Svoboda Satellite Project - External Final Evaluation

1/ General information

1.1/ Introduction and context

Access to free, reliable and independent information is a fundamental right and Reporters Without Borders (Reporters sans frontières - RSF) fights for the power of journalism to shape societies and promote transparency and accountability. RSF has been involved for years in exposing Russian propaganda. As RSF’s World Press Freedom Index highlights, the Russian state is pursuing its crusade against journalism, with almost all independent media banned, blocked and/or declared “foreign agents” or “undesirable organisations” and all others subject to military censorship. Throughout the last 25 years of Vladimir Putin’s regime, Russians have been subjected to a non-stop barrage of propaganda from all media sources. A systematic suppression of freedom of expression has occurred within Russia and the neighbouring states, engendering an alternative reality media universe. Since the beginning of the large-scale invasion of Ukraine by Russia in February 2022, the lockdown on independent media has worsened, rendering it virtually impossible for Russians to access reliable information. A war of information happens daily alongside the physical conflict, both in broadcasting media and on social platforms, as Russia projects a message of aggression against Ukraine and against the West, inciting hatred and spreading misinformation.

At a time when the level of censorship of journalists and media is unprecedented in Russia since the fall of the Soviet Union, civil society and independent media in exile have rallied to combat propaganda and find innovative and different solutions to ensure that populations in the region have access to alternative voices. To lead this fight, RSF has stepped up its efforts to create the concrete conditions for the circulation of free, pluralistic independent news and information in the region (JX Fund, Collateral Freedom).

Given the intensification of the Russian government's actions and measures to prevent the spread of reliable information and strengthen the grip of propaganda and disinformation campaigns, it was necessary to develop new ambitions and innovative solutions that are aimed more broadly at the Russian audience and public in the region, which are deprived of access to alternative, independent and pluralistic information. To meet this objective, the Svoboda Satellite Project, a package of mainly Russian-speaking television and radio channels run by independent media in exile, was launched in March 2024. Svoboda, which means "freedom" in Russian, represents a significant step forward in the quest for unrestricted access to information in a region where media freedom faces numerous challenges. This ambitious initiative intends to reverse the logic of propaganda. With the Svoboda project, the aim is to provide an alternative source of information, give access to exiled media content and ensure media pluralism for the people in Russia and in the region.

1.2/ Reporters sans frontières

Founded in 1985, Reporters sans frontières (RSF) defends the right to reliable information. Its mandate is based on article 19 of the Universal Declaration of Human Rights, which states that: "Everyone has the right to freedom of opinion and expression; this right includes freedom to hold opinions without interference and to seek, receive and impart information and ideas through any media and regardless of frontiers".

RSF strives to ensure that all human beings benefit from information that enables them to know, understand and form an opinion on the issues facing the world and their environment. To achieve this, the organisation is developing a holistic strategy, with 360° activities, to bring about global change. RSF acts on four levels: press freedom, relations between the public and journalists, the information market and the information space.

RSF also demonstrates creativity by developing systemic initiatives that address the causes of problems: the Journalism Trust Initiative (JTI) and the Partnership on Information and Democracy (I&D).

RSF has an international secretariat in Paris, thirteen sections and offices around the world, more than 150 correspondents, 4 representatives and local partners in a wide range of countries. RSF is a registered association in France and has consultative status with the United Nations and UNESCO.

1.2/ Important warning

RSF is listed as an “undesirable organisation” in Russia. This information should be taken into consideration if you wish to respond to this tender and have any links with Russia. Anyone cooperating with listed "foreign organisations" or helping to fund them in Russia can be subjected to administrative prosecution and fined. Repeat offences may lead to criminal prosecution punishable by up to five years in prison. Even the slightest reference to such an organisation or sharing its posts is enough to trigger these prosecutions.

2/ The project

The project to evaluate is entitled “Svoboda Satellite Project, bringing free, alternative and trustworthy information to the people in Russia and neighbouring countries”, and is funded by the European Union (DG Connect).

The EU-funded project began on 1 November 2024 and will end on 31 October 2026 (2 years implementation period). The total budget for the project is 2 599 868,29€.

2.1/ Objective of the project

At a time when the Russian government's censorship and lockdown of media and journalists is unprecedented since the fall of the Soviet Union, the Svoboda Satellite Project aims to ensure the free flow of alternative, pluralistic and independent media information in countries subject to intense propaganda. The project, a pioneering initiative, aims to provide an alternative source of information and ensure media pluralism. The project aims to provide independent journalists and media outlets, particularly those working in exile, the technical means to broadcast their content effectively in Russia and neighbouring countries. In order to reverse the logic of propaganda, and based on the independent media in exile, the project operates an independent and diverse package of TV channels distributed via direct-to-home satellite.

2.2/ Target countries and target groups

Target countries : Russia and neighbouring countries.

Target groups :

• Russian media outlet in exile ;
• International media who are no longer able to access audiences in Russia and the neighbouring countries ;
• Russian people living in Russia ;
• People (including but not limited to Russian-speaking people) living in the neighbouring countries ;
• Russian diaspora living anywhere abroad across the world.

2.3/ Specific objectives and work packages

The project has two specific objectives.

• Specific objective 1 : Operate an independent and diverse TV channels package distributed via direct-to-home satellite.
• Specific objective 2 : Expand the access to independent, alternative and pluralistic information for audiences in Russia and in the neighbouring countries.

The project is organised into three work packages which includes tasks.

Work Package 1: Project management and Coordination

• Task 1.1 : Grant management and project coordination
• Task 1.2 : Governance
• Task 1.3 : Audit and evaluations

Work Package 2: Deployment of the technical means to ensure the access to independent, alternative and pluralistic information in Russia and in the region

• Task 2.1 : Content identification and selection
• Task 2.2 : Content formatting and packaging
• Task 2.3 : Playlist development
• Task 2.4 : Satellite distribution

Work Package 3: Communication and dissemination

• Task 3.1 : Dissemination strategy
• Task 3.2 : Outreach towards the final beneficiaries

3/ The assignment

3.1/ Evaluation scope

The aim of the evaluation is to enable RSF to identify and exploit the strengths and opportunities for improvement for the possible continuation of the project. The evaluation scope will cover the entire duration of the EU-funded project (01/11/2024 - 31/10/2026).

A separate impact assessment, which falls outside the scope of this call for tenders, and is expected to be completed by June 2026 at the latest, is also planned for this project. The impact assessment will attempt to determine how many households (final beneficiaries) are reached by RSF's Svoboda satellite package and are watching the channels. The other objective of the assessment is to have a global overview of RSF’s Svoboda satellite impact :

• impact on the channels and content providers which benefit from the project to be able to broadcast their contents in countries or areas where they would normally be banned or restricted ;
• impact of the project communication on social media ;
• impact of the channels on streaming applications ;
• impact of the Youtube channel ;
• impact of working with pay TV platform and streaming services ;
• impact on helping partners reach their global audiences ;
• impact in the press (press releases about Svoboda, interviews, etc.).

In order to avoid duplication, during the scoping phase and based on the progress of the impact assessment, the selected evaluators and RSF will decide what should and should not be studied as part of the evaluation regarding impact. The results of the impact assessment will be shared with the evaluators and should be used as part of the document review.

Examples of stakeholders who might be relevant to interview as part of the evaluation:

• RSF Project officer
• RSF Projects Director
• RSF Eastern Europe and Central Asia desk
• Director of the Svoboda project and his technical support team (external consultant)
• Channel editor consultant
• Marketing sales consultant
• Representatives of channels
• Content providers
• Eutelsat
• The company in charge of doing the uplink to the satellite

The evaluation is to be designed, conducted and reported to meet the needs of these stakeholders. During the inception phase, the evaluators and RSF will agree on who will be responsible for keeping the various stakeholders informed about the evaluation process and results.

3.2/ Evaluation objectives and questions

RSF reserves the right to make small changes to the content of these ToR after their publication. These changes may concern the objectives of the evaluation and the evaluation questions. If changes have to be made, they will be discussed during the inception phase of the evaluation.

The objectives of this evaluation are to:

• Provide RSF with a critical analysis of the work carried out during the project in line which the OECD/DAC criteria which will serve as a basis for RSF internal learning process ;
• Provide the donor with an assessment of the effectiveness of the project implementation.

The proposed evaluation questions are:

Relevance and coherence

• Is the satellite diffusion adapted to the contexts of the target countries?
• Did the project fill a gap?

Effectiveness and efficiency

• Did the project achieve its objectives (achievement of indicator targets and completion of tasks)?
• Has the project succeeded in mobilising channels and content providers? Has the project succeeded in consolidating a satellite package with diverse content?
• Were the means of communication effective?
• Was the coordination between RSF and the consultants effective?
• Was the decision to operate a satellite financially efficient?
• Was the project able to achieve continuous broadcasting via satellite?
• What technical issues were encountered in the satellite broadcast? How were these problems resolved when they arose?
• Are there any technical improvements that could be made to enhance the project?

Impact and Sustainability

• Has the project had a positive impact on the channels and content providers that are part of the satellite package?
• To what extent will the benefits of the intervention continue, or are likely to continue ?
• Has the project succeeded in mobilising distribution platforms? Would this model enable sustainability of the project beyond the current funding?

Questions regarding impact will need to be reviewed during the scoping phase based on the methodology and progress of the separate impact assessment.

Questions are expected to be commented on, developed and completed in the tender by the tenderer and further refined during the inception phase of the evaluation.

3.3/ Evaluation approach and methods

The evaluation team is expected to describe and justify an appropriate evaluation approach and data collection methods in the proposition. The evaluators are to suggest a methodology that can provide credible answers to the evaluation questions. The evaluation design, methodology, methods for data collection and analysis are expected to be fully developed and presented in the inception report. Due to the specific nature and technical complexity of the project, RSF is open to suggestions and proposals from applicants regarding evaluation methods.

The evaluation of the project should be carried out in a participatory manner and be representative of all the stakeholders involved. It is expected that the evaluators will think through and facilitate the whole evaluation process, taking careful consideration of how the evaluation will be used. Applicants are therefore expected to present in their tender how the stakeholders are to participate in and contribute to the evaluation process. They must also present a methodology and data collection methods that create a space for reflection, discussion and learning among RSF teams.

Recommendations will be formulated to enable RSF to consolidate the strengths of its project implementation, and to take into account the various observations and recommendations that may have been identified by the evaluation.

Gender-responsive approach, methods, tools and data analysis techniques should be used.

As sensitive or confidential issues are to be addressed in the evaluation, evaluators should ensure an evaluation design that does not put informants and stakeholders at risk during the data collection phase or the dissemination phase.

All the documents required for the evaluation will be made available to the evaluators after the signature of the contract.

3.4/ Organisation and evaluation management

The evaluation will be supervised by the MEAL officer with the support of the Project officer. Relevant documentation and contact details will be provided by them.

3.5/ Evaluation quality

The evaluation shall conform to OECD/DAC’s Quality Standards for Development Evaluation. In this regard, the applicants shall specify in the tender how they intend to ensure quality during the evaluation process.

3.6/ Time schedule and deliverables

It is expected that a timeline and work plan is included in the tender and further detailed in the inception report. The timeline and work plan must allow flexibility in implementation. The evaluation shall be carried out between April and September 2026. The timing of field visits (if any), surveys and interviews need to be set by the evaluators in coordination with RSF during the inception phase.

The list below details the timetable of the evaluation process:

• Kick-off meeting - Between mid- and late April 2026
• Draft inception report - 2 to 3 weeks after the kick-off meeting
• Inception meeting (presentation of the draft report and discussion of RSF feedbacks) - To be defined during the inception phase
• Data collection - June - July 2026 (to be defined precisely during the inception phase)
• Debriefing meeting (discussions on the first results of the evaluation following data collection and wor on recommendations) - To be defined during the inception phase
• Draft evaluation report - By 24/08/2026 at the latest
• Meeting to discuss RSF feedback - To be defined
• Possible additional feedback on new version(s) of the draft report - Between the submission of the first draft and 02/10/2026
• Final evaluation report approved by RSF - By 02/10/2026 at the latest
• Restitution with a PowerPoint presentation - Early October 2026 (to be defined)

The inception report will form the basis for the evaluation process and shall be approved by RSF before starting to implement the evaluation. The inception report should be written in English. The report will include:

• An updated work plan and timeline based on the documentation review and the kick-off meeting.
• Updated methodology, evaluation questions, data collection tools (questionnaires, interview guides, etc.), etc.
• A list of stakeholders who will be contacted and the estimated dates of meeting.

The final report shall not exceed 30 pages and be written in English. The executive summary shall not exceed 5 pages and be written in English. The report, taking into account feedback from RSF, will include:

• An executive summary including the main conclusions and recommendations resulting from the evaluation (listed by order of priority) .
• A main report describing the context, objectives and methodology of the evaluation, the limitations, the detailed findings and results of the evaluation in relation to the objectives and evaluation questions, and the evaluators conclusions and recommendations (listed by order of priority).
• Appendix (list of documents, list of people interviewed, etc.)

The restitution in English should be based on a PowerPoint presentation to present the key findings and recommendations to RSF and the donor. The restitution should last approximately one hour, with a 30-minute presentation to allow time for questions and answers.

3.7/ Evaluation team qualification

For this evaluation, RSF is seeking to recruit a team of consultants. Preference will be given to teams with relevant expertise and experience who propose a participatory evaluation methodology.

The following skills will be sought:

• Specific expertise and experience related to the project:
  • Expertise in media ecosystem ;
  • Knowledge of the Russian and regional media ecosystem ;
  • Knowledge of television ecosystems and technology, including satellite.
• Skills and significant experience in project evaluation (methodology, interviewing, analysis, report writing, etc.).
• Fluent spoken and written English and Russian.
• Experience in evaluating projects funded by the European Union or similar donors.
• Knowledge of French is an asset.

It is important that the skills of the individual evaluation team members are complementary.

The evaluators must be independent from Reporters sans frontières, the evaluated project and activities, and have no stake in the outcome of the evaluation.

3.8/ Financial and human resources

The maximum budget available for this evaluation is €25,000 all taxes included. This amount must include all the costs required to carry out the evaluation.

The assessment can be carried out remotely or the evaluators can decide to carry out field mission(s), with the prior agreement of RSF. In the event of mission(s), the costs must be part of the total budget and the evaluators will be required to arrange the logistics including any necessary security arrangements.

How to apply

4/ Submission of the offer and selection

Team of consultants interested in the evaluation assignment should include the following documents in their application:

• A technical proposal detailing the understanding of the evaluation stakes, the proposed evaluation methodology, as well as the implementation schedule considered.
• CVs describing education and experience.
• A list describing previous evaluations or consultancies. Please give details of similar evaluation/consultancy contracts: donor and organisation that implemented the project, budget and duration of the project concerned, budget and duration of the evaluation/consultancy, main results, etc.
• A detailed financial proposal (estimate) with the total budget all taxes included.

Proposals must be submitted in English. Incomplete applications will not be considered.

Full applications should be sent by email to the following addresses before 18/03/2026 at 9.00 a.m (Paris time, CET):

• Charlie Troncy, MEAL officer: ctroncy@rsf.org
• Cléa Monier, Project officer : cmonier@rsf.org

Proposals will be evaluated according to the following criteria:

• Technical and financial proposal
  • Understanding of the terms of reference
  • Evaluation questions
  • Proposed methodology
• Consultants' expertise and experience
  • Lead Consultant
  • Associate consultant(s)
  • Complementarity of the team as a whole
• Budget and timetable
  • Proposed budget
  • Proposed duration, timeline and work plan
• Added value: specific tools, expertise, language etc.

The interviews with pre-selected applicants could be organised from mid-March onwards.