Consultancy to Develop a Five-Year Capacity Building Strategy for Local Governments

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Expression of Interest


I.    Background and context

Since the year 2000, Rwanda has been implementing decentralization measures with the purpose of improving public service provision to citizens, fighting causes of poverty and finally generate a sustainable economic development. In the first three phases of the decentralization reform (from 2001 to 2005), significant progress was made in strengthening performance of Local Government (LG) Authorities. In addition, national structures and institutional systems were established to support the process. “The second phase (2006-2010), aimed at consolidating progress on national priorities and at deepening the decentralization process by enhancing effectiveness in service delivery to communities. The third phase focused on streamlining institutional and legal frameworks, consolidating achievements in governance and service delivery, as well as scaling up on local strategies and initiatives for transformation of local economies and creation of job opportunities.”  To address subsequent policy actions and emerging dynamics in local governments, different interventions guided by the Ministry of Local Government (MINALOC) aimed at building capacities of the LGs have been implemented and significant achievements reached. The initiatives include the development of a 5-year capacity building (CB) plan which expired in 2015, the establishment of the Local Governance Institute (LGI) by Local Governments, support to capacity building initiatives through the RDSP (Rwanda Decentralization Support Program) and many more.

Despite a considerable presence of Capacity Building interventions benefitting local administrations, it remains difficult to account for capacity building delivered and establish their impact and consistency with both the national orientations and local needs, due to inadequate capacity building coordination, monitoring and evaluation system in place. 

As decentralization is pushed forward, new national dynamics and ever-emerging priorities create pressure and call for upgraded local government capacities. These include the new strategic vision of Rwanda (National Strategy for Transformation), the enhancement of urbanization, new responsibilities of lower administrative levels (Sectors and Cells), different SSPs that need specific technical capacities from LG implementers as well as increasing expectations from local populations. This requires Ministries and other bodies to have a new framework which will guide them to improve the quality, harness their interventions and efforts towards both national and local priorities and which would help them to align to the new requirements. The recent assessment of the impact of the Decentralization Policy implementation from 2001 to 2017 also recommended strong and coordinated interventions for effective and sustainable capacity building for decentralized governance and service delivery.

In view of the above, the Ministry of Local Government in collaboration with GIZ, Enabel and other stakeholders in capacity building intends to develop a new capacity building strategy for Local Government, which will serve as guiding document for the next five years.

This strategy aims at proposing ways in which capacities at LG will be built with specific consideration to capacity needs that might exist, including LG capacity gaps identified in various  policy/ strategy /studies such as  the recent study on the impact of decentralization policy implementation, the Mid-term evaluation report of 5-year district capacity building plans,  various  Sector Strategic Plans (SSPs), Draft Public Financial Management, Learning and Development Strategy as well as Capacity gaps identified in Districts/City of Kigali Development Strategies (DDS).

In 2016 RGB report on LG CB Plans implementation report, it was noted that, although coordination arrangement  for LG CB  follows some legal procedures and tools, it presents some weaknesses around clear roles and responsibilities for each partner in LG CB.

In this regard, the new strategy will propose benchmarks and targets with an indication of timeline, defined roles and responsibilities for various stakeholders in LG CB and working relationships in order to achieve adequate coordination of LG CB interventions.

The Deutsche Gesellschaft für Internationale Zusammenarbeit (GIZ), together with GOPA, will provide technical assistance by availing a consultant/company to support the development of the capacity building strategic plan for local government to guide/identify relevant interventions for the next five years and support the technical committee to fine-tune the strategy; while Rwanda Decentralization Support Program, funded by Enabel as well as UNDP will support technical and stakeholder consultations in the process of developing the strategy.

Overall objective

The overall objective of this assignment is to develop a five-year capacity building strategy for local governments for the period 2019/2023.

Specific objectives for strategy design

  • To propose ways in which capacities at LG will be built with specific consideration to capacity needs that exist especially for the implementation of DDS;
  • To establish institutionalized framework for tracking the impact of capacity building initiatives and interventions;
  • To establish a framework for a well-coordinated and harmonized LG capacity building interventions;
  • To design a proper framework for a demand driven LG CB in place with full LG control and ownership;
  • To take stock of key achievement reached from the expired strategy and carry forward what was not achieved into new Strategy.
  • To provide a framework for quality assurance for Capacity building provided by various service providers (Public and Private capacity building providers).

II.    Scope of work

 The scope of work for the assignment will include but not be limited to:

  1. Conduct a desk review (see details of reference materials under methodology) of relevant documents related to capacity building needs at LG level; including the review the institutional and organizational capacity of LGs and suggest improvements or suggest new ones;
  2. Design and conduct an online capacity building needs assessment survey at LG level;
  3. Undertake a situational analysis of capacity building needs to date based on the findings above and prepare outcome situational analysis report;
  4. Assess and review the outputs produced by partners and stakeholders who have provided capacity building support to District including types of CB interventions (induction, integrated specialized courses, regular refresher trainings/courses, study visits and exchange for exposure, training materials, etc… );
  5. Identify capacity needs required to implement Districts/City of Kigali Development Strategies;
  6. Interaction with Local Government Authorities on the ground to jointly assess LG CB needs;
  7. Undertake local government capacity building stakeholder mapping and analysis;
  8. Through a consultative process identify focus areas and develop strategic objectives and key result areas to be considered;
  9. Develop a Results and Resources Framework (potential funding sources) for the strategic plan’s period;
  10. Develop a result based monitoring and evaluation matrix for the period;
  11.   Present preliminary findings and draft LG CB Strategy and its implementation Plan to both technical committee and stakeholders in separate sessions;
  12.  Present the draft  Strategy for validation both at the TWG responsible for LG CB and to  Governance &Decentralization Sector Working Group;
  13. Present updated draft one to LG Authorities for inputs and comments
  14. Submit updated draft one to MINALOC for official approval
  15. Finalize the Strategy and its implementation plan and submit them to MINALOC with a copy to GOPA/GIZ.

III.    Deliverables

  • An inception report clearly explaining the understanding of the assignment and detailing the methodology to be used to perform the task along with a roadmap and defined weekly priorities and milestones (The inception report has to be submitted to the client within 5 days following contract signing);
  • Draft one LG CB strategy
  • Draft two of the Local Government Capacity Building Strategy after incorporation of comments/inputs and recommendations from all relevant stakeholders;
  • Final draft of the Local Government Capacity Building Strategy submitted to MINALOC (Electronic copy and three well bound hard copies).

IV.    Commitment to Quality Work

The consultant/company shall use an evidence-based approach and ensure the highest standard of work and timely deliverables at every stage of this assignment. In particular, the consultant/company shall ensure clarity of objectives and process during the consultations; countercheck all facts cited; ensure that the content and format of the draft Strategic Plan meets the highest standard for such documents, following the template that will be provided and ensure proper editing. The strategy must be submitted in English (UK).

PLAGIARISM: If external sources are used and cited in the reports, the authors and sources must be properly acknowledged. Random plagiarism checks will be performed throughout the reports.

Although the methodology is a discretionary proposal from the competing consultants/companies, the basics will include the review of existing relevant documents that include but are not limited to the following:

  • Republic of Rwanda. Rwanda, document on VISION 2050, SDGs, NST1, SSPs & DDs
  • Republic of Rwanda. 2013. Mid-term review for the Second Economic Development and Poverty Reduction Strategy (EDPRS2) 2013-2018
  • National capacity building policy and capacity building tool kit
  • Ministry of Local Government , 5 year capacity building strategy for Local Governments, (2011- 2015)
  • Ministry of Local Government, National Decentralization Policy (Revised), June 2012
  • Ministry of Local Government, Governance and Decentralization Sector Strategic Plan 2018/2024
  • RGB, 2016.  Report on Evidence based M&E framework for district capacity building plans, November 2016
  • RGB. 2017, National Policy on Service Delivery. Kigali
  • Ministry of Local Government, 2017 Decentralization Impact Assessment Report. Kigali 
  • RGB, 2013. Sector Decentralization in Rwanda, Current Status. Kigali
  • WB, 2013. World Bank Program Document for a proposed development policy grant for a Quality of Decentralized Service Delivery Support Development Policy Operation
  • WB, 2016. World Bank Program Appraisal Document for a proposed credit to the Republic of Rwanda for an Urban Development Project
  • Documentation on secondary cities (Relevant materials will be shared with the consultant/company)
  • Districts/City of Kigali Development Strategies
  • MINECOFIN. (2018). IPSAS Implementation Blueprint
  • MINECOFIN. (2018).PFM Learning and Development Strategy
  • MINALOC. (2015). PFM Capacity Building Project to Support Decentralized Entities
  • RDB (CESB) / GIZ Rwanda (2018). Collaboration Framework for stakeholders in capacity development of local government

Note: The consultant/company shall have a section on the literature review analysis capturing relevant content on LG CB Strategy

Further, the consultant /company will design and conduct an online capacity building needs assessment and meet with key stakeholders (Central Government institutions, Local Governments, RALGA, Civil Society, Development Partners, etc.) to discuss the CB initiatives in pipeline, results and challenges encountered in the previous CB interventions.

VI.    Cooperation and reporting structure

The consultant/company is required to work closely with the departments of Territorial Administration and Governance and Department of Planning in MINALOC. The hired consultant/company will report and submit deliverables to GIZ via GOPA, for quality assurance, before the consultant/company submitting the document to the MINALOC Permanent Secretary.

VII.    Timeline

This assignment is expected to be accomplished within a period of 60 Roman calendar days.

VIII.    Consultant/Company profile

The Consultant/Company will have to fulfill the following (or have key staff with the following in case of a company):

  • Academic Qualifications: At least a master’s degree in a relevant field in the area of planning, public policy, development studies and any other related field.

b) Experience:

  1. At least seven (7) years of professional experience in local government, strategic planning and management (Proven evidence of having undertaken at least four similar assignments in public/private/civil society institutions).
  2. Proven prior working experience on decentralization issues is an added advantage.
  3. Proven experience in working with government partners and other stakeholders in public sector development programs especially in the area of capacity development and local government.
  4. Proven experience in research, policy development, management and programming-related work.

IX.    Skills and competencies

  1. Ability to work with minimal supervision;
  2. High level written and oral communications skills in English;
  3. Excellent interpersonal and professional skills in interacting with government and development partners;
  4. Skills in facilitation of stakeholder engagements/workshops
  5. Excellent analytical and report writing skills;
  6. Excellent self-management and time-management skills, and an ability to attend to detail and meet deadlines;
  7. Strong computer skills, including Excel, Word and PowerPoint.

X.    Contract management, reporting and supervision arrangement

The assignment will be supervised by the Ministry of Local Government (the Permanent Secretary of the Ministry), along with GIZ working in partnership with GOPA. The three institutions will designate, each a focal person to facilitate the consultant/company.  The consultant/company will directly report to MINALOC and GIZ/DGG who will work in direct partnership with GOPA until end of February.

XI.    Stakeholders engagement

For smooth accomplishment of the assignment a Technical Committee designated by MINALOC will be established. The said committee will perform technical review and quality assurance on the key deliverables (drafts mentioned under deliverables section) submitted by the consultant/company, after a first quality assurance performed by GIZ/DGG with support from GOPA and RALGA. The team shall review and verify the quality of each of the deliverables mentioned above before the final approval by the relevant authorities.

XII.    Source of funds and payment arrangement

Contract management and payments to the consultant/company will be handled by GIZ, quality approval meetings arrangement and related logistics will be provided by MINALOC through RDSP Project support as well as UNDP.

XIII.    Application procedure

The interested candidates should submit their technical and financial offers, in sealed and separated envelops, to the reception desk of the following address not later than 24 January 2019 at 4h00 pm:

GIZ – Kigali Office

KN 41Ave, N° 17 – Kiyovu

B.P 59 Kigali – Rwanda

Please mention on the envelops “Development of a five-year capacity building strategy for Local Governments”.

The financial offer must be in Rwf and tax excluded and must include the following:

Detailed pricing, Quality of Service and Terms of Service.

The technical offer must include the following:

  • A 1 or 2-page concept paper, reflecting the understanding of the ToR;
  • The personal background or background of the company, including registered company name(s) and registration numbers as well as contact details; CV; 1 copy of academic certificates;
  • The capacity to provide the services described above, along with a description of the services to be delivered;
  • Examples of performance certificates provided by the clients for similar assignments;
  • A list of at least three contactable prior or current clients, including contact names and information.

13.1.      Enquiries and clarifications must be sent until 24 January 2019, 2h00 pm, by email to  with a copy to  and

13.2.      Proposal validity: The proposal should remain open for acceptance for a period of 60 days. A proposal valid for a shorter period may be rejected.

13.3.      GIZ reserves the right to request additional information and clarification from applicants, or to allow corrections of errors or omissions, if the timescale is not affected.

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