Hiring of an Individual Consultant for the Development of a Business and Sustainability Plan for the National GNSS CORS Network of Sierra Leone for the Sierra Leone Land Administration Project (SLLAP).

**Project:** Sierra Leone Land Administration Project

 

REQUEST FOR EXPRESSIONS OF INTEREST

(Consultant – Individual Selection)

Sierra Leone Land Administration Project (SLLAP)

Grant No.: E0600-SL

Project Id: P177031

Issue date: 26th June 2026

Assignment Title:  Hiring an Individual Consultant - Development of a Business and Sustainability Plan for the National GNSS CORS Network of Sierra Leone

Reference No: SL-MLHCP-557139-CS-INDV

The Government of Sierra Leone (GoSL), through the Ministry of Lands, Housing and Country Planning (MLHCP) and the National Land Commission (NLC), is implementing the Sierra Leone Land Administration Project (SLLAP) (Project No. P177031). The Project Development Objective is to establish an efficient, accessible, and sustainable land administration system.

Under Component 2 of SLLAP, the Government has established a modern national geodetic infrastructure, including a nationwide Global Navigation Satellite System (GNSS) Continuously Operating Reference Station (CORS) Network comprising thirteen (13) stations and a Network Control Centre (NCC).

The CORS Network has been constructed and is currently in technical operation. The CORS Contractor who designed and built the system is contractually obligated to provide technical operation and maintenance (O&M) services for a period of three (3) years from system commissioning. This arrangement provides a critical transition period during which the Government must establish a sustainable long-term business model, governance structure, and operational framework to ensure continuity of services beyond the contractor's O&M period.

A separate technical assessment of the CORS system is being conducted to evaluate system performance, document technical architecture, and establish operational baselines. The findings from that technical assessment will inform this Business and Sustainability Plan.

The GNSS CORS Network constitutes a Critical National Strategic Asset underpinning land administration, surveying and mapping, infrastructure development, agriculture, disaster risk management, aviation, maritime navigation, national security, and the digital economy. Ensuring its long-term operational, financial, and institutional sustainability is therefore a matter of national interest.

 Objective of the Assignment

The objective of this assignment is to prepare a comprehensive, bankable, and implementable Business and Sustainability Plan for the National GNSS CORS Network of Sierra Leone. The Plan shall define an optimal governance, operational, financial, and legal framework to ensure the Network's long-term sustainability, reliability, and strategic value beyond the initial three-year contractor-managed O&M period.

The Business Plan shall:

1. Utilize the findings from the separate technical assessment of the CORS system.
2. Leverage the existing operational system and the technical expertise of the CORS Contractor during the three-year O&M period.
3. Define a transition strategy from contractor-managed operations to long-term sustainable operations.
4. Explicitly assess and compare public, private, and hybrid (public-private partnership) governance and operating models.
5. Safeguard the Network's status as a sovereign national geodetic infrastructure.
6. Ensure knowledge transfer and capacity building during the contractor O&M period.
7. Identify funding source for each business and operating model considered.

 Scope of Services

 Review of Technical Assessment Findings

Review and incorporate the findings from the separate Technical Assessment of the CORS Network, including:

1. System architecture, performance metrics, and operational baseline data
2. Technical standards, maintenance requirements, and operational costs
3. Identified technical risks, vendor dependencies, and technology constraints
4. Documentation quality and knowledge transfer readiness

The Business Plan shall be grounded in the technical realities documented in the Technical Assessment

 Organizational Structure, Governance and Internal Administration

Assess and recommend institutional and governance arrangements for the CORS Network, including fully public, semi-autonomous, and public-private partnership models. Define ownership, oversight, decision-making structures, inter-ministerial coordination mechanisms, and internal administrative procedures.

The analysis shall specifically:

1. Consider options for extending or transitioning the CORS Contractor's role beyond the initial 3-year O&M period
2. Evaluate governance models that leverage the Contractor's technical expertise while building Government capacity
3. Define transition milestones and decision points during the 3-year O&M period
4. Recommend phased knowledge transfer and capacity building arrangements
5. Assess institutional capacity requirements and organisational placement options (within MLHCP, NLC, as autonomous agency, or PPP entity)
6. Define roles and responsibilities for network oversight, operations, user services, and quality assurance

 Finance and Accounting

Prepare detailed multi-year (minimum 5-10 years) financial projections, including CAPEX, OPEX, asset replacement cycles, and lifecycle costing. Develop revenue models, pricing strategies, subsidy requirements, accounting, billing, audit, and financial control mechanisms.

Financial modeling shall:

1. Use actual operational costs from the CORS Contractor and Technical Assessment as the baseline
2. Project cost evolution under different governance and operating scenarios (direct Government operation, continued contractor management, hybrid PPP model)
3. Account for technology refresh cycles based on actual equipment specifications and industry standards
4. Model the financial implications of alternative transition strategies at the end of Year 3
5. Assess the cost-effectiveness of various service delivery options
6. Identify potential cost savings or efficiencies relative to the contractor-managed baseline
7. Develop pricing models for different user categories (Government, commercial surveyors, academic, agriculture, telecommunications)
8. Project revenue potential under different market penetration scenarios
9. Calculate break-even analysis and identify subsidy requirements

 Marketing and Market Development

Identify and segment potential users across public and private sectors. Assess demand, willingness to pay, competitive environment, and partnership opportunities. Develop a marketing, outreach, and customer onboarding strategy consistent with the public-good nature of the infrastructure.

The market analysis shall:

1. Document current user base and service uptake during the contractor-managed period
2. Conduct demand assessment across key user sectors (surveying professionals, agriculture precision farming, construction and infrastructure, telecommunications network planning, academic research, government mapping agencies)
3. Assess willingness to pay through stakeholder consultations and comparative pricing analysis
4. Identify barriers to adoption (awareness, technical capacity, cost, accessibility) and strategies to overcome them
5. Benchmark against CORS pricing models in comparable countries and regional contexts
6. Develop marketing and outreach strategy, including awareness campaigns, demonstration projects, and user training programs
7. Recommend strategies to grow the user base and revenue potential before the end of Year 3
8. Identify potential anchor clients and partnership opportunities

 Technical Operations and Maintenance Strategy

Define a long-term technical operations and maintenance strategy that ensures continuity of high-quality GNSS services beyond the contractor O&M period, informed by the findings of the Technical Assessment.

The strategy shall:

1. Adopt the technical standards, protocols, and service level requirements documented in the Technical Assessment
2. Assess options for post-Year 3 technical support, including: continued contractor engagement (extended contract or retainer), in-house Government technical capacity, hybrid models with contractor backstopping, or third-party service provider arrangements
3. Evaluate the operational feasibility and cost implications of each technical support option
4. Define vendor management strategies to minimize technology lock-in and ensure competitive procurement
5. Establish decision criteria for selecting the optimal technical operations model
6. Recommend contractual frameworks for ongoing technical support arrangements

Knowledge Transfer and Capacity Building

Develop a comprehensive knowledge transfer and capacity building plan to enable sustainable Government management of the CORS Network.

The plan shall:

1. Identify critical technical, operational, and administrative competencies required for long-term network management (informed by Technical Assessment findings)
2. Define a phased training and knowledge transfer program to be implemented during the 3-year contractor O&M period
3. Specify training modules, documentation requirements, and hands-on operational exposure for Government staff
4. Recommend staffing levels, organizational placement, and reporting structures for the Government CORS operations team
5. Establish benchmarks and milestones for measuring capacity development progress
6. Propose mechanisms to retain institutional knowledge and prevent staff turnover
7. Estimate training costs and recommend funding sources
8. Define roles for the CORS Contractor in delivering training and mentoring

 Human Resources Management

Define required staffing structure, roles, qualifications, training needs, remuneration benchmarks, and succession planning arrangements necessary for sustainable operation after the transition from contractor management.

HR planning shall:

1. Specify job descriptions and technical competency requirements for CORS operations staff
2. Recommend organizational structure (technical operations, user services, administration, finance)
3. Benchmark salaries against comparable technical positions in Sierra Leone public sector, telecommunications, and ICT industries
4. Assess options for retaining key contractor technical staff or securing ongoing contractor advisory support
5. Define recruitment strategy and timeline to ensure staff are in place before end of Year 3
6. Propose staff development and retention strategies, including career progression and continuing professional development
7. Establish succession planning protocols to mitigate key person risks

 Risk Assessment

Identify, analyse, and categorize technical, financial, institutional, legal, and security risks. Assess likelihood and impact, propose mitigation measures, and assign risk ownership.

Risk assessment shall explicitly address:

1. Risks associated with transition from contractor to Government operation at the end of Year 3
2. Financial risks if revenue generation does not meet projections or operating costs exceed budget
3. Institutional risks related to governance failures, inter-agency coordination breakdowns, or political interference
4. Market risks related to low user adoption or competition from alternative positioning technologies
5. Legal and regulatory risks related to data security, liability, or fee collection authority
6. Security risks related to critical infrastructure protection and cybersecurity threats
7. Human resource risks related to staff recruitment, retention, and capacity gaps

The Technical Assessment will separately address technical and operational risks.

 Transition Planning and Implementation Roadmap

Develop a detailed transition plan and implementation roadmap covering the 3-year contractor O&M period and the subsequent 2-5 years.

The roadmap shall:

1. Define decision points, milestones, and critical actions during each phase of the transition
2. Specify roles and responsibilities of the CORS Contractor, Government entities, and other stakeholders
3. Establish Year 1, Year 2, and Year 3 transition objectives and deliverables
4. Identify quick-win revenue generation or market development activities that can be initiated during the contractor O&M period
5. Propose institutional, legal, and financial preparations required before the end of Year 3
6. Recommend governance and operational model to be adopted at end of Year 3, with decision criteria
7. Define procurement actions needed for post-Year 3 technical support (if required)
8. Propose contingency plans if transition readiness is not achieved on schedule
9. Establish a phased implementation budget and funding plan

Performance Metrics and Monitoring

Define key performance indicators (KPIs) covering financial sustainability, administrative efficiency, market development, and governance effectiveness. Propose monitoring, reporting, and review mechanisms.

KPIs shall include metrics for:

1. Financial performance: revenue generation, cost recovery ratio, subsidy requirements
2. Market development: user growth, service uptake, customer satisfaction
3. Operational efficiency: administrative costs as percentage of revenue, billing and collection efficiency
4. Capacity building: training completion rates, staff competency assessments, knowledge transfer milestones
5. Governance effectiveness: decision-making timeliness, stakeholder coordination, policy compliance
6. Transition readiness: progress against transition roadmap milestones

Technical performance KPIs will be defined in the separate Technical Assessment.

 Legal and Regulatory Environment

Assess the legal and regulatory framework governing GNSS services, data ownership, fee collection, public finance, ICT, and national security. Identify required legal instruments, regulations, MoUs, and compliance measures.

Legal analysis shall address:

1. Legal authority for CORS service provision and fee collection
2. Data ownership, intellectual property rights, and licensing arrangements
3. Compliance requirements for telecommunications, data security, and critical infrastructure protection
4. Public finance and procurement regulations affecting CORS operations and revenue management
5. Liability and insurance considerations for GNSS service provision
6. Inter-agency MoUs required for coordination and data sharing
7. Legal instruments required to establish a sustainable operating entity or service delivery framework (if recommending autonomous agency or PPP model)
8. Contractual arrangements with the CORS Contractor, including post-O&M support obligations and IP rights

Deliverables

The Individual Consultant shall deliver the following:

1. Inception Report (within 7 days of contract signature) - Outlining methodology, work plan, stakeholder engagement approach, preliminary observations, and coordination plan with the Technical Assessment consultant
2. Situational and Diagnostic Assessment Report (within 20 days) - Analyzing the institutional, financial, legal, and market context for CORS sustainability, incorporating initial findings from the Technical Assessment
3. Draft Business and Sustainability Plan (within 35 days) - Including governance model options, financial projections, transition strategy, citizen service delivery charter and implementation roadmap
4. Validation Workshop (within 40 days) - Presentation to stakeholders and incorporation of feedback
5. Final Business and Sustainability Plan (within 45 days) - Comprehensive document including:
   1. Executive Summary and Strategic Recommendations
   2. Governance and Operating Model (with comparative analysis of options)
   3. Multi-year Financial Model (Excel format with scenario analysis and sensitivity testing)
   4. Market Development and Revenue Strategy
   5. Transition Plan and Implementation Roadmap (Gantt chart and milestone schedule)
   6. Knowledge Transfer and Capacity Building Plan
   7. Risk Assessment Matrix and Mitigation Strategies
   8. KPI Framework and Monitoring Tools
   9. Human Resources Plan
   10. Legal and Regulatory Compliance Checklist
   11. Annexes (stakeholder consultation records, international benchmarks, financial model assumptions)

 

Develop a Citizen Services Delivery Charter with clear indication of the cost and timelines for the CORS Network services that will be delivered to members of the public

All reports shall be submitted in English, in Microsoft Word and PDF formats, with financial models in Excel format.

Consultation and Coordination Requirements

The Individual Consultant shall:

1. Coordinate closely with the consultant conducting the separate Technical Assessment to ensure alignment and avoid duplication
2. Review and incorporate technical findings into business planning and financial modeling
3. Conduct consultations with the CORS Contractor to understand operational procedures, costs, and transition considerations
4. Engage with MLHCP, NLC, SLLAP Project Coordination Unit, and other Government stakeholders throughout the assignment
5. Consult with potential user communities (licensed surveyors, agriculture sector, infrastructure developers, telecommunications operators, academia) to assess demand and willingness to pay
6. Engage with Ministry of Finance, Public Procurement Authority, and legal advisors on institutional and regulatory matters
7. Review international best practices and comparable CORS business models in similar developing country contexts
8. Present findings at validation workshop and incorporate stakeholder feedback

Reporting Arrangements

The Individual Consultant shall report to the Project Coordinator of SLLAP and work under the technical oversight of MLHCP and the National Land Commission. Regular coordination meetings shall be held with the Technical Assessment consultant to ensure integrated outputs.

Language of the Assignment

All reports and deliverables under this assignment are expected to be in English

The Project now invites eligible Individuals (“Consultants”) to indicate their interest in providing the Services. Interested Firms should provide information demonstrating that they have the required qualifications and relevant experience to perform the Services.

The minimum qualifications for the Consultant for this assignment are:

Required Qualifications and Skills:

Consultant Qualifications

The assignment will be undertaken by an Individual Consultant with the following qualifications:

1. Proven experience in infrastructure or utility business planning, preferably in telecommunications, geospatial services, or comparable technical infrastructure
2. Demonstrated experience with GNSS CORS Network business models, feasibility studies, or comparable national geodetic infrastructure (essential)
3. Strong financial modeling and analysis capabilities, including multi-year projections, scenario analysis, and revenue modeling
4. Experience evaluating and structuring governance models for technical infrastructure (public, private, PPP)
5. Experience in transition planning and capacity building for technical systems
6. Familiarity with World Bank-financed projects and public-sector governance frameworks
7. Knowledge of, or willingness to rapidly familiarize with, the Sierra Leone business, legal, and institutional environment

Preference shall be given to candidates with:

1. Prior GNSS CORS Network business plan development or operational assessment experience
2. Public-private partnership structuring experience for technical infrastructure
3. Experience in Sub-Saharan African institutional contexts
4. Knowledge of surveying and geospatial markets in developing countries

Duration and Level of Effort

The assignment is expected to be completed within forty-five (45) calendar days from contract signature.

The assignment will be carried out by an Individual Consultant, who shall propose a realistic and efficient work plan consistent with World Bank standards for consulting services. The level of effort is expected to be in the range of 45–60 working days over the assignment period, covering all tasks described in the Scope of Services.

SLLAP will provide vehicles and necessary support staff for field work, as well as office space and basic office facilities for the Consultant's use during the assignment.

The attention of interested Consultants is drawn to Section III, paragraphs, 3.14, 3.16, and 3.17 of the World Bank’s “Procurement Regulations for IPF Borrowers” July 2016 Revised November 2017, August 2018 and November 2020 and September 2023 (“Procurement Regulations”), setting forth the World Bank’s policy on conflict of interest.

Interested Individual Consultant MUST request for the detailed Terms of Reference (TOR) for the assignment via email request to sllapprocurement79@gmail.com.      

Further information can be obtained at the address below or via email request to sllapprocurement79@gmail.com / breemsbliss@gmail.com or +23276538383 during office hours 0900 to 1700 hours

Expressions of interest and Curriculum vitae (CV) can be delivered in a written form to the address below (in person):

Project Coordinating Unit

Sierra Leone Land Administration Project

3rd Floor -Youyi Building, Brookfields - Freetown.

Attn: Project Procurement Specialist

Tel: +23276 538383

OR

Via e-mail to: sllapprocurement79@gmail.com Cc alphajohcham@yahoo.com / breemsbliss@gmail.com

When submitting, please indicate clearly in the sealed envelope or email subject heading 'EOI consulting services to develop a Business and Sustainability Plan for the National GNSS CORS Network of Sierra Leone” on or before SUBMISSION DEADLINE is 27TH JULY 2026 AT 1600 HOURS GMT.