Summary

The Carter Center is seeking a consultant to conduct a final evaluation of a project funded by the Swedish International Development and Cooperation Agency (Sida). The evaluation period is from July 1, 2021, until June 30, 2024.

The Carter Center’s Democracy Program seeks to advance democratic elections and governance in Liberia consistent with universal human rights. During Liberia’s 2017 presidential and House of Representatives elections, with support from the Government of Sweden, The Carter Center capacitated the Liberia Elections Observation Network (LEON), an umbrella organization with national coverage and a presence in each of Liberia’s 73 electoral districts. LEON was formed as a nonpartisan civil society network of four Liberian organizations who represent all aspects of society, including women, youth, people with disabilities, and religious groups. LEON comprises the Catholic Justice and Peace Commission (JPC), Liberia Crusaders for Peace (LCP), Federation of Liberian Youth (FLY), and National Union of Organizations for the Disabled (NUOD).

With Carter Center support, LEON successfully observed the 2023 presidential and legislative elections using the sample-based observation (SBO) methodology with 1,054 personnel as long-term observers (LTOs), short-term observers (STOs), field coordinators, and mobile observers, along with the core team at the national secretariat. Together, the team implemented the SBO approach, producing accurate and consistent results projections for both rounds of the presidential election in line with the National Elections Commission’s (NEC) 2023 official election results. This consistency between NEC’s results and LEON’s projections contributed to public trust and built confidence in NEC’s integrity as a reliable institution. Through this achievement, LEON secured a reputation recognized by international and national actors for successfully implementing a statically based results-driven election methodology that contributed credibility to the electoral system.

Since July 2021, The Carter Center conducted a third phase of programing with LEON to gather and share information about governmental issues, encourage citizen engagement, build confidence in government, and support peaceful electoral processes. Through its initiatives, the project seeks to strengthen citizen voices to advance electoral reform and democratic governance. The project includes a focus on women, youth, and people with disabilities and focuses on six main activity areas: observing general and by-elections; advocating for electoral reform; encouraging constitutional reform; monitoring the legislative branch to improve transparency, accountability, and citizen engagement; conducting public perception surveys to ensure citizen input on legislative and government programs; and monitoring the effects of social media on Liberia’s democracy. The program also included cross-cutting activities to support LEON’s internal organizational capacity and development.

The total timeline for the project evaluation is estimated to be 10 weeks or less. Travel to Monrovia, Liberia for data collection is recommended but is contingent upon proposed evaluation methodology.

Background and Context

LEON was launched on May 25, 2017, as a partnership between LCP, JPC, FLY, and NUOD. This newly formed network serves as a unique platform in the Liberian political landscape that emphasizes the participation and representation of marginalized segments of the Liberian people, in particular women, youth, and persons with disabilities.

The steering committee comprises one member from each organization and guides program implementation; sets organizational policy; and manages public, narrative, and financial reporting. The head of secretariat is responsible for the day-to-day operations, activity implementation, staff management, and outcome and financial reporting. A recently restructured nine-person secretariat includes management and finance and program officers who also serve as national-level monitors and analysts. LEON previously deployed LTOs in each of Liberia’s 73 electoral districts, but that capacity ended in December 2023 at the end of the 2023 general elections.

The Carter Center’s programming has been conducted in three phases. Phase one focused on LEON’s formation and observation of the 2017 general elections. Phase two focused on engaging in substantive programming in the field of democracy and governance during the inter-election period and developing LEON’s internal organizational capacity. Phase three focused on reducing the overall level of effort on programming and activity implementation and increasing its level of effort on capacity building and sustainability to enable LEON to transition to an organization fully capable of running projects independently by the end of the project. The evaluation will focus on the third phase of the project involving work around the organizational and operational capacity of LEON to manage its affairs and conduct election observation and programmatic activities.

Phase 1: 2017 National Elections – Monitor, observe, and report on the general elections to provide independent assessment of the electoral processes. In advance of the 2017 general elections and with support from the Government of Sweden, The Carter Center provided technical and financial assistance to LEON to organize a robust long-term election observation mission. Activities supported included development of terms of reference (ToR) for the secretariat staff and observers, training on the technical requirements of observation and practical skills required to recruit, train, and manage observers in the field. As a result, LEON recruited and trained a cadre of 146 LTOs, ensuring two LTOs per electoral district. Operating in teams of two, the LTOs observed and reported on the voters list exhibition, political party primaries and nomination of candidates, campaign period, instances of electoral violence, polling, counting, and results tabulation for the legislative and both rounds of the presidential elections and the post-election period. LEON gained experience in administering citizen surveys and implemented three surveys during the 2017 electoral cycle. LEON trained approximately 1,000 STOs to observe and report on both rounds of presidential polling across all 73 electoral districts. Based on LTO and STO reports, LEON released 11 detailed and well-substantiated public statements, which served as a reliable source of information on the electoral process for citizens, candidates, media, and election administrators.

During the 2017 pre-election, election, and post-election periods, LEON grew from a new organization with limited knowledge of election observation to a functional network with the technical and logistical expertise to deploy more than 1,000 STOs country-wide on two election days. With technical assistance from The Carter Center, LEON played an important role in the Liberian electoral landscape and brought greater attention to the issue of marginalized communities in the electoral process.

Phase 2: 2018–21 – Gather and share information about governmental issues, encourage citizen engagement, build confidence in government, and support peaceful electoral processes. Following the 2017 general elections, The Carter Center and LEON entered a second phase of programming from 2018–21 geared towards both implementing program activities and building LEON’s capacity through strengthening internal organizational systems and structures, including managerial, administrative, and financial policies and procedures.

Phase 3: 2021–24 – LEON is a credible and non-partisan organization that contributes to strengthening inclusive and participatory democratic processes and institutions in Liberia through programming in advocacy, election observation, surveys, and legislative monitoring. While LEON progressed with its institutional reforms (e.g., signing a constitution and revising operational policies and procedures), other key activities were achieved, including three public perception surveys (e.g., women’s political participation, police perception, and invalid votes surveys). LEON also prepared county and district profiles under Innovation Hub activities and conducted a pre-election baseline survey. LEON observed the 2020 senatorial mid-term elections and 2021 by-elections, advocated for electoral law reform, introduced the “ElecTalk” series, engaged with electoral stakeholders, conducted online civic and voter education, and monitored legislative and social media activities leading to the 2023 general elections.

During the third phase, The Carter Center continued focusing on strengthening LEON’s organizational capacity to enable sustainability beyond the 2023 general elections. As noted earlier, The Carter Center provided technical assistance to LEON as it successfully prepared for and conducted the SBO methodology during the 2023 legislative and both rounds of the presidential elections. Activities throughout the workplan were designed to support LEON’s five-year strategic plan and The Carter Center’s exit strategy and partner sustainability plan.

The Project

The project evaluation will only focus on The Carter Center’s work with LEON during the third phase of the project (July 2021–June 2024). The support programming for LEON has been guided by the following project framework.

This project has been guided by the following Theory of Change (ToC):

IF LEON is strengthened through substantive technical, operational, and financial capacity building and properly resourced, THENLEON will play an integral and sustainable role in supporting credible elections and democratic governance in Liberia.

The objectives and results as outlined in the project’s logical framework are as follows:

Objective 1: LEON has increased organizational capacity to manage projects and enhance their long-term sustainability.

Result 1.1. LEON’s operational and administrative capacity is strengthened, including strengthening of existing procedures, development of new procedures, and strengthening the capacity of staff in areas of management, program development, and administration.

Result 1.2. LEON’s financial management capacity is increased, including capacity to develop budgets, develop timely financial reports, and for members across the organization to adequately account for funds.

Objective 2: LEON is a credible and non-partisan organization that contributes to strengthening inclusive and participatory democratic processes and institutions in Liberia through programming in advocacy, election observation, surveys, and legislative monitoring.

Result 2.1: Evidence-based advocacy efforts contribute constructively to policy and practice reforms to proposals for legislative and constitutional reform.

Result 2.2. LEON credibly monitors and reports on key issues related to democracy, elections, and human rights around by-elections and the 2023 electoral process.

Result 2.3: Credible surveys provide reliable information to the public on issues of national interest that inform policy.

Result 2.4: Legislative monitoring improves transparency and accountability of Liberia’s legislature.

Result 2.5: LEON increases its public profile and impact through public reporting and outreach.

Purpose, Objectives, and Scope

The Carter Center seeks to conduct a final evaluation of the project focused on the results achieved and the efficiency and effectiveness of implementation. The findings of the evaluation are expected to provide a comprehensive analysis of the project’s achievements and lessons learned, contribute to accountability and learning within The Carter Center, and inform future programming. The primary users of the analysis will be The Carter Center, LEON, and Sida.

The evaluator will address evaluation criteria based on the Organization for Economic Co-operation and Development Assistance Committee (OECD–DAC) standard.

Relevance

The Carter Center seeks to assess the extent to which the objectives and results of the project activities responded to needs in Liberia during the period of implementation.

Sample questions:

How did the project respond to in-country needs during the three time periods of implementation?
In what way were different project activities relevant for the Liberian context (e.g., election observation, legislative monitoring, social media observation, election reform advocacy, and surveys)?
To what extent were the activities and outputs of the program consistent with the intended impacts and effects?

Effectiveness and Efficiency

The Carter Center seeks to evaluate whether its intervention has contributed to the intended objectives in a timely fashion. The Center is seeking an analysis of how well program interventions aligned with stated objectives, including any changes that were made to the intervention’s design during implementation. The Carter Center also seeks to assess how economically resources/inputs (e.g., funds, expertise, time, etc.) were converted to results.

Sample questions:

Were the objectives of the project achieved?
In what ways did the project achieve success in establishing LEON as a credible voice on elections and democratic reform?
How did the project reach the specific objectives and expected results it planned to achieve?
Did efforts to achieve the objectives progress within a reasonable time frame?
What were the major factors influencing the achievement or non-achievement of the objectives?

Did the intervention deliver its output and outcomes in an efficient manner? How well were resources used to produce results?
Was the project cost effective?
How has LEON coordinated with other civil society groups working in areas of democracy and governance? Are there ways in which this coordination could be improved in the future to strengthen the role of civil society in the democratic space in Liberia?

Impact

The Carter Center seeks to identify the short-, medium-, and long-term effects produced by the intervention. These effects may be positive or negative, direct or indirect, or intended or unintended. The Carter Center wants to identify how the program has contributed, or not, to changes in LEON’s ability to advance electoral reform, observe and report on elections, conduct surveys, conduct legislative monitoring, and produce project reporting.

Sample questions:

Is there evidence to demonstrate that the implementation of the sub-grant projects contributed to the improvement of the technical capacity of LEON?
Is there evidence to demonstrate that the implementation of the sub-grant projects contributed to the improvement of the organizational capacity of LEON? Are there areas of strength and weakness in LEON’s organizational structure and processes?
How did different project activities and outputs have an impact (e.g., election observation, legislative monitoring, social media observation, election reform advocacy, and perception surveys)?
What evidence demonstrates that LEON has had increased success in activity areas over the course of the third phase of the project? What factors served to constrain them?
How were project outputs, particularly LEON’s fact-based surveys and reports, utilized by Liberian officials, civil society actors, and other stakeholders? How were LEON’s program outputs utilized by the international community? How were LEON’s outputs utilized by LEON to advance its work and apply content?
In what ways did project outputs have an impact on political discourse?
In what ways were the project’s efforts to include a focus on women, youth, and persons with disabilities successful?

Sustainability

Sustainability is concerned with measuring whether the benefits of an activity are likely to continue after donor funding has ended.

Sample questions:

Following this project, in what ways is LEON positioned to continue contributing to strengthening democracy in Liberia?
What potential is there for continued relevance for LEON in Liberia’s democratic space moving forward?
In what ways are LEON’s structure, systems, substantive technical knowledge, and organizational capacity adequate for the organization to be sustainable? Are there particular areas that could be strengthened to increase LEON’s sustainability?
In what ways is LEON’s voice recognized as influential by Liberian stakeholders and the international community?
How did LEON’s activities in the 2020 special elections contribute to its sustainability and potential to play an effective role in Liberia’s next general elections anticipated in 2029?
In what ways is LEON poised to conduct project areas (e.g., election observation, surveys, legislative engagement, and social media monitoring) with limited technical assistance going forward?
In what ways is LEON drawing increased recognition and/or support from donors?

Lessons Learned

Sample questions:

Where there are concerns about backsliding and a closure of democratic space in Liberia, are there ways that LEON or other actors in Liberia could protect against any attacks on democracy?
What are the most useful ways the international community, including aid organizations and non-governmental organizations, can continue to engage in Liberia to strengthen democracy and governance?
What lessons from this work can be considered “best practice” and might be adaptable to other contexts?

Evaluation Methodology

The Carter Center will rely on evaluation applicants to include a proposed methodology for conducting the evaluation. The health safety and security conditions in Monrovia are conducive to an in-country visit to collect data through in-person interviews and stakeholder discussions. The Carter Center anticipates that the evaluation will be conducted through a hybrid model with an international evaluator working remotely and locally to collect, review, and analyze data from primary and secondary sources, including project documents and interviews with key stakeholders. Where remote data collection methodologies are proposed, consideration should be given to whether any groups or individuals may face potential protection or safety risks, and mitigation strategies can be considered for any such risks. The Carter Center looks forward to proposals that suggest the most appropriate evaluation methodology.

Deliverables

The total timeline for the evaluation is estimated to be nine weeks, although The Carter Center is open to considering proposals of up to 11 weeks. Deliverables and suggested timeline are as follows:

ACTIVITY	Week 1	Week 2	Week 3	Week 4	Week 5	Week 6	Week 7	Week 8	Week 9
Desk Study	x	x
Inception Report		x
Feedback and Discussion on Inception Report			x
Local and Virtual Data Collection				x	x
Virtual Debrief Meeting						x
Submission of First Draft							x
Submission of Second Draft								x
Submission of Final Report									x

Desk study and review of all relevant program documentation[1] (eight working days)
- Documents to be provided include program proposals, program annual narrative reports, program GAANT chart data, list of relevant stakeholders, and program outputs (e.g., public reports, statements, event agendas, etc.).
Submission of inception report,[2] including description of the following (two working days):
- Evaluation workplan and timeline,
- Methodology and data collection tools, and
- Structure.
Field visits (possibly with some virtual sessions) in Liberia to conduct focus group discussions and interviews with key stakeholders. The Carter Center staff can facilitate connecting the evaluator to or bringing together the relevant participants as necessary (15 working days).
Virtual debrief meeting with staff in Liberia and Atlanta to present broad findings to field staff (one working day).
Submission of first draft of final report in English for review and feedback by The Carter Center staff (five working days; The Carter Center reserves five working days for review). The draft should include the following components:
- Executive summary of key findings and recommendations;
- Table of contents;
- Methodology;
- Research findings;
- Analysis;
- Conclusions;
- Lessons learned/recommendations; and
- Appendices, including terms of reference, list of interviewees, evaluation itinerary, research tools, evaluator’s biography, and other annexes (including pictures, if taken).
Submission of second draft of final report for review and feedback by Atlanta-based Carter Center staff (three working days; The Carter Center reserves three days to provide comments).
Submission of final version of report of publishable quality (within four days following the deadline for receipt of comments).

Logistics and Budget

At this time, The Carter Center anticipates that the evaluation will be conducted virtually with some in-country support provided as-needed by The Carter Center–Democracy Program office in Monrovia.

Where necessary The Carter Center would facilitate the travel of local partners to meeting locations to connect virtually or participate in any in-person focus groups or other data collection exercises, under the guidance of the external evaluator.

Evaluation Management

The evaluation will be managed by The Carter Center’s Associate Director in Atlanta and the Project Lead in Liberia.

The evaluator will observe the highest standard of ethics and use their best efforts to protect The Carter Center against fraud in the performance of the contract. In particular, the evaluator will not engage in any corrupt, fraudulent, coercive, collusive or obstructive conduct. The evaluator will agree to abide by The Carter Center’s code of conduct during the length of the consultancy (to be provided prior to deployment).

The Carter Center shall have legal title to any research, statistical and other data, and documentation created by the evaluator, and Sida will have unlimited access to such materials.

Qualifications

At least 10 years of experience conducting program impact evaluations for NGOs, international organizations, or other relevant institutions.
Demonstrated ability to conduct field research and to use participatory evaluation methodologies, including collecting data through interviews, surveys, and focus groups.
Extensive knowledge with elections, human rights, democracy and governance programming, and the Liberian context (preferably work experience in the country/region).
Extensive knowledge of civil society, capacity building, and non-partisan citizen-based election observation.
Strong written and verbal communication skills in English.
Adaptability and experience working in remote and conflict-prone areas.

Please send CV, cover letter, a short technical proposal (maximum five pages), including consultant fee expectations to liberiarecruitment@cartercenter.org. Include in the subject line: Sida Evaluation Candidate [Your Name]. The Carter Center will consider applications on a rolling basis.

[1] All program documents are in English.

[2] All deliverables should be provided in English.