International Consultant to Develop Terms of Reference and Technical Requirements for a Digital Statistical Population Registry in Turkmenistan

TERMS OF REFERENCE

Title: International Consultant to Develop Terms of Reference and Technical Requirements for a Digital Statistical Population Registry in Turkmenistan

The background and purpose of the consultancy: The Government of Turkmenistan is advancing the digitalization of public administration and the development of integrated information systems as part of its broader digital transformation agenda. Within this context, strengthening the use, quality, timeliness and interoperability of population and civil registration data is an important prerequisite for evidence-based policymaking, demographic analysis and the production of timely and reliable population statistics.

Under the 2026 Work Plan on “Strengthening the Data System Taking into Account Demographic Changes”, between UNFPA and the State Committee of Turkmenistan on Statistics, UNFPA, within the CISPop project, plans to provide technical assistance for the development of a comprehensive Terms of Reference and associated technical requirements for a pilot Digital Statistical Population Registry. The envisaged system is intended to facilitate secure and timely exchange of population data from civil registration authorities of the Ministry of Adalat, the Ministry of Internal Affairs, the Ministry of Health and Medical Industry to the State Committee of Turkmenistan on Statistics,, under the overall coordination from the Ministry of Communications.

At present, data related to civil registration and vital events, including births, deaths, marriages and divorces, is maintained separately and processed by relevant government institutions. The exchange of information between institutions is currently carried out predominantly through manual and non-integrated processes, including the transfer of information through hard-copy documents and subsequent manual processing and data entry, as applicable. At the same time, the current arrangements provide an opportunity to strengthen the automation, standardization, interoperability, security and timeliness of data exchange through appropriate digital solutions and common technical standards. The National Program on Digital Economy in Turkmenistan for 2026–2028¹  identifies, in particular, the potential to optimize the transfer of civil registration data from the civil registration authorities of the Ministry of Adalat to the State Committee on Statistics through modern digital technologies, thereby reducing manual data entry, duplication and errors and improving the availability of timely demographic statistics.

The future Statistical Population Registry will need to take into account the respective mandates, information systems, databases, business processes, data structures, infrastructure and technical capacities of the institutions involved. The Terms of Reference developed under this consultancy should therefore establish appropriate requirements for secure data interoperability, including interfaces, data exchange mechanisms, data standards, access arrangements, cybersecurity, data quality and consistency.

To support this process, the Government of Turkmenistan with the support from UNFPA, is establishing an Interagency Technical Working Group (TWG) comprising representatives of the State Committee on Statistics, Ministry of Adalat, Ministry of Health and Medical Industry, Ministry of Internal Affairs and Ministry of Communications. The proposed TWG will provide institutional, methodological and technical expertise throughout the design process and will support the review, validation and coordination of the proposed technical solutions.

The future development of the Digital Statistical Population Registry is expected to require a phased approach covering assessment and mapping of existing systems and data, system design and development, interoperability and testing, cybersecurity and access management, documentation, technical acceptance and capacity development. Under the present consultancy, the consultant will establish the technical requirements and Terms of Reference necessary to guide that subsequent development process.

Against this background, UNFPA, within the CISPop project, seeks to engage an international consultant to provide specialized technical advice and support the Government of Turkmenistan in developing the Terms of Reference and associated technical requirements for a Digital Statistical Population Registry, informed by an assessment of relevant population and vital-event data sources, workflows and interoperability arrangements.

The primary purpose of the consultancy is to develop technically sound, scalable and implementation-oriented Terms of Reference and associated technical requirements for the subsequent development of a Statistical Digital Population Registry in Turkmenistan. The TOR will establish requirements for the progressive integration and secure exchange of relevant population and vital-event data from existing national information systems.

Scope of work: 

Under the overall supervision of UNFPA and in close collaboration with the Interagency Technical Working Group (TWG) and designated national counterparts, the International Consultant will undertake the following key activities:

Phase 1: Inception, stakeholder consultations and assessment of the current environment - 3 working days

• Conduct an inception meeting with UNFPA and the TWG to confirm the objectives, scope, methodology, work plan and expected outputs of the assignment. Additionally, the meeting shall map respective mandates and roles of relevant national institutions in relation to population and vital-event data 
• Review available documentation on existing CRVS, population statistics, administrative data sources, relevant information systems, existing data workflows and national digital-government arrangements.
• Prepare an Inception Note, including a proposed structure and outline of the Terms of Reference for the subsequent development of the Digital Statistical Population Registry.

Phase 2: Assessment of data workflows, data systems and interoperability gaps - 
6 working days

• Assessment of the current arrangements for the collection, processing, management and exchange of population and vital-event data among relevant national institutions. 
• Document and, where feasible, map key business and data workflow processes related to civil registration and vital events, including birth, death, marriage and divorce related to statistical population-data management.
• Identify the key datasets, data sources, data elements, data custodians and users relevant to the proposed system and assess the structure, formats, coding systems, identifiers and data standards used by relevant information systems. The assessment will document existing data exchange arrangements, including manual processes, document flows and any existing electronic or digital arrangements, as applicable. The assessment will be based on available documentation and consultations with national counterparts and will not require independent technical audits or detailed source-code/system-level assessments.
• Assess data quality, completeness, consistency, timeliness and duplication risks, to the extent that the required information can be made available by national counterparts.
• Identify existing and potential data linkages and interoperability requirements.
• Assess the availability and suitability of existing APIs, digital services, data exchange mechanisms and other relevant technical solutions.
• Identify gaps in data standards and interoperability arrangements and propose areas for harmonization, as well as identify gaps, duplication, manual processes, data-quality issues, institutional constraints, technical dependencies and other requirements that should be addressed through the future Digital Statistical Population Registry
• Identify prerequisites and dependencies that should be addressed before connecting individual systems.
• Consolidate the findings into an Assessment Report to serve as the evidence base for development of the TOR.

Phase 3: Development of the Draft Terms of Reference and Technical Requirements for the Digital Statistical Population Registry - 11 working days

Based on the findings of the assessment, the consultant will develop a comprehensive Draft Terms of Reference for the subsequent development of the Digital Statistical Population Registry in Turkmenistan.

The Draft TOR should, as appropriate:

• Define the specific objectives, main components, and layers of the proposed system, describing the relationship between existing institutional information systems and the future digital registry environment, as well as the proposed interoperability and data exchange model.
• Identify requirements related to unique identification and record linkage, taking into account existing national identification arrangements.
• Define functional expectations, scalability, performance, availability, system resilience, and future extensibility parameters.
• Identify requirements for APIs, digital services, data exchange protocols, data formats, synchronization, validation, and updating.
• Address mechanisms for data quality assurance, deduplication, consistency, and the roles/responsibilities of participating institutions in relation to data exchange.
• Outline requirements for data access, user roles, cybersecurity, access management, authentication, hosting, backup, and business continuity.
• Establish requirements for system environments, testing protocols (functional, security, acceptance), technical documentation, capacity-building, and handover.
• Define the scope of work, deliverables, quality acceptance criteria for the future software vendor, and key legal or regulatory issues to address.
• Prepare the Draft TOR and associated technical requirements for review and validation by UNFPA and the TWG.

Phase 4: Technical consultations, TWG working sessions  and capacity building - 7 working days

• Conduct structured technical consultations and working sessions with members of the TWG and relevant national technical specialists to review the assessment findings and Draft TOR.
• Facilitate discussions on the proposed Digital Statistical Population Registry, data workflows, interoperability requirements, system architecture, data governance, cybersecurity and other key technical requirements.
• Support the TWG in reviewing and prioritizing the technical requirements to be reflected in the final TOR.
• Provide technical recommendations regarding possible sequencing and dependencies for subsequent implementation, while recognizing that the final institutional priorities and implementation roadmap will be determined through the national coordination mechanism and relevant authorities.
• Provide presentation materials, concise technical guidance and/or reference materials to support knowledge transfer and national ownership.
• Conduct up to two capacity-building activities and knowledge-transfer sessions online or in person, as agreed with UNFPA and subject to the availability of national counterparts.
• Document key conclusions, recommendations and issues requiring further consideration by the TWG.

The consultant will identify areas requiring further legal or regulatory review by the competent national authorities.

Phase 5: Validation, refinement and finalization - 3 working days

• Facilitate a technical validation workshop or structured validation consultations with the TWG and relevant national stakeholders, which may be conducted online or in person. 
• Document the comments and recommendations received and incorporate agreed feedback into the final TOR.
• Finalize the Terms of Reference and associated technical requirements for the subsequent procurement and development of the Digital Statistical Population Registry.
• Provide recommendations on the immediate next steps required for national review, approval and subsequent procurement.
• Submit a Final Consultancy Report summarizing the work undertaken, consultations conducted, key findings, recommendations, capacity-building activities, outstanding issues and proposed next steps.

The final recommendations should provide a clear pathway from the existing institutional information systems toward a progressively integrated digital CRVS environment and, ultimately, a State Digital Population Registry.

The consultant will coordinate closely with UNFPA Turkmenistan CO and the designated government counterpart(s). Regular progress updates (e.g. weekly brief emails or calls) should be provided.

Duration and working schedule: The duration of this consultancy is 30 working days from October 15th, 2026 till March 1st, 2027, including operational closure of the contract.

Outcomes and deliverables: 

Deliverable 1. Inception Note and Proposed TOR Structure reflecting the initial consultations with UNFPA and the TWG, proposed approach and work plan, as well as proposed structure and outline of the Terms of Reference for the subsequent development of the Statistical Population Registry with the key information and documentation required from national counterparts. (25 October 2026) 

Deliverable 2. Assessment and Gap Analysis Report, covering relevant data sources, business and data workflows, information systems, databases, data formats, data quality, institutional responsibilities, current manual and electronic data exchange arrangements, ICT infrastructure, interoperability readiness and key technical, institutional, legal and operational gaps. (10 November 2026). 

Deliverable 3. Draft Terms of Reference and Technical Requirements for the Digital Statistical Population Registry describing the objectives, functional and non-functional requirements, data and interoperability requirements, security requirements, technical specifications, development and testing requirements, capacity-building requirements, handover and maintenance requirements, and other specifications necessary to guide the subsequent procurement and development of the system. (15 December 2026).

Deliverable 4. Technical Consultations and Capacity-Building Sessions to review the assessment findings and Draft TOR and facilitate a common understanding of the proposed technical requirements. The consultant will provide relevant presentation materials and concise technical reference materials and document the main conclusions and recommendations arising from the sessions.  (30 January 2027).

Deliverable 5. Final Terms of Reference, Technical Requirements, including Final Consultancy Report incorporating the consolidated feedback received through the TWG and validation process. The final package will include the agreed technical requirements, proposed implementation considerations and recommendations for the next steps toward national review, approval and procurement of the software development service provider.  (1 March 2027). 

Note: The dates for the deliverables may be adjusted, as necessary, based on the availability and timing of stakeholder consultations, receipt of inputs and feedback from national counterparts, and other factors beyond the control of the Consultant or UNFPA. Any adjustments to the timeline will be agreed between the Consultant and UNFPA and will remain within the overall contractual period and operational closure date.

Place where services are to be delivered: The services are expected to be delivered in online (home-based) mode. However, depending on project requirements, travel permissions, and mutual agreement between UNFPA and the Government of Turkmenistan, the consultancy may transition to a hybrid modality to include on-site missions to Ashgabat. 

Delivery dates and how work will be delivered: Dates for deliverables as indicated in the outcomes and deliverables section. All deliverables should be submitted in an electronic format.  

Monitoring and progress control, including reporting requirements, periodicity format and deadline: The UNFPA Turkmenistan Head of Office and Programme Coordination Associate will monitor the International Consultant’s work through reviewing submitted materials. The consultant will weekly provide an update on progress by email or ad-hoc, on challenges encountered and support needed. 

Ethical Considerations

UNFPA requires its consultants to adhere to ethical principles and standards when doing research. The selected consultant should clearly identify any potential ethical issues and approaches, as well as the processes for ethical review in the inception report.

National Ownership

The involvement of appropriate national partners will be a critical condition for the development of all the consultancy outcome materials in ensuring stakeholder ownership and its subsequent utilisation.

Supervisory arrangements: The consultant will work under the overall supervision of the UNFPA Head of Office and in close technical coordination with the Programme Coordination Associate/Population Development focal point and designated national counterpart(s).

Expected travel: Travel to Turkmenistan is contingent upon operational feasibility and institutional approvals. The consultant may be requested to undertake up to two short-term missions to Ashgabat. Exact dates will be communicated to the Consultant and agreed accordingly. In case of travel, travel costs will be covered additionally in accordance with UN rules and regulations. Otherwise, the entire assignment will be delivered via online/remote modality, and any deliverables tied to the missions will be adapted for digital facilitation.

Required expertise, qualifications, and competencies including language requirements: 

• Advanced university degree (Master’s degree or equivalent) in Information Technology, Computer Science, Information Systems, Software/Systems Engineering, Digital Transformation, or a related field.
• A minimum of 10 years of professional experience in digital information systems, information systems architecture, digital transformation, interoperability, e-government or related areas.
• Demonstrated professional experience in the design and/or development of digital registries or large-scale information systems, preferably for government institutions or public-sector organizations.
• Demonstrated experience in information systems interoperability, data integration and electronic data exchange, including experience in defining system interfaces, data exchange mechanisms and interoperability requirements.
• Demonstrated experience in developing Terms of Reference, technical specifications or functional/technical requirements for the procurement and development of digital information systems, registries or similar technology solutions.
• Experience with population or statistical registers, CRVS systems, or administrative data systems used for official statistics is highly desirable.
• Prior working experience with UN agencies or international development partners is highly desirable. Experience in Central Asia or a similar context (CIS) is an asset.
• Strong analytical, writing and facilitation skills. Ability to work independently and engage diverse stakeholders.

• Fluency in English is required. Proficiency in Russian is highly desirable.

  Inputs / services to be provided by UNFPA or implementing partner, if applicable: UNFPA will provide the consultant with all the necessary materials, data, information, and available reports. The UNFPA Country Office will put together a list of core sources and readings before the start of the consultancy.

Other relevant information or special conditions, if any: The consultancy fee will be calculated based on the P-5 level of the of the UN Salary Scale for Professional and higher categories effective 1 January 2026 and will be paid in a lump sum upon successful completion of deliverables.