National Consultant for Assessment of Ethiopia's Legal, Institutional and Operational Framework for Document Fraud Detection, Investigation, Prosecution and Inter-Agency Coordination at International Airports

Introduction

Established in 1951, the International Organization for Migration (IOM) is the leading intergovernmental organization in the field of migration and works closely with governmental, intergovernmental, and non-governmental partners. IOM is committed to promoting humane and orderly migration for the benefit of all. It does so by providing services and advice to governments and migrants. As a member of the United Nations system, IOM supports governments globally to strengthen migration management systems, enhance border governance, improve service delivery, and reinforce institutional capacities in line with international standards. Through its technical assistance programs, IOM promotes safe, orderly, and regular migration by strengthening national structures, legal frameworks, and operational mechanisms.

Project Context and Scope

The International Organization for Migration (IOM), through the Regional Counter Smuggling Programme (RCSP) funded by the United Kingdom Home Office, is supporting the Government of Ethiopia to strengthen aviation border management capacities, improve the detection of fraudulent travel documents, and enhance the ability of frontline agencies to identify and disrupt trafficking in persons, migrant smuggling, and other forms of transnational organized crime.

While significant investments are being made to strengthen operational capacities at airports through the provision of equipment, training, and infrastructure, effective enforcement requires more than detection capabilities alone. The successful disruption of document fraud networks depends on the existence of clear legal provisions, operational procedures, referral pathways, investigation mechanisms, and prosecution processes.

International airports represent one of the most critical frontline environments for migration management, border governance, aviation security, and national security. The ability of border authorities and law enforcement agencies to identify fraudulent travel documents and respond effectively to document-related offenses is essential for maintaining the integrity of national borders while facilitating legitimate travel and international mobility.

Document fraud remains one of the most frequently encountered enablers of transnational crime worldwide. Criminal networks involved in migrant smuggling, trafficking in persons, organized crime, terrorism, identity theft, financial crimes, and other illicit activities increasingly exploit fraudulent travel and identity documents to evade immigration and law enforcement scrutiny.

The detection of fraudulent documents at airports represents only the initial stage of a much broader criminal justice process. Effective document fraud management requires clear legal frameworks, specialized operational procedures, robust investigation mechanisms, effective prosecution processes, competent judicial responses, and coordinated institutional action among multiple stakeholders.

In Ethiopia, provisions related to document fraud, forgery, trafficking in persons, migrant smuggling, immigration offences, and related crimes are spread across various legal instruments and institutional mandates. As a result, there is a need to assess the current legal and operational framework governing the identification, referral, investigation, and prosecution of document fraud cases detected at airports and other points of entry.

IOM Ethiopia intends to recruit a National Consultant to conduct a comprehensive assessment of Ethiopia’s legal, institutional, and operational framework governing document fraud detection, investigation, prosecution, and inter-agency coordination at international airports.

The findings of this consultancy will provide evidence-based recommendations for legal reform, SOP development, institutional strengthening, enhanced coordination, and future capacity development interventions.

The overall objective of this assignment is to assess the effectiveness, adequacy, and implementation of Ethiopia’s legal, institutional, and operational framework governing document fraud detection, investigation, prosecution, and inter-agency coordination at international airports and to provide recommendations for strengthening national systems and capacities. Specifically, the consultant shall:

1. Review and assess the legal and regulatory framework governing document fraud management at international airports.
2. Assess institutional mandates, responsibilities, capacities, and operational arrangements of agencies involved in document fraud detection, investigation, prosecution, and adjudication.
3. Examine operational procedures used for document verification, fraud detection, referral, investigation, prosecution, and judicial processing.
4. Evaluate existing inter-agency coordination and information-sharing mechanisms.
5. Identify legal, institutional, procedural, technical, and operational gaps.
6. Develop recommendations for potential future legal reforms, SOP development, training activities, institutional strengthening, coordination mechanisms, and capacity-building interventions.

The consultant shall undertake a comprehensive assessment of the legal, institutional, procedural, and operational framework governing document fraud management at Ethiopia’s international airports. The assessment shall adopt a systems approach and examine how institutions interact throughout the entire document fraud management cycle, from the initial detection of a fraudulent document at a border control point to the final judicial disposition of a case.

The consultant shall assess not only the existence of laws, procedures, and institutional arrangements but also how effectively these frameworks function in practice. Particular attention shall be given to identifying implementation gaps, operational bottlenecks, overlapping mandates, coordination challenges, and opportunities for strengthening national systems.

The scope of work shall include, but not necessarily be limited to, the following areas:

1. Assessment of Legal and Regulatory Frameworks

The consultant shall conduct a detailed review of the legal and regulatory instruments governing document fraud management in Ethiopia.

This component shall examine the extent to which existing laws adequately criminalize document fraud-related offenses, establish institutional mandates, support investigation and prosecution activities, and facilitate inter-agency cooperation. The assessment shall review and analyze:

• Immigration and Citizenship Proclamations and regulations;
• Passport and travel document regulations;
• Criminal Code provisions relating to forgery, fraud, organized crime, identity-related crimes, and associated offenses;
• Criminal Procedure legislation;
• Rules of evidence and evidentiary requirements;
• Civil registration and identity management legislation;
• Border management regulations;
• Aviation security laws and directives;
• Information-sharing and data protection provisions;
• Relevant operational directives and administrative instructions;
• International legal obligations and standards applicable to Ethiopia.

The consultant shall identify legal strengths, weaknesses, inconsistencies, ambiguities, implementation challenges, and opportunities for legislative or regulatory reform, existing sanctions and penalties, and investigative powers available to relevant agencies.

2. Assessment of Institutional Arrangements

The consultant shall undertake a detailed institutional analysis/mapping of all agencies involved in the detection, referral, investigation and prosecution of document fraud cases.

The assessment shall examine the roles, mandates, responsibilities, authorities, structures, staffing arrangements, technical capacities, accountability mechanisms, and operational relationships among relevant institutions.

Particular attention shall be given to understanding how responsibilities are distributed across institutions and whether existing arrangements facilitate effective coordination and case management.

Institutions to be assessed may include: Immigration and Citizenship Service (ICS); Ethiopian Federal Police; Airport Authorities; Airline carriers; Customs; Ministry of Justice; Ethiopian Civil Aviation Authority; National Intelligence and Security Service (NISS); Ethiopian Police University and Forensic Institute; and other relevant stakeholders identified during the assessment.

The assessment shall identify strengths, opportunities, gaps, overlaps, duplication of functions, coordination gaps, and capacity constraints affecting institutional performance.

3. Assessment of Operational Procedures and Practices

The consultant shall assess operational procedures and practices used by relevant agencies to manage document fraud incidents.

The assessment shall examine how document fraud cases are identified, processed, investigated, and referred throughout the criminal justice system. Specific areas of review shall include:

• Passenger Screening and Document Verification
• Detection and Referral Procedures
• Investigation Procedures
• Prosecutorial and Judicial Processes
• Information Management Systems (Information sharing, case management, etc.)

The consultant shall identify procedural gaps, operational bottlenecks, inconsistencies, and opportunities for process improvement.

4. Assessment of Inter-Agency Coordination Mechanisms

The consultant shall conduct a comprehensive assessment of inter-agency coordination mechanisms supporting document fraud management.

This assessment shall examine both formal and informal coordination arrangements and evaluate the effectiveness of collaboration among institutions involved in document fraud detection, investigation, prosecution, and enforcement.

The assessment shall examine key areas of inter-agency coordination, including information-sharing arrangements, intelligence-sharing mechanisms, joint investigations, referral systems, communication protocols, coordination committees, operational task forces, and multi-agency case management processes.

The assessment shall identify factors facilitating or constraining effective cooperation and propose mechanisms for strengthening collaboration.

5. Development of Strategic Recommendations

Based on assessment findings, the consultant shall develop practical, prioritized, and actionable recommendations. Recommendations shall address:

• Legal and regulatory reforms;
• Institutional strengthening measures;
• SOP development needs;
• Investigation and prosecution procedures;
• Information-sharing systems;
• Inter-agency coordination mechanisms;
• Capacity development priorities;
• Technology and infrastructure requirements.

Recommendations should be categorized as short-term, medium-term, and long-term interventions.

Organizational Department / Unit to which the Consultant is contributing

The consultant will work under the direct supervision of the Immigration and Border Governance (IBG) Programme Officer, IOM Ethiopia, in close coordination with relevant government counterparts and the Regional Counter Smuggling Programme team.

Responsibilities

Tasks to be performed under this contract

Deliverable 1: Inception Report

The consultant shall submit a comprehensive Inception Report outlining the understanding of the assignment, refined methodology, analytical framework, stakeholder mapping, consultation strategy, work plan, timeline, risk mitigation measures, and data collection tools. The report shall clearly explain how the consultant intends to conduct the assessment and ensure quality assurance throughout the assignment.

Due within five (5) working days of contract signature.

Deliverable 2: Legal and Regulatory Assessment Report

The consultant shall prepare a detailed assessment of Ethiopia’s legal and regulatory framework governing document fraud detection, investigation, prosecution, and airport border management.

The report shall include a comprehensive legal analysis, identification of legal gaps, assessment of implementation challenges, and recommendations for legislative and regulatory improvements.

Due within seven (7) working days.

Deliverable 3: Institutional and Operational Assessment Report

The consultant shall prepare a comprehensive assessment of institutional arrangements, operational procedures, staffing capacities, technical capabilities, and operational challenges.

The report shall analyze how institutions perform their functions and identify areas requiring strengthening.

Due within seven (7) working days.

Deliverable 4: Inter-Agency Coordination Assessment Report

The consultant shall prepare a dedicated report examining coordination structures, information-sharing systems, referral pathways, communication mechanisms, and collaborative practices.

The report shall identify coordination gaps and recommend practical procedural mechanisms for improving institutional cooperation including roles and responsibilities matrix.

Due within seven (7) working days.

Deliverable 5: Draft Consolidated Assessment Report

The consultant shall prepare a draft report consolidating findings from all assessment components.

The report shall include an executive summary, methodology, legal findings, institutional findings, operational findings, coordination findings, comparative analysis, gap analysis, and preliminary recommendations.

Due within five (5) working days.

Deliverable 6: Validation Workshop Package and Proceedings Report

The consultant shall prepare workshop materials and facilitate validation sessions.

The package shall include presentation slides, an executive briefing note, a workshop agenda, and discussion questions.

Following the workshop, the consultant shall prepare a proceedings report documenting discussions, comments received, areas of consensus, and proposed revisions.

Due within five (5) working days.

Deliverable 7: Final Consolidated Assessment Report

The consultant shall submit a revised and finalized assessment report incorporating comments from IOM, ICS, EPU, and other workshop participants.

The report shall provide a comprehensive roadmap for strengthening document fraud management systems at international airports.

Due within four (4) working days.

Performance indicators for the evaluation of results

• Timely delivery: All reports and deliverables are submitted within the agreed timeline and in line with the work plan.
• Quality of analysis: The legal, institutional, and operational assessments are comprehensive, evidence-based, and demonstrate critical insight into Ethiopia’s framework.
• Practicality of recommendations: Proposed SOPs, coordination mechanisms, and legal/regulatory reforms are realistic, actionable, and tailored to Ethiopia’s institutional context.
• Stakeholder engagement: Effective consultations are conducted with relevant agencies, and stakeholder perspectives are reflected in the findings and recommendations.
• Collaboration with international consultant: Coordination ensures complementarity between legal/operational assessment and training needs analysis.
• Responsiveness to feedback: Draft reports are revised and finalized in line with comments from IOM and stakeholders.

Evaluation Criteria for Applications

Applications will be evaluated based on the following technical and financial evaluation criteria:

• Technical qualifications, relevant education, and professional experience (30%).
• Technical proposal (maximum 10–15 pages): Quality and feasibility of the proposed methodology and work plan (40%).
• Relevant past performance and references (10%).
• Financial proposal — competitiveness and value for money (20%).

Only shortlisted candidates may be contacted for an interview or further assessment.

Travel Required

The primary duty station for the assignment will be Addis Ababa, Ethiopia, with possible travel to operational sites of federal institutions. All travel arrangements must be coordinated with IOM in advance.

Payment Terms and Consitions

Once the Immigration and Border Governance (IBG) Programme Officer approves the relevant deliverables, the consultant will receive payments in four instalments.

1. First deliverable – Inception report - First instalment payment (20% of overall contract value)- Deliverable by email within 5 working days upon signing the contract.
2. Second and third deliverables – Legal and Regulatory Assessment Report and Institutional and Operational Assessment Report- Second instalment payment (15% of overall contract value)-Deliverable by email within 14 working days.
3. Fourth, fifth and sixth deliverables – Inter-Agency Coordination Assessment Report, Draft Consolidated Assessment Report, and Validation Workshop Package and Proceedings Report – Third instalment payment (45% of overall contract value) - Deliverable by email within 17 working days.
4. Final deliverable – Final Consolidated Assessment Report – Fourth and Final instalment payment (20% of overall contract value) - Deliverable by email within 4 working days.

Qualifications

Required Qualifications and Experience

Education

An advanced university degree (Master's degree or higher) in Law, Criminal Justice, Criminology, Public Policy, Governance, Security Studies, International Law, Border Management, Migration Studies, Public Administration, International Relations, Political Science, or another closely related discipline from an accredited institution with 7 years of relevant professional experience and/or a bachelor’s degree in the above fields with 10 years of relevant professional experience.

Experience

• At least ten (10) years for BA degree or 7 years for master’s progressive professional experience in legal analysis, criminal justice, migration governance, border management, law enforcement, or related fields, is required.
• Proven track record in document verification, fraud detection, investigation, or prosecution processes, preferably within Ethiopia’s institutional context.
• Experience working with government institutions, law enforcement agencies, or judicial bodies on issues related to identity management, fraud prevention, or prosecution.
• Prior involvement in policy development, institutional assessments, or drafting of SOPs is highly desirable.
• Familiarity with international standards and best practices in document fraud detection and migration governance.
• Previous experience working with IOM, UNODC, the International Civil Aviation Organization (ICAO), other United Nations agencies, INTERPOL, bilateral development partners, or government institutions implementing donor-funded projects would be considered a significant advantage.

Skills

• Maintains high ethical standards in research and stakeholder engagement.
• Ability to analyze complex legal, institutional, and operational systems.
• Ability to synthesize large volumes of information from multiple sources.
• Identifies systemic issues and develops evidence-based recommendations.
• Excellent analytical writing skills.
• Excellent interpersonal and communication skills.
• Demonstrated ability to establish productive working relationships with government institutions, development partners, academia, and civil society.

Languages

For this consultancy, excellent command of written and spoken English, including demonstrated ability to prepare high-quality technical reports and policy documents is required. Fluency in Amharic is required, including the ability to conduct interviews, facilitate consultations, and review legal and policy documents. Knowledge of additional Ethiopian languages will be considered an advantage.

Proficiency of language(s) required will be specifically evaluated during the selection process, which may include written and/or oral assessments.

Required Competencies

IOM’s competency framework can be found at this link. Competencies will be assessed during the selection process.

Values

• Inclusion and respect for diversity: respects and promotes individual and cultural differences. Encourages diversity and inclusion.
  • Integrity and transparency: maintains high ethical standards and acts in a manner consistent with organizational principles/rules and standards of conduct.
    • Professionalism: demonstrates ability to work in a composed, competent and committed manner and exercises careful judgment in meeting day-to-day challenges.
    • Courage: demonstrates willingness to take a stand on issues of importance.
    • Empathy: shows compassion for others, makes people feel safe, respected and fairly treated.

Core Competencies – behavioural indicators

• Teamwork: develops and promotes effective collaboration within and across units to achieve shared goals and optimize results.
  • Delivering results: produces and delivers quality results in a service-oriented and timely manner. Is action oriented and committed to achieving agreed outcomes.
    • Managing and sharing knowledge: continuously seeks to learn, share knowledge and innovate.
    • Accountability: takes ownership for achieving the Organization’s priorities and assumes responsibility for own actions and delegated work.
    • Communication: encourages and contributes to clear and open communication. Explains complex matters in an informative, inspiring and motivational way.

Notes

IOM covers Consultants against occupational accidents and illnesses under the Compensation Plan (CP), free of charge, for the duration of the consultancy. IOM does not provide evacuation or medical insurance for reasons related to non-occupational accidents and illnesses. Consultants are responsible for their own medical insurance for non-occupational accident or illness and will be required to provide written proof of such coverage before commencing work.

Any offer made to the candidate in relation to this vacancy notice is subject to funding confirmation.

Appointment will be subject to certification that the candidate is medically fit for appointment, accreditation, any residency or visa requirements, security clearances.

IOM has a zero-tolerance policy on conduct that is incompatible with the aims and objectives of the United Nations and IOM, including sexual exploitation and abuse, sexual harassment, abuse of authority and discrimination based on gender, nationality, age, race, sexual orientation, religious or ethnic background or disabilities.

IOM does not charge a fee at any stage of its recruitment process (application, interview, processing, training or other fee). IOM does not request any information related to bank accounts.

IOM only accepts duly completed applications submitted through the IOM e-Recruitment system (for internal candidates link here). The online tool also allows candidates to track the status of their application.

No late applications will be accepted. Only shortlisted candidates will be contacted.

For further information and other job postings, you are welcome to visit our website: IOM Careers and Job Vacancies