3.3% and 1.8 in 2014 (Monstat).
The global economic crisis hit the economy of Montenegro hard having prolonged negative impact on wellbeing of citizens. The economic recession resulted in further increase of poverty rate in the country from
9.3% in 2011 to 11.3% in 2012 and then again declined to 8.6% in 2013. There are also spatial disparities in
terms of poverty that represent serious impediment to the fulfilment of human and child rights. In 2013,
poverty rate in the northern and central region was 10.3%, which was much higher than in the southern
region (3.8%) (Monstat, 2014). According to the Child Poverty Study in Montenegro (UNICEF, 2012), child
poverty is concentrated in rural areas and in the north of the country with more than 3/4 of all poor children
living in rural areas, and more than half of them living in the north of the country.
Montenegro’s transition to a market economy as well as social and economic trends led to reforms in all
sectors. The country has embarked upon an ambitious legal and judicial reform programme in line with its
international obligations and aspirations to meet the Copenhagen Criteria, by acceding to most international
treaties and conventions in a very short period of time, and by upgrading its legislation and establishing an
institutional human rights protection framework1.
As regards the reform of the social welfare and child protection sector, the Government of Montenegro
engaged in a piecemeal reform in the early 2000’s. International partners have been advocating that the
Government takes a systemic approach to social and child protection through consistent and coordinated
efforts to ensure a continuum of services. Since 2011, the reform of the social welfare and child protection
sector follows a systematic approach in the framework of a partnership between the Ministry of Labour and
Social Welfare (MoLSW), UN agencies (UNICEF and UNDP) and the EU (IPA 2010), entitled “Social Welfare
and Child Care System Reform – Enhancing Social Inclusion”, followed by “Support to Montenegrin Social
Reform” (IPA 2014). Right holders of the “Child Care System Reform” component are vulnerable and
excluded children and families, particularly children with disabilities and children in residential care.
In the new Strategy for the development of the social and child protection system in Montenegro (20132017) the key strategic directions of the social and child protection reform are defined as: harmonization of
the social and child protection policy in line with international standards aimed at the prevention of social
problems, decentralization of the social and child protection system, citizen and beneficiary participation in
1Council
of Europe: Commissioner for Human Rights, Report by the Commissioner for Human Rights, Mr Thomas Hammarberg, on
his visit to Montenegro, 2-6 June 2008, 8 October 2008, p.5; CommDH(2008)25, available at:
http://www.unhcr.org/refworld/docid/48ecd3192.html[accessed on 22 January 2010].
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decision making with respect to the means for satisfying needs; more efficient cash transfers; and the
provision of quality social and child protection services.
The reform of the social welfare sector has aimed to harmonize existing legislation with international
standards and to develop regulations and adequate budget lines to operationalize the legislation. In this
regard, the reform process is embodied in the new Law on Social and Child Protection (2013) which seeks to
ensure adequate provision of measures and services and represents a major departure from the Law on
Social and Child Protection (2005) previously in force with a strong focus on institutional placement and
provision of cash benefits. Notable policy documents outlining the vision of the reform are the Strategy on
the Development of the Social and Child Protection System 2013-2017, the Strategy for the Development of
Foster Care in Montenegro 2012-2016, the National Plan of Action for Children 2013-2017, Action Plan for
Chapter 23 etc.
In addition to revising the legislative and policy framework, strengthening of the institutional framework has
been a vital component of the overall reform. MoLSW has engaged in a thorough reform of CSWs across
Montenegro which includes changes in the organization of the network of CSWs (there are now 13 centers
compared to 10 before 2015 and additional field units); enhancing internal staffing structures in line with
national standards; the introduction of contemporary work methods such as case management
methodology, which is instrumental for strengthening social work interventions and gatekeeping
mechanisms; and introduction of the Social Welfare Information System. Approximately 150 professionals
from CSWs have been trained in case management methodology. Furthermore, the Institute for Social and
Child Protection, which will play a complex role in the development of the social and child protection system
including of the social welfare workforce, and perform advisory, research and other professional activities,
has been established and is functional since early 2015. The Institute has been involved in various capacity
building activities, but due to the fact that some key positions remain vacant, more systematic training needs
assessment and provision of capacity building has been postponed for 2016. A functional review of the
MoLSW has been conducted resulting in concrete recommendations for strengthening capacity of the
MoLSW in leading, planning, implementing, and monitoring the reform process.
The reform has brought about an expansion of services. As regards children, the network of day care centres
for children with disabilities, which have facilitated the prevention of institutionalization of children with
disabilities, has expanded from two in 2010 to nine functional day care centres across Montenegro by
November 2015 (in Bijelo Polje, Niksic, Pljevlja, Herceg Novi, Plav, Ulcinj, Cetinje, Berane, Mojkovac). The
number of children in foster care has been increasing over the years with 331 children in kinship care and
42 children in non-kin foster care in December 2014, as a result of capacity building of professionals and
awareness raising campaigns. In the near future efforts will be invested in implementing various types of
foster care introduced by the Law on Social and Child Protection. Finally, when it comes to residential care
which is in line with international standards, a new service for children without parental care – the small
group home with a capacity of maximum 8 children, has been established in Bijelo Polje. The first small group
home currently accommodates three children with disabilities. In addition to the expansion of services,
minimum standards of quality of services have been introduced in secondary legislation to be followed in
the near future by the implementation of quality assurance mechanisms (licensing of service providers,
licensing of professionals, Social Inspection).
As a result of the above, and the ongoing reform in the education system towards inclusive education, since
2010 there has been a 34% reduction in the number of children in residential institutions in Montenegro
and Montenegrin children residing in institutions in neighbouring Serbia and Bosnia and Herzegovina (from
310 children in 2010 to 204 at the end of 2014). The number of children in the largest institution for children,
the Children’s Home “Mladost” in Bijela has decreased by 46% in the last 7 years (from 175 children in 2008
to 95 in September 2015). The number of children aged 0-3 was steady between 2008 and 2011 averaging
at 25 children resident in a year, subsequently, the number began decreasing dramatically, with 8 young
children resident in September 2015. As prescribed by the Law, a Plan of Transformation of this institution
was developed, and adopted in July 2015.
As envisaged by the Child care System Reform (2014), a beneficiary assessment is to be conducted close to
the end of 2015 as a way of measuring the extent to which children beneficiaries of the Montenegrin social
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and child protection system have benefitted from improved social and child care system performance.
International institutional consultancy is required for this assignment.
Purpose and Objective(s)
The main, immediate purpose of the beneficiary assessment is to assess the extent to which children
beneficiaries of the Montenegrin social and child protection system have benefitted from improved social
and child care system performance.
More specifically, the objectives of the beneficiary assessment are to:
1. Identify good practices and gaps in service provision;
2. To use the findings to enable the MoLSW and relevant institutions such as the Institute for Social
and Child Protection to advance the reform of the social and child protection system taking into
account the needs and expectations of the system’s beneficiaries ;
3. To enhance MoLSW’s and relevant institutions’ capacities with respect to policy and planning.
The knowledge generated by the beneficiary assessment will be used by:
 The MoLSW, as an important source of information for the further policy work and programming with a special focus on child-care of the most marginalised and multiple-disadvantaged children and
their families;
 Independent oversight bodies and NGOs representing vulnerable groups to further strengthen their
monitoring and advocacy efforts;
 Local self-government – to ensure further development of sustainable and quality community
services for the most marginalized children;
 EU Delegation and project partners to discuss potential future support for further reform efforts;
 UNICEF - for future programing and support to the reform of the Child Care System and development
of family and community-based services.
Scope of the beneficiary assessment
The geographic coverage of the beneficiary assessment is national. The following service providers and
beneficiaries need to be included in the sample frame:
 centres for social work,
 families with children accessing services by centres for social work,
 day care centres for children with disabilities,
 families whose children attend day care centres for children with disabilities,
 families providing foster care to children without parental care,
 children’s Home “Mladost”,
 children in Children’s Home “Mladost”.
Sample sizes should be proposed by applicants in the narrative proposal along with the application forms,
and following selection, the Contractor – contracted agency will develop a detailed methodology in
consultation with UNICEF and MoLSW.
Methodology and Technical Approach
The beneficiary assessment should combine qualitative and quantitative data and apply data collection
strategy that relies on both primary and secondary data collection and non-experimental design.
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The contractor (agency) will use desk review to become familiar with the policy basis, relevant
project documents and other means of verification / sources of information. Documents to be
reviewed include: project documents, final and interim narrative reports, and mid-term and final
evaluations of Child Care System Reform IPA 2010 and IPA 2014, the Law on Child and Social
Protection (2013) with the set of secondary legislation developed concerning the services included
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in the assessment, the Strategy on the Development of the Social and Child Protection System (20132017), the Strategy on the Development of Foster Care in Montenegro (2012-2016), draft report
“Leaving institutional care: Analysis of policies, institutional framework and practices”, Plan of
Transformation of “Mladost” Bijela, “Functional Review of the Ministry of Labour and Social
Welfare”, relevant state and non-state actors’ (progress) reports etc.
The contractor (agency) should conduct the beneficiary assessment based on a previously
developed more precise methodology and work plan. The assessment should include:
o Interviews (individual or group) with UNICEF, UNDP, EU Delegation, MoLSW, Centres for
social work, day care centres, staff of Children’s Home “Mladost”, relevant representatives
of civil society and local self-government, Ombudsperson’s office,
o Group interviews, focus groups (or other relevant instruments) with families with children
accessing services by centres for social work (a sample of 3 CSWs and a sample of
beneficiaries to be determined), families whose children attend day care centres for
children with disabilities (a sample of 3 DCCs and a sample of beneficiaries to be
determined), families providing foster care to children without parental care (a sample of
non-kin and kinship carers to be determined), boys and girls in Children’s Home “Mladost”.
The main question the beneficiary assessment should address is:
How and to what extent has the child care system reform system improved in the past 5 years (20102015)?
Applicants should, in their narrative proposal submitted along with the application forms, propose indicators
to measure the aforementioned question.
Once selected, the Contractor will develop questions guide for the interviews as part of a detailed
methodology.
All the data gathered will be analysed by the Contractor. Triangulation of data will be used to increase
reliability of findings and conclusions.
Special measures will be put in place to ensure that the assessment process is ethical and that participants
in the assessment process can openly express their opinion. The sources of information will be protected,
and known only to the Contractor. The Contractor will ensure that the assessment process is in line with the
UNICEF Procedure for Ethical Standards in Research, Evaluation, and Data Collection and Analysis. The
Contractor has to ensure that it is clear to all subjects that their participation in the assessment is voluntary.
All participants should be informed or advised of the context and purpose of the assessment, as well as the
privacy and confidentiality of discussions. For interviews involving children, the Contractor should engage
an interviewer with the necessary knowledge, skills and experience in interviewing children.
Activities and Tasks, Deliverables and Timeframe
The following tasks need to be accomplished by the following tentative deadlines:
Description
Preparation and field work:
Desk review of the existing documents
Responsible
Timeline
Agency
By 18 December
2015
Development of precise methodology and work plan for Agency
By 21 December
the beneficiary assessment
2015
Logistics (arranging meetings / interviews)
Agency with By 20 January 2016
support of
UNICEF
Field visit to Montenegro (for interviews)
Agency with 25 January – 5
the support February 2016
of UNICEF
De-briefing meeting with UNICEF
Agency
By 5 February 2016
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Reporting:
Submission of the draft report
Feed-back on the draft report from UNICEF and MoLSW
Submission of the final report
Agency
UNICEF
Agency
By 15 February 2016
By 19 February 2016
By 22 February 2016
The contractor (agency) is expected to produce the following key deliverables with the following tentative
deadlines:
1. Precise methodology and work plan for the exercise, by 21 December 2015.
2. Draft report, by 15 February 2016.
3. Final report, by 22 February 2016.
All deliverables should be submitted in either in English or in Montenegrin, to be agreed with UNICEF
following contracting.
Timeframe for this work assignment is from the 14th December 2015 to 22nd February 2016. During that
period total number of consultancy days available is up to 25 working days maximum, with estimated share
of days as follows:
- Desk review and submission of methodology and work plan – 6 days,
- Field visits and debriefing – 12 days,
- Draft report development – 5 days,
- Final report submission – 2 days
Management and Organization
Management: The beneficiary assessment will be managed by the UNICEF Country Office – Child Protection
Officers and Social Policy Officers (incl. M&E focal point). The contractor (agency) will be supervised by the
Child Protection Officer. MoLSW will actively contribute to the design, implementation and development of
the final report through feedback.
Organization: Institutional consultancy is required for this consultancy.
Schedule: This assignment will commence on 14th December 2015.
The Contractor should be sensitive to beliefs and act with integrity and respect to all stakeholders.
Contractor may not share findings with media in Montenegro or abroad concerning individual children or
individual institutions.
UNICEF premises will be available during the time spend in Montenegro if needed. Printers, photocopying
services, and other similar services will be provided by UNICEF. It is expected that contractor will bring their
own laptops.
Budget and Remuneration
The fee will be paid upon the submission of the deliverables.
Lump sum financial offer consisting of fee for the services to be provided, travel and subsistence costs, as
applicable, should be submitted together with application.
The contractor (agency)’s fee may be reduced if the assignments/deliverables are not fulfilled to the
required standard. In a case of serious dissatisfaction with the contractor (agency)’s performance the
contract may be terminated in line with UNICEF procedure in such matters and as spelled out in SSA.
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