Policy Analysis for CARE International in Timor-Leste Consultancy Terms of Reference
TITLE: Policy Analysis Consultant
Overall Purpose of the consultancy
1. To identify and analyse key policy and governance impacts on people, especially women and girls,
living in remote disadvantaged areas in Timor-Leste, in order to inform the design of a 10-15 year longterm
program seeking to bring about significant and sustainable improvement in the lives of this
impact group at scale by effecting systems level change.
CARE International is a leading development and humanitarian relief organisation dedicated to ending
global poverty and social injustice. CARE International’s programs work through the primary approach of
empowering women and girls towards greater gender equality.
CARE International in Timor-Leste
CARE International has been operating in Timor-Leste since 1994, initially as CI Indonesia (with CARE
Canada as lead member from 1994-1999), subsequently as CI Timor-Leste (with CARE Canada as lead from
2000-2008 and CARE Australia as lead member from 2008-2014). After the 2006 post-election crisis, CITL
focussed heavily on the provision of humanitarian assistance, subsequently shifting focus to development
CARE Timor-Leste (CITL) currently implements development projects with a focus on community
development in the key sectors of health, education, rural infrastructure and community based adaptation
to climate change (it has also previously implemented a succession of significant food security and
agriculture projects). While the current projects address a diversity of needs, they are linked by common
commitments to rights based approaches, gender equity and women’s empowerment, community
participation and civil society strengthening. CITL currently works in partnership with local authorities and
civil society organisations to implement its projects, enhancing capacity building efforts as well as making
use of the strength of existing social structures. CITL’s current projects are located primarily in remote
highland areas of the western and central regions of Timor-Leste.
Impact Group: Women and girls in remote rural communities most disadvantaged by lack of
basic services, economic and political marginalisation, gender inequality, low health and
educational status, and weak resilience to natural and economic shocks.
Long Term Program: Women and Girls in Remote Disadvantaged Areas (provisional name)2
CARE’s shift from implementing stand-alone projects to an integrated long term program approach
CARE International in Timor-Leste is currently undergoing a major shift in the way it works, moving from
the implementation of short-term stand-alone projects to a more strategic and long-term programmatic
approach which seeks to significantly amplify the impact and sustainability of its work.
CARE recognises that In order to have impact at scale and ensure CITL projects benefit the Impact Group as
a whole and not only those in the communities with which its projects work directly, it must seek to
influence policy and strategy and their implementation across a range of relevant sectors and work
increasingly in partnership with a variety of actors at different levels.
This shift involves two key changes in the way CITL works. Leveraging its unique experience and
comparative advantage as an INGO with deep contextual experience, CITL will in future:
1. Focus all its project work on one or more specifically defined Impact Groups (the poorest and most
vulnerable populations in Timor-Leste as described above) by aligning these within a long term
program strategy that aims to bring about significant and sustainable improvements for that
2. In addition to implementing traditional projects, engage in different types of value-adding
development work such as policy advocacy, expanded and strategic partnerships (including the
private sector and research) and taking the lead on multi-sector action. This involves conducting
systems mapping and gap analysis, proactively setting goals and targets, and enlisting the help of
other organisations to fill identified gaps.
CARE’s definition of ‘program’
“CARE defines a long term ‘program’ as a coherent set of initiatives, based on a long-term commitment to a
specific marginalised and excluded group (impact group), which seeks lasting and broad scale impact on the
underlying causes of poverty and social injustice.”
The key steps involved in the development of a program include:
- Conducting a detailed ‘situation analysis’ of the underlying causes of poverty and social injustice at
country level, leading to the identification of the impact group/s, i.e. those population groups that
are most vulnerable and marginalised;
- Conducting more in-depth analysis of the underlying causes of poverty for the identified impact
group/s, through a Policy and Intuitional Analysis and a Gender and Power Analysis.
- Based on the detailed analysis of the policy environment, and of gender and power relations in
both institutions and the community, designing one or two long term programs (one for each
impact group) to address the underlying causes of poverty and marginalisation of the impact
CITL’s program design process to date
In 2013 consultants contracted by CARE Timor-Leste conducted analysis of the underlying causes of poverty
and social injustice at broad country level, which CITL used to identify two provisional impact groups. One
of these was Women and Girls in Remote Disadvantaged Areas. Having undertaken some initial analysis of
the underlying causes of vulnerability for this impact group (sectoral policy analysis conducted by CITL
project teams) CITL developed a draft program design for the Women and Girls in Remote Disadvantaged
Areas Program. In order to further develop and ‘flesh out’ this design, which involves identifying key
actions CITL can take to promote through the identified Pathways of Change, it is now seeking to engage a 3
Consultant to undertake a more in-depth analysis of the policy and strategy environment as it relates to the
Purpose and scope of the consultancy
The Consultant will be expected to provide a detailed analysis of the policy and strategy environment
relating to communities in remote disadvantaged areas, with a particular focus on women and girls. The
aim of the analysis is to inform: (i) CITL’s understanding of the key changes that need to occur to effect
significant and lasting change for women and girls in remote disadvantaged communities, (ii) CITL’s
decision making on strategic options in the long term program design, including entry points, advocacy on
policy and strategy and their implementation, partnerships (government, private sector, INGOs and
LNGOs), including capacity building of local partners. Strategic options may also include research or other
partnerships to demonstrate successful models for replication at scale.
Characteristics of the Impact Group
The impact group of a program is the population group that must receive the benefits of the program, in
this case women and girls in remote disadvantaged areas. For CITL, disadvantaged areas refer primarily to
those located in isolated rural highland areas of western and central Timor-Leste. These areas are
physically isolated from economic opportunities and information, and political participation, and receive
extremely little or no basic government services such as health and education. Reliance on a narrow range
of food crops, often grown on marginal agricultural land, contributes to poor nutrition and vulnerability to
the impact of common natural disasters, such as drought and landslides. Women are the particular focus
because they often experience multiple disadvantages and vulnerabilities, such as high levels of maternal
mortality, low health status and high levels of gender based violence. This focus on women does not mean
CITL will work only with women and girls. CITL will work with a range of stakeholders in different sectors
from local through national levels, but women and girls in remote disadvantaged areas must receive
significant and sustainable benefits as a result of this work.
The situational analysis already undertaken has identified some priority areas of concern which should
inform the focus of this consultancy. These include, but are not restricted to: equitable access to quality
services; the development of resilient and diversified livelihoods including increased access to the value
chain; development and/or implementation of appropriate government policies; promotion of service
delivery through improved governance by linking communities (demand side) and government (supply
side) through processes of accountability; potential opportunities to lead multi-sector action through
increased engagement with a range of partners, including the private sector.
In summary, the purpose of the policy and strategy analysis is to:
- Augment and refine the analysis of key underlying causes of poverty for the impact group, through
a focus on policy and strategy and their implementation;
- Inform development of key actions that CARE and stakeholders need to take to address current
problems and move toward desired changes, along with the 4-6 strategies CARE will implement to
contribute most strategically to these actions (Pathways of Change);
- Inform development of the hypotheses (Theory of Change) behind the selection of strategies, and
the logic that explains how these strategies are expected to contribute to the impact we seek;
- Inform identification of advocacy priorities, strategies and partners by identifying policies (or lack
of policies or strategies/lack of implementation) that affect the impact group, whether positively or
For this consultancy, ‘policy’ and ‘strategy’ should be interpreted broadly to encompass policies, majorgovernment programs, national strategic plans or plans of action, major laws or decrees, and governance inpractice. More specifically ‘policy’ includes:
- The documented principles, aims or objectives that a government or institution uses to guide it
and to serve the interest of the community.
- The set of basic principles and associated guidelines formulated and enforced by institutions and
organisations that direct and limit their own actions or the actions of others in the pursuit of their
- The legal frameworks and systems established to implement policy and the government’s poverty
reduction and nationally targeted programs.
- The scope of this consultancy should be guided by the CITL’s current work focussing on the Impact Group
and by the Situation Analysis.
The research will be primarily a desk based structured search and analysis of key documents, augmented
by discussions with key informants in Timor-Leste, face to face or by phone (depending on location of
consultant). The Consultant is required to design the methodology for the research in consultation with
CITL ACD/P and/or Program Quality Unit Manager. It is anticipated that the analysis will include the areas
listed above as well as any others relevant to the impact group and, where appropriate, provide an
international context to national policy. Given the potentially broad scope of this study, it is agreed that the
focus of the research will be further refined and narrowed during the research, by the mutual agreement
between the Consultant and CARE. It is suggested that the research methodology be designed with
reference to CARE International’s Strategy 2020 and Women’s Empowerment Framework.
The policy analysis will include but will not be limited to the following:
- A bibliography listing: date, title, author, publication details and a brief explanation of relevance.
- An assessment of the influence the policies/strategies have over the lives of the impact groups.
- An assessment of specific gaps, inconsistencies and misinterpretations in implementation that may
impact on isolated rural populations.
- Key activities for the consultancy
Design the research methodology and tools, and research plan.
Review relevant primary and secondary sources associated with the domains outlined above.
Conduct research according to the agreed research plan.
Analyse available information and document this along with findings and recommendations.
Provide key findings and recommendations to inform strategic decision making in a succinct report
and a separate PowerPoint Presentation.
Inputs/ Indicative timeframe
The consultancy will commence as soon as possible, ideally before the end of January 2015. The Consultant
will spend a maximum of 16 days on the study between these dates (1 day briefing in Timor-Leste or
Canberra, 15 days policy analysis). A final report will be submitted to CITL by the end of the consultancy
- Agreed action plan for the consultancy
- Documentation of the research methodology.
- Draft report.
- Final report due at the end of the consultancy demonstrating consideration of feedback from CARE
and CARE implementing partners on the draft. The report should be no more than 30 pages
(excluding annexes); with no more than 2 pages devoted to combined Introduction, Background,
Methodology and Limitations. The report will consist of, but not be limited to:
o Cover page
o Table of contents
o List of abbreviations and acronyms
o Executive summary (maximum two pages with recommendations)
o Findings and discussion
o Analysis of key issues that may inform CARE’s understanding pathways of change
o Recommendations, including potential partnerships at all levels (from national to local)
PowerPoint Presentation summarising key findings and recommendations made in-country on last
day of consultancy if the consultant is Timor-based and virtually if based in outside Timor-Leste.
Preparation and Logistical Support
The Consultant will be provided with:
hard or soft copies of a selection of key documents
suggestions of priority policy areas to be explored (i.e. policy implementation gaps,
inconsistencies, inappropriateness) and a list of policies to examine, based on consultation with
a list of potential stakeholders/partners, based on CITL experience and staff consultation
CITL’s Program Quality Unit Manager will assist the Consultant identifying and setting up contacts with key
informants in Timor-Leste and Australia if required.
CARE will cover the cost of the Consultants’ phone calls and travel (based on agreed itinerary and
Interested applicants should submit their CV, cover letter addressing the ToR, a brief proposed
methodology, and breakdown of fees and other costs to: firstname.lastname@example.org The subject line of your email
should read: LAST NAME, First Name + Position Title + Position Location.
Applications Close: midnight, 1 December, 2014
Please see the position description for more details here.