Purpose of consultancy
The overall purpose of this consultancy is to conduct a comprehensive baseline assessment for phase II of the Strengthening Adolescents and Youth (SAY) Programme (SAY Plus+), establishing robust baseline values for all outcome and output indicators in the four expansion districts in Karamoja and Bukedi to supplement existing baseline data from the West Nile and Acholi where phase I of the programme has been ongoing since 2024.
The baseline will systematically leverage existing data sources, including relevant literature, assessments conducted by UNFPA and other partners, routine and administrative data (e.g. HMIS/DHIS2, UDHS 2022, EmONC and fistula assessments, district administrative records), and programme monitoring data, to the maximum extent feasible. Where gaps are identified that prevent the establishment of valid, disaggregated baseline values, these will be strategically addressed through targeted primary quantitative and qualitative data collection.
The baseline will inform programme implementation, annual target-setting, district work planning, and future midline and endline evaluations. It will also generate actionable, district-specific programming recommendations to guide sequencing, prioritisation, and resourcing of SAY Plus+ interventions across SRHR, GBV, youth economic empowerment, and systems strengthening.
Background and scope of work
The Strengthening Adolescents and Youth (SAY) Programme began as a flagship UNFPA initiative implemented from 2024–2027 in five districts in West Nile and Acholi (Adjumani, Moyo, Obongi, Lamwo and Kitgum).
The programme focuses on improving access to and utilisation of integrated SRHR and GBV services, advancing gender-transformative social norm change, and strengthening community and district systems to safeguard the rights and well-being of adolescents and young people aged 10–24.
The outcome objective of the programme is increased access to and utilisation of Sexual and Reproductive Health and Rights (SRHR) and Sexual and Gender-Based Violence (SGBV) prevention and response services among young people aged 10-24 years in refugee settlements and host communities, as well as refugee-affected communities.
To achieve this, the programme applies a three-pronged evidence-based approach focusing on creating demand, strengthening service delivery and strengthening the enabling environment at the community and district levels.
The programme has three outputs:
The programme's primary beneficiaries are refugees and host young people aged 10-24, especially adolescent girls and young women.
Secondary beneficiaries include: parents and guardians of young people; local opinion leaders at the community and district levels (political, cultural, religious); youth leaders; health care providers; teachers; women of reproductive age (25-49); and policymakers at the district, sub-regional, and national levels.
Building on the success, evidence, and lessons of the ongoing programme implemented in five districts in West Nile and Acholi, UNFPA is now scaling the programme into four new districts, Karenga and Kaabong (Karamoja) and Butebo and Kibuku (Bukedi) for an initial programme period from 2025 to 2028. The expansion represents both an extension of geographic coverage and a strategic deepening and broadening of programme ambition. It is a deliberate investment to reach adolescents and young people who face the greatest structural barriers to SRHR, bodily autonomy, safety, and empowerment.
Compared to the initial SAY programme approach, SAY Plus+ introduces:
A dedicated and analytically distinct focus on obstetric fistula, ensuring that fistula prevention, treatment, rehabilitation, and reintegration The “Plus+” designation, therefore, signals that the programme is now more comprehensive, multi-sectoral, and systems‑driven.
Methodology
The SAY Plus+ baseline is both a continuation and an expansion: it builds on the strong evidence base established in West Nile and Acholi, while generating the new data needed to guide tailored programming in four of the most underserved districts in Uganda. It will ensure the SAY Plus+ Programme is grounded in high‑quality, district‑specific evidence for the 2025–2028 implementation period.
Study Objectives:
The consultants will:
Specific Tasks:
Geographical focus:
Temporal Scope:
The baseline will cover interventions planned for the period of the SAY Plus+ programme, i.e., 2025 to 2028.
The consultants are expected to establish all baseline values and support the refinement of annual targets for the SAY Plus+ Results Framework, using various data sources, including HMIS/DHIS2, UDHS 2022, EmONC and fistula assessment, the KAP survey, the YFS-QS Assessment, client satisfaction, and other sources.
The consultants will be required to detail their methodological approach, which will be agreed upon with the UNFPA programme team at the inception of the assignment, including the design and tools. Additionally, the consultants will continue working with MoH to obtain technical input, consensus, and approval for any adjustments to existing tools.
The baseline is being designed with an endline evaluation in mind. It is expected that the consultants will include control districts with characteristics similar to the programme districts but without any SAY Plus+ programme- or related interventions, to enable measurement of programme impact using impact evaluation methodologies such as the Difference-in-Differences methodology.
The baseline study will follow a collaborative and participatory approach, ensuring close engagement with programme beneficiaries, implementing partners, district local government leadership, MDAs, and other key stakeholders, including young people.
The consultants are expected to work closely with SAY Plus+ implementing partners through the entire baseline process as follows;
Overall approach:
The consultants are expected to establish baseline values for all SAY Plus+ outcome and output indicators through a sequenced and integrated data approach, as follows:
b) Gap analysis
c) Targeted primary data collection
d) Triangulation and validation
Data source and data collection methods:
The preferred source of information and data for the baseline survey is secondary data, complemented by primary data.
The baseline study will derive its data the following main data sources;
As stated above, the survey is expected to apply a mixed-methods approach, combining qualitative and quantitative data collection from primary and secondary sources, which must be carefully selected to ensure consistency in definitions of quality, accessibility, and responsiveness across data sources.
Particular attention will be paid to compiling data on key performance indicators of the SAY Plus+ programme results framework, including new, validated modules to measure baseline values for the expanded scope related to a) Youth EE and NEETs, e.g., knowledge of VSLAs/YSLAs; b) Digital access, use of digital health info, c) attitudes towards fistula prevention and treatment, and d) district level budget allocation and utilization for adolescents development, SRHR, and SGBV.
The specific evaluation methods to be considered for identification of data collected through primary data collection (if no reliable secondary data exists) are described below:
Knowledge, Attitudes, and Practices (KAP)
This part of the baseline study will help UNFPA understand the current status of social and gender norms, including the identification of attitudes and practices that perpetuate sexual and gender-based violence, teenage pregnancy, child marriage, and poor utilization of SRHR/GBV services.
The baseline survey will review data from existing baseline studies from the SAY Plus+ districts or districts with similar profiles, identify gaps and supplement this with primary data collection to establish the levels of Knowledge, Attitudes, and Practices regarding SRHR and GBV among adolescents and young people in the four programme districts in Karamoja and Bukedi.
Using both secondary and primary data, the KAP survey will use a quasi-experimental design with pre- and post-intervention/treatment and control/comparison districts. This design will provide a rigorous assessment of the programme interventions at end-line, when a pre-post non-equivalent comparison approach will be adopted in combination with the Difference-in-Differences (DiD) method and propensity score matching.
A detailed covariate is required to demonstrate that the control districts are statistically comparable to the intervention districts across critical baseline variables (e.g., poverty, pre-existing SRHR indicators, health facility density, cultural norms, and remoteness) to satisfy the parallel trends assumption for a valid DiD analysis.
For primary data analysis, consultants are expected to provide a more detailed description of the sampling design in their inception report. The survey must include all four intervention districts, which are to be compared with two control districts selected from non-intervention districts with similar characteristics in
the two sub-regions. The calculation must account for the cluster design (district/sub-county/village) through a conservative design effect and ensure sufficient power for subgroup analysis to yield statistically meaningful estimates, especially at the district or regional level.
The findings will be used as a benchmark and baseline against which progressive changes will be assessed and used to estimate the contribution of the SAY programme to the changes in social and gender norms, in the attitudes that perpetuate SGBV, teenage pregnancy, child marriage, and utilization of SRHR/GBV services, relative to the baseline survey at the endline. The KAP survey will be based on the SAY Plus+ Programme Results Framework and adapted from the existing SAY programme tools
YFS Quality Standards Assessment and Client Satisfaction Survey
This part of the study is expected to assess the adequacy/appropriateness of the package of services at health facilities that fulfil the needs of adolescents, based on the MOH updated YFS quality standards, and to determine providers' technical competencies in the provision of adolescent and young people’s healthcare services.
The assessment will be aligned with the YFS Quality Standards Assessment (YFA-QS) - and to the extent possible, be based on existing national data, and complemented with additional data collection of baseline information on the quality of healthcare services for adolescents and youth in the four districts where the SAY Plus+ programme is implemented, as needed.
This will cover all eight quality standards summarised as:
It will assess basic characteristics of the health facilities, including the adequacy of selected inputs (staffing, drugs, and equipment) that are essential for providing effective services to adolescents, and determine clients’ satisfaction with the services provided.
The study will cover the primary target group of young people aged 10-24 living in the four districts.
Where possible, the assessment will leverage data from existing client satisfaction surveys from the SAY Plus+ districts or districts with a similar profile, and complement this with supplementary primary data collection on client satisfaction measurement using the Ministry of Health–approved Youth-Friendly Services (YFS) client exit interview tool, or its most recent approved equivalent, in line with MoH guidance. Client satisfaction data will assess perceived quality, accessibility, confidentiality, respect, non-discrimination, and responsiveness of SRHR and SGBV services.
If primary data is to be collected, it will be conducted on a sample of targeted facilities in the project districts to assess the capacity, availability, and accessibility of quality SRHR services (FP/Maternal health/PAC, HIV testing, fistula repair and GBV) that are responsive to the needs of adolescents and young persons in the four districts where the SAY Plus+ programme is implemented.
It will also entail exit interviews with SRHR/GBV clients to assess service quality from a client perspective. Where feasible, the findings will be triangulated with the KAP findings observations at health facilities, group interviews with healthcare workers, and FGD with beneficiaries, notably adolescents and youth based on both secondary and primary data.
Structured budget and expenditure analysis at national and district levels
To establish baseline values for Results Framework indicators 2.6 and 2.7, the baseline will include a structured budget and financing analysis at national and district levels. This will involve a systematic review of relevant policy, planning, and budget documents, including sectoral Medium-Term Expenditure Frameworks, national and district development plans, annual work plans, and approved budgets for health, gender, youth, education, and related sectors. The analysis will assess the level, composition, prioritisation, and consistency of allocations for adolescent and youth SRHR, SGBV prevention and response, fistula, youth economic empowerment, and enabling systems relevant to the SAY Plus+ Programme.
Where feasible, data on budget releases and expenditures will be reviewed to complement allocation data. Findings will be triangulated with key informant interviews at district and national levels to contextualise fiscal commitment, coordination, and sustainability, and will be used to establish baseline benchmarks for tracking changes in public financing over the programme period.
Evaluation matrix
The evaluation matrix is the centrepiece of the baseline's methodological design. The matrix contains the core elements of the survey. It outlines (i) what will be assessed: the research questions for all indicators/criteria and key assumptions to be examined; and (ii) how it will be assessed: data collection methods and tools and sources of information for each evaluation question and associated key assumptions. By linking each research question (and its associated assumptions) to the specific data sources and methods required to answer it, the evaluation matrix plays a crucial role before, during, and after data collection.
As the evaluation matrix plays a crucial role at all stages of the process, it will require particular attention from both the consultancy team and UNFPA. The evaluation matrix will be drafted in the inception phase and must be included in the inception report. The evaluation matrix will also be included in the annexes of the final evaluation report, enabling users to access the supporting evidence for the answers to the evaluation questions.
Ethical clearance:
The baseline will be conducted in accordance with the UNEG Norms and Standards for Evaluation, the Ethical Guidelines for Evaluation, the Code of Conduct for Evaluation in the UN System, and the Guidance on Integrating Human Rights and Gender Equality in Evaluations. When contracted by the UNFPA Uganda CO, the evaluators will be requested to sign the UNEG Code of Conduct prior to starting their work.
The consultants, with UNFPA's support, will seek approval from the Local Institutional Review Board (IRB) for the inception report/research protocol, which is expected to consider specific age-appropriate methodological considerations for a baseline assessment involving adolescents (10-24 years), including a detailed risk mitigation strategy and referral pathway protocol, with due consideration. The KAP survey and HFA assessment will also be registered with the National Council of Science and Technology (UNSCT).
The consultants shall finalize the inception report and the KAP/HFA protocols based on feedback from IRB/UNSCT.
Cross-cutting principles and adherence to UNFPA guidelines:
The baseline study must use UNFPA guidelines and adhere to its principles for evaluation (which should be adapted to the purpose of this baseline) to ensure integration of cross-cutting priorities, which include (but are not limited to):
The approach and methodology must adhere to guidelines for conducting evaluation and/or operational research in humanitarian contexts, with a strong focus on ethical considerations and the Do No Harm principle
Duration and working schedule:
The assignment will be undertaken by a team comprising a lead consultant, a Co-investigator, and research assistants.
The lead consultant will be assigned 40 working days, spanning three months from April to the end of June 2026. Thirty (30) days are assigned for a co-leading consultant/co-investigator, and 15 working days are assigned for three research assistants to support data collection and analysis. The Research Assistants are to be selected and sub-contracted by the lead consultant following the lead consultant's submission of CVs to UNFPA for pre-approval.
The working days are expected to be assigned as follows:
| Phase | Lead consultant (days) |
Co-leading consultant | Research Assistants (days/pers.) |
| Inception phase | 8 | 5 | 0 |
| Data collection phase | 20 | 15 | 15 |
| Analysis and reporting phase | 12 | 10 | 0 |
| Total | 40 | 30 | 15 |
The place where services are to be delivered:
The services will be provided in Kampala, Uganda and will involve travel to the programme districts for data collection.
Analysis and presentation to the steering committee may be delivered remotely.
Delivery dates and how work will be delivered
| Deliverables | Tentative timeline |
| 20 April 2026 |
| 27 April 2026 |
| 04 May 2026 |
| 18 May 2026 |
| 08 June 2026 |
| 10 June 2026 |
| 20 June 2026 |
| 27 June 2026 |
| 27 June 2026 |
| 30 June 2026 |
The consultants will provide periodic updates (in writing) on the progress of the assignment, at a frequency to be agreed upon by the M&E and technical teams from UNFPA. The consultants will present all key milestone deliverables to UNFPA M&E and technical teams.
In addition, the consultants will work closely with the Reference Group (RG), which will provide overall guidance and quality assurance of the baseline assessment, including the review and clearance of deliverables. The RG will include a representative of young people to ensure young people's issues are addressed in the assessment.
Supervision and Management of the study
The consultant will work for the Uganda Country Office and will be expected to provide regular updates to UNFPA. The UNFPA SAY Plus+ Programme Manager and the Programme Coordinator for M&E and Integrated Field Support will work closely with the consultant to provide relevant contextual information to guide the baseline process.
Additional support will be provided by the UNFPA SAY Plus+ Technical and M&E teams for:
The main functions of the RG will be to :
Provide feedback on the findings, conclusion and recommendations from the evaluation into future programme design and implementation.
Expected travel
Consultants will travel to the four SAY Plus+ districts.
The travel (DSA) cost per UN standard rate will be covered by UNFPA.
Required expertise, qualifications, and competencies, including language requirements:
Lead Consultant / Team Leader: Reproductive health expert
Co-Lead consultant : Gender & community development specialist
Research Assistants (to be identified and contracted by the lead consultant, with funding from UNFPA):
Young enumerators with required qualifications from the SAY Plus+ regions (Karamoja and Bukedi) should be considered
Inputs/services to be provided by UNFPA or implementing partner (e.g support services, office space, equipment), if applicable:
1. SAY Plus+ Programme Document
2: SAY Plus+ Results Framework
3. AY Sub Counties and health facilities
4: UNFPA Evaluation Guideline:
https://drive.google.com/open?id=1vH4i2-k9UtAMNf2ifNk7p_N85LGAfOEJ& usp=drive_fs
5: UNFPA Evaluation Policy: https://drive.google.com/open?id=1vHnj0ucK8T75nbzK9ov99Re5bhZip_5B&us p=drive_fs
Payment Plan
The consultants will receive:
The contractual amount for the lead consultant will include funding for three research assistants, in accordance with the agreement with UNFPA upon acceptance and mutual approval of the contractual arrangements. UNFPA will also cover the cost for IRB/UNSCT approval, travel and per diem payments for all consultants and enumerators during data collection.
Note: UNFPA reserves the right to terminate the contract if it is deemed that the consultants are not meeting performance standards, e.g. if the product is not acceptable or the consultants are not meeting agreed timelines.
UNFPA Work Environment:
UNFPA provides a work environment that reflects the values of gender equality, diversity, integrity and healthy work-life balance. We are committed to ensuring gender parity in the organization and therefore encourage women to apply. Individuals from the LGBTQIA+ community, minority ethnic groups, indigenous populations, persons with disabilities, and other underrepresented groups are highly encouraged to apply. Reasonable accommodation may be provided to applicants with disabilities upon request, to support their participation in the recruitment process. UNFPA promotes equal opportunities in terms of appointment, training, compensation and selection for all regardless of personal characteristics and dimensions of diversity. Diversity, Equity and Inclusion is at the heart of UNFPA's workforce - click here to learn more.
Disclaimer:
Selection and appointment may be subject to background and reference checks, medical clearance, visa issuance and other administrative requirements.
UNFPA does not charge any application, processing, training, interviewing, testing or other fee in connection with the application or recruitment process and does not concern itself with information on applicants' bank accounts.
Applicants for positions in the international Professional and higher categories, who hold permanent resident status in a country other than their country of nationality, may be required to renounce such status upon their appointment.