RFP-RO01-003581 Software Development Consultancy for the Design, Development and Roll-out of a Referral Management System

Terms of Reference (TOR) for Referral Management System – Software Development Consultancy

Who is the Danish Refugee Council

Founded in 1956, the Danish Refugee Council (DRC) is a leading international non-governmental organisation (INGO) and one of the few with a specific expertise in forced displacement. Active in 40 countries with 9,000 employees and supported by 7,500 volunteers, DRC protects, advocates, and builds sustainable futures for refugees and other displacement affected people and communities. DRC works during displacement at all stages: In the acute crisis, in displacement, when settling and integrating in a new place, or upon return. DRC provides protection and life-saving humanitarian assistance; supports displaced persons in becoming self-reliant and included into hosting societies; and works with civil society and responsible authorities to promote protection of rights and peaceful coexistence.

DRC has been operational in Somalia since 1998 and is currently among the largest international (INGOs) in the country, with country-wide programmes implemented through six main offices and nine sub-offices in South Central Somalia, Somaliland, Puntland and Galmudug regions. Somalia is vulnerable to extreme weather patterns and remains in a protection crisis where armed conflict, insecurity and natural disasters trigger the displacement of thousands of people.

Purpose of the consultancy

The Danish Refugee Council in Somalia seeks a consultant to develop a robust Referral Management System (RMS) to enhance coordination, accountability, and efficiency in service delivery across multiple sectors, particularly health, nutrition, and protection. The RMS will be a critical component of DRC’s larger information management system, RESPOND, and will be tailored to meet the specific needs of humanitarian operations in Somalia, including two-way referral pathways and service mapping.

Background

DRC Somalia plays a key role in various coordination bodies aimed at improving the effectiveness of the humanitarian response through joint data collection, analysis, planning, and response. These include, but are not limited to, the CCCM Cluster, Somalia Cash Consortium, WASH Cluster, and Protection Monitoring. DRC is committed to strengthening inter-agency collaboration and ensuring that data-driven approaches enhance the delivery of humanitarian assistance across Somalia.

As part of its humanitarian response, DRC Somalia implements an Integrated First Line Response (IFLR) package, which provides multi-sector emergency support to newly displaced populations arriving at DRC-managed IDP sites. The IFLR activities include, but are not limited to, household registration with malnutrition screening for children, distribution of non-food items (NFIs), multi-purpose cash assistance, two-way referrals, WASH activities at both site and household levels, and Individual Protection Assistance (IPA). Referrals are a critical modality for DRC, especially for malnourished children identified during screening, as well as persons of concern identified by DRC’s protection, CCCM, and emergency teams. Depending on the nature of the case, referrals are made either internally to DRC’s teams or externally to other organizations.

In some instances, DRC staff refer cases to mobile teams operated by other organizations within DRC-managed IDP sites. However, the current referral process is largely manual, relying on paper forms or Excel spreadsheets shared via email. This manual process is inefficient and makes it difficult to track referrals and ensure timely responses. DRC Somalia has been working with an external consultant to develop an internal information management system called RESPOND. This system is designed to improve the management of DRC’s program data and facilitate the collection, tracking, and reporting of critical information.

To further enhance the coordination and effectiveness of service delivery, DRC is now developing a Referral Management System (RMS), which must be integrated into RESPOND. The RMS will streamline referral pathways—whether internal or external—ensuring real-time tracking of cases, improving coordination, and enhancing accountability. The system will support two-way referral processes, enabling DRC teams to manage cases more efficiently, whether they are referred internally between DRC sectors or externally to other humanitarian actors. The RMS should also feature offline capabilities, allowing referrals to be processed even in areas with limited or no internet connectivity, and a service mapping capability to provide up-to-date information on available services and focal points at each site.

To ensure the system meets the needs of the humanitarian sector, DRC will collaborate with key organizations, to pilot the RMS. These organizations will test the system during the pilot phase, allowing for refinement and ensuring it is fit for purpose before being scaled up for broader use. This collaboration will also ensure that the system aligns with the existing workflows of various actors in the humanitarian response.

Objective of the consultancy

The Danish Refugee Council (DRC) seeks a consultancy firm to develop a robust Referral Management System (RMS) to enhance coordination, accountability, and efficiency in service delivery across multiple sectors, particularly health, nutrition, and protection. The RMS will be a critical component of DRC’s larger information management system, RESPOND, and should be tailored to meet the specific needs of humanitarian operations in Somalia, including two-way referral pathways and service mapping.

The RMS will:

• Two-Way Referral Pathways: Enable organizations to refer cases both internally and externally, facilitating real-time tracking of referrals from initial identification to case closure. This will ensure smooth case management and follow-up across multiple actors and sectors.
• Offline Capability: Operate in environments with limited or no internet access by allowing referrals to be created, updated, and reviewed offline. The system will sync once the internet connection is restored, ensuring operations even in remote or underserved areas.
• Service Mapping: The RMS will include a comprehensive service mapping feature, initially populated with data from DRC and partner organizations. This feature will allow users to identify available services and focal points at various sites. The service mapping should be regularly updated through two-way communication between RMS users and Area-Based Coordination (ABC) structures, ensuring up-to-date information is always available for effective service delivery.
• Interoperability with DRC’s RESPOND System: The RMS should be fully integrated with DRC’s existing RESPOND information management system, allowing for seamless data sharing, case tracking, and reporting. This integration will ensure that referral data feeds into DRC’s broader data collection and analysis efforts, contributing to the overall effectiveness of humanitarian response.
• Interoperability with UN, Cluster, and Consortia IM Systems: The RMS will prioritize out-of-the-box integrations and integration features to ensure seamless interoperability with key information management systems used by UN agencies, humanitarian clusters, and consortia including IOM’s BRAVE, WFP’s SCOPE, SCC’s Red Rose, and feedback platforms like Zite Manager. This approach enhances coordination, reduces duplication of efforts, and aligns with inter-agency data protection policies and information flows.

The consultancy firm will be required to deliver the source code that contains the below features:

• User Requirements: Map the processes on the ground, engage stakeholders, review agency platforms, and gather user requirements. Understand referral processes, data flow, and user needs.
• Assess the functionality of the RESPOND system: Evaluate the existing RESPOND system’s capabilities for integration and identify gaps in functionalities.
• System Architecture and Offline Functionality Requirements:
• Design and implement a system architecture that ensures efficient data processing and seamless operation in environments with limited or intermittent internet connectivity. The system should support real-time data processing while minimizing latency in low-bandwidth settings. It should also enable users to operate effectively in offline environments, allowing them to capture, process, and store referral data locally on desktop devices. Once connectivity is restored, the system should ensure synchronization with the central platform, maintaining continuity and data integrity in remote areas with unstable internet access.
• Server Configuration and Setup: Establish a secure, scalable server infrastructure capable of handling high data traffic, with options for deployment either as a hosted solution or within the DRC Azure environment. The setup will ensure redundancy, data backups, and robust security for sensitive referrals. A cloud-based solution will be considered based on a cost versus capabilities analysis.
• Referral Pathways and Routing Requirements:
  Develop a system for managing two-way internal and external referral pathways that enables real-time tracking and efficient management of referrals. The system should include a method for routing referrals to the appropriate sectors or organizations. While a multi-mailbox design is preferred to ensure different types of referrals can be handled by dedicated channels, we are open to alternative, more pragmatic solutions that achieve the same goals of clear visibility, control, and efficient referral management.
• Secure External Access for Non-RMS Organizations, Including Offline Referral Transmission:
  • Develop secure referral access for external partners (non-RMS organizations). External partners will be able to receive and manage referrals via secure email links.
  • External Partner Access: Ensure that external partners (organizations not using the RMS) can securely access and manage referral information. This could involve secure methods for receiving, viewing, and responding to referrals.
  • Offline Referral Transmission: The system should provide a mechanism for users to send and manage offline referral data securely, including transmission methods that ensure data integrity and security, even in low-connectivity environments.
  • Secure Data Exchange: The system should allow external partners to securely submit follow-up actions, updates, or responses related to referrals once they have internet access, maintaining confidentiality and data integrity.
  • Data Synchronization: Offline data entered by external partners should be able to be synced with the central system once connectivity is restored, ensuring that records are updated and consistent across all platforms.
• Desktop Version for Offline Data Processing: Deliver a desktop solution of RMS that allows users to manage and process referrals offline. Data can be captured, stored locally, and synced once an internet connection is available, offering flexibility in areas with unstable connectivity.
• Service Mapping: Integrate service mapping to enable stakeholders to have real-time access to available services by sector and geographic area. Develop a service mapping tool or system that allows for real-time service tracking, identifying service gaps, and making recommendations based on data e.g. referral patterns and demand trends. The system should support the dynamic updating of service data and assist in identifying where additional services may be required, ensuring that resources are allocated efficiently in response to identified needs. The consultant should propose an approach that best meets these objectives, considering factors such as usability, scalability, and integration with existing systems.
• Offline Data Submission: Implement a mechanism for offline referral submission that ensures secure data transmission between mobile centres, even in areas with limited or no internet connectivity. The system should maintain the integrity and security of referral data during offline transactions and facilitate seamless synchronization with the central system once connectivity is restored.
• International standard of Data Encryption for Referrals: recognized encryption protocols for referral cases, ensuring comprehensive protection for data in transit and storage.
• System Performance and Security Testing: Complete final testing for system performance, security testing, and load testing ensuring optimal speed, scalability, and security across all modules.
• User Testing and System Improvement: Conduct user testing to gather feedback on the system’s functionality, usability, and performance in real-world conditions, ensuring that the system meets the needs of end-users and responds to feedback from stakeholders. Based on this feedback, make necessary improvements and refinements to ensure the system meets user needs and operates effectively in the field.
• Mobile Application Development: Develop a mobile application or explore the option of integrating an existing solution (such as Kobo Toolbox, Open Data Kit (ODK), or similar) that supports offline data collection and processing. The application should enable field staff to capture referral information and update records in areas with limited or no internet connectivity. It should also ensure that data can be synchronized with the central system once internet access is restored, ensuring seamless updates and maintaining data integrity.
• User Authentication and Data Integrity: Implement a secure user authentication mechanism for the mobile application that ensures only authorized personnel can access and input data. This could include options such as fingerprint scanners for identity verification, but the consultant is encouraged to recommend alternative approaches that may provide similar or better and more practical security and data integrity outcomes during field operations.
• Thumbprint Reader capability: Incorporate a thumbprint reader machine capability as an optional feature into the mobile app to input, update data on each case record, verify identity for before service delivery (for example to manage distribution lists for Non-Food Items (NFIs) and Multi-Purpose Cash Assistance distribution). This biometric verification will ensure that beneficiaries receive the correct service or assistance and prevent fraud, providing an additional layer of security during distributions.
• Reporting and Data Analysis: The Referral Management System should integrate with business intelligence (BI) tools such as Power BI or Tableau to deliver real-time insights through customizable dashboards, enabling stakeholders to monitor key performance indicators (KPIs), track referral trends, and identify service gaps. It should support the automation and creation of tailored reports, allowing users to extract data based on specific criteria. It should be able to monitor tasks from the point of referrals to completion. Additionally, it should have alert capabilities to notify stakeholders of delays or service gaps.
• Integration for Service Mapping and Data Sharing:
  Enable seamless integration between the service mapping tool and external systems (such as BRAVE, SCOPE, Red Rose), ensuring access to updated service availability and facilitating data exchange across platforms. The solution should support the necessary data sharing and connectivity to ensure accurate and real-time service information is accessible across different systems.
• Data Access Control and Confidentiality: Implement a system for customizable data access, ensuring that different users and organizations involved in the referral process can only access the data that is relevant and authorized for them. The system should maintain the confidentiality and integrity of case data by enforcing appropriate access controls, tailored to the needs and roles of various stakeholders.
• Audit Trails: Implement a capability to ensure storage of all users actions records for future audit trails.
• External Integration and Secure Access Setup:
• Establish the foundation for integrating the referral management system with external systems and ensure secure access for organizations not using the RMS. The solution should facilitate secure interaction with external partners, ensuring data confidentiality and integrity, and supporting various methods of secure communication as appropriate, such as encrypted links or other secure mechanisms.
• Optional: Multilingual Support and Translation: Implement a solution for real-time translation of referral data in Somali, Arabic, and English, ensuring seamless communication and collaboration across multilingual teams. The system should support the translation of data as needed to facilitate efficient and accurate exchanges among users from different language backgrounds.
• User Testing and System Improvement:

Conduct user testing to gather feedback on the system’s functionality, usability, and performance in real-world conditions. Based on this feedback, make necessary improvements and refinements to ensure the system meets user needs and operates effectively in the field.

• Comprehensive System Handover and Onboarding: Deliver the final, fully tested RMS system, including its code to DRC, including all documentation, training materials, and user guides. The consultant should ensure that DRC staff are fully onboarded to use the system and that all relevant personnel are trained in its operation and maintenance.
• The system should be based on free open-source software and/or a proprietary software owned by the consultant which will be handed over to DRC upon completion of the contract as a perpetual use software licence. Existing software-based solutions, requiring a licence, may be considered, however details, including pricing, need to be clearly elaborated in the tender documents. Any elements of the system, required for its various capabilities, which would require other licencing models for the RMS to function (such as subscription, user, device, processor/cloud consumption etc.) should be clearly indicated, including the pricing, in the tender documents. Any expected routine system maintenance requirements, including expected costs, should also be indicated.
• Post-Launch Support Plan: Develop a post-launch training and maintenance proposal for user training, ongoing technical support, system updates, and security monitoring. This plan will ensure long-term functioning, stability and performance of the RMS, providing DRC with the necessary resources to address any issues and implement updates as needed.

Scope of work and Methodology

The Consultant will be required to prepare a detailed methodology and work plan indicating how

the objectives of the project will be achieved, and the support required from DRC.

The information management system should be fully owned and managed by DRC: the system should be based on free open-source software and/or a proprietary software owned by the consultant which will be handed over to DRC upon completion of the contract as a perpetual use software licence. Existing software-based solutions, requiring a licence, may be considered, however details, including pricing, need to be clearly elaborated in the tender documents. Any elements of the system, required for its various capabilities, which would require other licencing models for the RMS to function (such as subscription, user, device, processor/cloud consumption etc.) should be clearly indicated, including the pricing, in the tender documents. Any expected routine system maintenance requirements, including expected costs, should also be indicated.

The Consultant will provide the documentation on DRC’s shared OneDrive.

Duration, timeline, and payment

The total expected duration to complete the assignment will be no more than 6 months.

The consultant shall be prepared to complete the assignment no later than September 2025.

Proposed Composition of Team

• Project Manager with experience in humanitarian IT projects.
• System Architect with a strong background in hybrid cloud-edge computing solutions.
• Developers Mobile and Web Developers skilled in offline-first solutions.
• Technical expert with database expertise / Database Administrator
• QA Engineer(s) with experience in testing data synchronization and system functionality in low-connectivity environments.
• UX/UI Designer(s) familiar with designing for field users and low-tech environments.
• Cyber security specialist

Eligibility, qualification, and experience required

Essential:

• Proven Expertise in System Development: The firm must have expertise in software and system architecture development, with a strong portfolio of end-to-end delivery of custom systems, including design, development, testing, deployment, and post-launch support.
• Proven Track Record in Software Development for Complex Projects: The firm should provide evidence of previous successful projects in developing data management systems, referral management systems, or related IT systems for the humanitarian, healthcare, or public service sectors. Ideally, these projects should involve multiple users, cross-agency collaborations, and a focus on real-time data processing.
• Experience in Humanitarian Contexts: The firm should have direct experience in developing IT solutions, and in particular information/data management systems, for the humanitarian or development sector, particularly in environments where connectivity is a challenge and in working with agencies supporting displaced populations or conflict-affected communities.
• Experience with Complex, Multi-Partner Systems: The firm/con must demonstrate experience in developing interoperable systems that integrate with other existing platforms or tools, especially systems used by multiple stakeholders, including external partners such as UN agencies, INGOs, and local organizations.
• Integration Expertise: The firm should have experience with integrating systems with third-party APIs, ensuring that their systems can work seamlessly with other platforms used by external partners (e.g., BRAVE, SCOPE, Red Rose) and integrating with existing MEAL systems or service mapping tools.
• Technical Infrastructure Capabilities: The firm should have experience in designing hybrid systems (cloud-edge solutions) that support offline data processing and data synchronization. Specifically, the consultant should have experience designing and setting up and deploying scalable and redundant server architectures that handle high-volume data.
• Experience in Low-Connectivity Solutions: The firm should have experience in implementing IT solutions in low-resource including areas with challenges such as poor connectivity, remote locations, and limited IT infrastructure. The firm should have specific experience in developing offline-first systems or hybrid cloud-edge solutions for environments with intermittent or low connectivity. This includes data synchronization, offline data management, and ensuring real-time updates once connectivity is restored.
• Expertise in Security and Data Protection: The firm must be well-versed in data protection and security protocols in line with international standards (such as GDPR, ISO 27001, etc.) and able to implement encryption, authentication mechanisms, and audit trails to protect sensitive information.
• Post-Launch Support and Maintenance: The firm must demonstrate capacity for providing post-launch support and system maintenance, including bug fixes, security updates, ongoing user training, and monitoring of system performance over time. Experience in system roll-out and hand over, user training and feedback collection
• Experience with User-Centred Design, ensuring that solutions are user-friendly and appropriate for non-technical staff in the field.
• Proficiency in mobile platforms such as Android/iOS and knowledge of tools like Kobo Toolbox and Open Data Kit (ODK) or similar tools.
• Strong understanding and experience in using key humanitarian platforms
• Experience in Multi-Language Support and Accessibility, that support multilingual users, especially for languages common in the project context (e.g., Somali, Arabic, English)
• Proven experience in API development and integration, particularly integrating external systems with RESTful or SOAP APIs.
• Experience with secure data transmission protocols (e.g., using OAuth, SSL/TLS, encrypted email links) for external access by non-RMS organizations.
• Experience with cloud database platforms (e.g., Amazon RDS, Google Cloud SQL, Microsoft Azure SQL) for scalable, low-maintenance database solutions
• Familiarity with hybrid database architectures that combine on-premise and cloud-based resources
• Strong communication skills and ability to work with cross-functional teams (e.g., health, protection, and nutrition sectors)
• Good experience in Linux server management and configuration

Technical supervision

The selected consultant will work under the supervision of:

• Information Management Manager

Location and support

The location can be remote or hybrid

The Consultant will provide her/his own equipment

Travel

Flexible but travel may be required for the mapping exercise, stakeholder engagement and user testing

Submission process

Refer to the RFP document name of the document.

• Company/Consultants Profile: Overview of the firm/consultants, including relevant experience, geographical reach, and past clients.
• Technical Proposal: Showing how the system will be developed. Modular Development: Encourage a modular approach or iterative approach to development, making it easier to roll out in phases while still achieving essential outcomes early on. Software Licensing and Maintenance: Provide clarity on the software licensing model, whether the system will be open-source or proprietary. If proprietary, outline licensing terms, associated costs, and ongoing maintenance requirements. Any subscription fees or other licensing models should be clearly defined, and include a proposal for long-term support and updates.
• Case Studies or References: At least three (3) relevant case studies or project references demonstrating the firm’s ability to design, develop, and deliver systems similar to the RMS, particularly in low-connectivity environments and humanitarian settings.
• Team Qualifications: Overview of the key staff proposed for the project, including their CVs with their qualifications, roles, and relevant experience.
• Demonstration of Relevant Technical Expertise: Evidence of the firm’s capability to implement technologies such as offline synchronization, data encryption, multi-agency system integrations, and API development.
• Financial Capacity: Evidence of the firm’s/consultants’ financial capacity to handle large contracts and a breakdown of costs for system development, testing, and post-launch support.

Evaluation of bids

Refer to the RFP document name of the document.

• Technical proposal
• Consultant/Firms experience doing similar relevant projects
• Team portfolio, experience and qualifications
• The firm must be able to allocate sufficient personnel and resources to meet the 6-month timeline outlined in the Terms of Reference.
• Availability for post-launch support, training, and system maintenance after the project is delivered.
• Clear and detailed cost/financial proposal for the consultancy, including a breakdown of costs related to development, testing, deployment, post-launch support, and any licensing fees for proprietary software or tools (if applicable).

Please find complete bidding documents in the following link: RFP-RO01-003581 Software Development Consultancy for the Design, Development and Roll-out of a Referral Management System