Consultancy to Conduct a Baseline Study for the SCOPE-PFM Project

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PURPOSE OF THIS CONTRACT

The purpose of this contract is to engage a qualified consultant or research team to design and conduct a comprehensive baseline study for the EU-funded Strengthening Civic Engagement and Oversight in Public Financial Management (SCOPE-PFM) project in Cambodia. This study will provide critical insights into the current state of knowledge, awareness, civic engagement, transparency, and accountability within the public financial management (PFM) system at both national and subnational levels.

The baseline study will serve as a foundational reference point for measuring progress and impact throughout the project lifecycle. It will establish benchmark values for key indicators, identify systemic barriers and opportunities for citizen and civil society participation, and inform the refinement of the project’s implementation strategy and Monitoring, Evaluation, Accountability, and Learning (MEAL) framework.

The findings will guide strategic decision-making, ensure accountability to stakeholders, and support adaptive management of the SCOPE-PFM initiative.

BACKGROUND AND CONTEXT

Cambodia has made notable strides in strengthening its public financial management (PFM) systems over the past two decades. The Royal Government of Cambodia (RGC) launched the Public Financial Management Reform Program (PFMRP) in 2004, which has led to improvements in budget reliability, financial accountability, and the modernization of fiscal systems. Key achievements include revenue collection exceeding 20% of GDP in 2023 and the implementation of the Financial Management Information System (FMIS), which has streamlined budget execution, asset management, and treasury operations, including electronic salary payments for civil servants.

Despite these advancements, significant challenges remain. Transparency and public oversight in budget processes are still limited. The 2023 Open Budget Survey (OBS) awarded Cambodia a transparency score of 43 out of 100, reflecting modest progress from previous years but still highlighting major gaps. Critical budget documents such as the Executive’s Budget Proposal (28/100), Citizens Budget (42/100), and Audit Report (43/100) scored poorly, indicating weak public scrutiny and limited accessibility of fiscal information.

SCOPE OF WORK

The consultant/team will conduct the study for the indicators that require the baseline values and verify and update the indicators with the baseline (per annexed logframe):

• Conduct a desk review of relevant policies, reports, and legal frameworks (e.g., Public Procurement Law, Anti-Corruption Law, PFMRP, …)
• Map key stakeholders, including government institutions, CSOs, and community groups.
• Design and implement data collection tools (surveys, interviews, FGDs, …).
• Collect data from target provinces/communes, ensuring representation of women, youth, and marginalized groups.
• Analyse data and produce a comprehensive baseline report incorporating the indicator’s value table
• Update the SCOPE-PFM Performance Monitoring Plan by integrating the methodologies and tools used to measure each indicator in the baseline study, and refining the definitions of indicators as needed.

DELIVERABLES

Overall objective

The objective of the assignment is to conduct the baseline for the SCOPE-PFM project.

Specific outputs and deliverables

Please refer to the full Terms of Reference (link provided in Annexes)

PAYMENT SCHEDULE

Remuneration is based on the submission of final deliverables according to the schedule. No payment will be made in advance.

For details, please refer to the full Terms of Reference (link provided in Annexes)

METHODOLOGY

For detailed methodology, please see the full Terms of Reference (link provided in Annexes)

PROFILE REQUIREMENTS

The company/ individual(s) should have the following competencies:

Essential criteria

• Advanced degree (master’s or higher) in Public Policy, Governance, Economics, Political Science, Development Studies, or a related field.
• Minimum of 7 years of experience in conducting baseline studies, evaluations, or research in governance, public financial management (PFM), or civic engagement.
• Proven experience working in Cambodia with a strong understanding of the socio-political and institutional context.
• Strong knowledge of PFM systems, budget transparency, and accountability mechanisms.
• Familiarity with international frameworks such as the Open Budget Survey indicators.
• Proficiency in designing and implementing mixed-methods research, including surveys, interviews, and focus group discussions.
• Excellent analytical skills with the ability to synthesize complex information and present findings clearly.
• Strong writing and reporting skills in English
• Ability to facilitate stakeholder consultations and validation workshops.

Desired criteria

• Proven knowledge experience in governance, PFM, or civic engagement research or evaluation studies.

APPLICATION PROCESS

Submission deadline

Quotations and applications must reach Oxfam by 22 December 2025 at 11:59pm (ICT)

Clarifications

Any questions, remarks or requests for clarification can be sent to menghoin.hok@oxfam.org at least 5 days before the submission deadline in writing. The (anonymised) questions will be answered to all applicants.

Administrative compliance (list of documents to be submitted) as listed below.

Responses must be submitted and prepared in English and received by the deadline.

To be shortlisted for evaluation against award criteria, key documents must be included in the application: please refer to the full Terms of Reference (link provided in Annexes)

Evaluation and award criteria

Incomplete applications will not be assessed; only quotations that meet the administrative criteria will be assessed.

Award decisions will be based on best value for money criteria covering both technical quality and price.

For detailed information about Evaluation Criteria, please refer to the full Terms of Reference (link provided in Annexes)

Oxfam withholds the right to conduct interviews with one or more potential suppliers before an award decision is made. Purpose of the interview is to seek further clarification on the submitted quotations and learn more about the background and previous experiences of the potential suppliers and their teams.

OTHER CONDITIONS

Issuance of this Terms of Reference does not constitute an award commitment on the part of Oxfam, nor does it commit Oxfam to pay for costs incurred in the preparation and submission of a bid.

Oxfam may contact bidders to confirm contacts, addresses, bid amount and to confirm that the bid was submitted for this solicitation.

Quotation validity

• If the bidder is awarded the contract, all information provided in the quotation and negotiation process is contractually binding.

False statements

Bidders must provide full, accurate and complete information as required by this solicitation and Annexes. False statements in bids constitutes grounds for immediate termination of any agreement with the supplier. OXFAM takes fraud, misstatements, falsification, manipulation, alteration of facts and/or documents very seriously, has a zero-tolerance policy to such behaviours, and may choose to take legal action in a case of misrepresented disclosures by Contractors.

Conflict of interest

Bidders must provide disclosure of any past, present or future relationships with any parties associated with the issuance, review or management of this solicitation and anticipated award.  Failure to provide full and open disclosure may result in Oxfam having to re-evaluate the selection of a potential bidder.

Right to Select/ Reject

Oxfam reserves the right to select and negotiate with those firms it determines, in its sole discretion, to be qualified for competitive proposals and to terminate negotiations without incurring any liability. Oxfam also reserves the right to reject any or all proposals received without explanation.

Reserved rights

All applications and quotes become the property of Oxfam, and Oxfam reserves the right in its sole discretion to:

• To disqualify any offer based on applicant’s failure to follow solicitation instructions
• To waive any deviations by the applicant from the requirements of this terms of reference that, in Oxfam’s opinion, are considered immaterial defects requiring rejection or disqualification; or where such a waiver will promote increased competition
• Extend the time for submission of responses after notification to all applicants
• Terminate or modify the process at any time and re-issue the request for quotation to whomever Oxfam deems appropriate
• Issue an award based on the initial evaluation of offers without discussion
• Award only part of the activities in the solicitation or issue multiple awards based on solicitation activities

CODE OF CONDUCT

Oxfam is committed to integrity in its operations and supply chains and ensuring high ethical standards. Complying with all laws and regulations and ensuring fair competition are fundamental to this commitment. We actively promote these principles and standards, and expect all Oxfam suppliers to demonstrate commitment towards them.

All consultants/applicant are required to agree and adhere to the Oxfam Supplier Code of Conduct, whereas individuals (including consultants) must sign the Oxfam Non Staff Code of Conduct. These Codes of Conduct set out the specific standards and principles in the areas of human and labour rights, environmental impact and anti-corruption that suppliers must follow.

REPORTING OF FRAUD & UNETHICAL BEHAVIOUR

Oxfam’s reporting and whistleblowing mechanisms are available for Suppliers as well Oxfam employees, to ensure that Oxfam continues to operate under the highest ethical standards and principles.

You can use these reporting channels confidentially, anonymously, and in your own language to report any concerns involving fraud, corruption, waste, abuse or safeguarding concerns.

ANNEXES

The applicants can access: 1) The full Terms of Reference (ToR), 2) Logframe, and 3) Brochure at this link: https://oxfam.box.com/s/ib2gmu14gj5511v11i8x0ea21czshc5l