Terms of Reference: Assessment to Optimise the Operations and Maintenance model of Quito’s Metro

Terms of Reference: Assessment to Optimise the Operations and Maintenance model of Quito’s Metro

1.About the Global Gateway Investment Climate Reform Facility

The Global Gateway Investment Climate Reform (GG ICR) Facility contributes to the development of a conducive, inclusive and sustainable investment climate for the implementation of the European Union’s Global Gateway strategy in INTPA partner countries. Through targeted advisory services, it enables partner countries to attract investments, while enabling local and European businesses to grow and invest with confidence. The Facility places strong emphasis on women’s economic empowerment, promoting equal rights, access to opportunities, and green, sustainable growth for all. 

The GG ICR Facility is co-funded by the European Union (EU), together with the German Federal Ministry for Economic Cooperation and Development (BMZ) and the Ministère de l’Europe et des Affaires Étrangères (MEAE). It is implemented by GIZ, Expertise France and SNV.

Global Gateway aims at mobilising investments of up to €300 billion between 2021 and 2027. It does so by taking a Team Europe approach - bringing together resources of the EU, Member States, European financial institutions and national development finance institutions.

The Global Gateway strategy of the European Union covers five areas: Digital, Climate and Energy, Transport, Health and Education and Research. It allows EU partners to develop their societies and economies and create opportunities for the EU Member States’ private sector to invest and remain competitive. The GG ICR Facility is part of the ‘soft’ measures to materialise the Global Gateway strategy. Through this programme and across all its results, the EU aims at supporting green investments and a transition towards low-carbon circular economies, in line with the ambition of the European Green Deal and with the Paris agreement objectives. It is integrated into the European Consensus on Development ‘our world, our dignity, our future’, specifically with its priorities of promoting inclusive and sustainable growth and jobs. Lastly, it reinforces the EU’s leadership in promoting gender equality and social inclusion, in full alignment with the transformative approach of the Gender Action Plan III, while contributing to the 2030 Agenda’s SDG 5 (gender equality). 

The GG ICR Facility provides technical assistance to public and private organisations in INTPA partner countries to develop actions to improve the business environment and investment climate.

In the context of its mandate, the GG ICR Facility provides technical assistance to Empresa Pública Metropolitana Metro de Quito to conduct an assessment of the Quito Metro’s current operations and maintenance model with recommendations for an improved model. 

2.Context and objectives of the intervention

The Empresa Pública Metropolitana Metro de Quito (EPMMQ) is a public company owned by the City of Quito and is the operator of the city’s first and only metro system.

The Quito Metro is an all-electric mass transit system and a core element of the city’s sustainable mobility strategy. The metro is the backbone of an integrated system with feeder buses and last-mile modes such as cycling and walking. The line is 22 km long and was inaugurated in December of 2023.

The $2 billion USD metro line was built, since 2013, by an international consortium led by Acciona (public works and civil engineering). Financing was provided by four multilateral banks: Development Bank of Latin America (CAF), Inter-American Development Bank (IDB), the World Bank and the European Investment Bank (EIB). An extension of 5 km extension is planned, with an approximate cost of $500 million USD.

The Consortium EOMMT, composed of Transdev and the Metro de Medellín, was hired to operate the metro for the period 2022-2028.  The existing model established the maintenance of sub-systems by other companies: currently the Spanish company CAF maintains the trains (contract until 2029); the French company Alstom the railway signalling (contract until 2030), and the German company Siemens, the power supply. Recently, a tender for the $74 million USD maintenance of the infrastructure and telecommunications systems failed. The tender process was relaunched and has already been awarded to a consortium led by the French company Sofratesa, under a contract running until 2031.

The structure of the existing operational and maintenance system faces coordination and governance challenges. Each actor deals with each other through the Metro de Quito which slows operations, creates situations of conflict of interest and unclear responsibilities.  The system also relies on the technology of original suppliers and leads scattered operations and maintenance information.  The new tender for the metro operation, valued at approximately USD 120 million, shall start in 2027 ahead of the contract expiry in October 2028. So, a new, more efficient model needs to be designed with clear, efficient coordination mechanisms, and an attractive contractual framework for qualified international operators.

The IDB has supported the EPMMQ since 2021 with ad-hoc technical assistance, including a preliminary review of Operations and Maintenance model. This project will build on the report from the technical cooperation provided by the Inter-American Development Bank (IDB) to EPMMQ, to be completed by end of May 2026. EPMMQ will be moving from managing the various services and maintenance contracts to strengthening the supervision of the operations. A new Supervision area (“Gerencia de Supervisión”) is being implemented. The existing “Gerencia de Operaciones” will have 2 new subareas: Operations and Services and Fare Collection. In addition, a new “Gerencia de Mantenimientos y Seguridad Ferroviaria” will be created.

The objective of this project is to propose a more effective operations and maintenance model for Quito Metro. The assessment will include a cost-benefit and operational analysis of the current operating model to determine which activities should remain outsourced (in a larger tender or with smaller/local suppliers) and whether EPMMQ has the capacity to progressively assume selected functions in-house. Components to be analyzed include, but are not limited to service planning, PCC operations, train operations, customer service, fare collection management, physical security, cleaning services, preventive and corrective maintenance and Metro Culture and communications.

The project will also assess data management needs for a better supervision by EPMMQ’s. These data recommendations will adjust the existing and future data flow with maintenance operators, and the future one with the operations operator (potentially also in the shorter term up until 2028).

The recommendations will inform the design of the future operations and maintenance model and provide key inputs for the terms of reference of the upcoming operations tender, with the aim of supporting a more competitive and attractive procurement process for international operators.

The project is aligned with Global Gateway priorities on sustainable transport, climate mitigation, and inclusive urban development. Currently, about 98 percent of the Quito Metro’s operations and maintenance providers are European companies, and the metro has an established working relationship with the European Investment Bank. The tender of the extension of the current line could also include European firms.

3.Description of the activities

The GG ICR Facility is seeking experts to undertake technical assistance for the development of a new operations and maintenance model for Quito Metro.   The assignment will include a cost-benefit and operational assessment of the current operating model to identify which activities should remain outsourced (in a larger tender, or with smaller/local suppliers) and whether EPMMQ has the capacity to progressively assume selected functions directly. The assessment will also identify the data management, reporting, and supervision requirements needed to strengthen EPMMQ’s oversight of operations and maintenance contractors.

This assistance will be designed to be gender-inclusive and throughout the exercise the consultant should analyse the participation of both women and men in the economy as well as businesses and organizations owned/run by both women and men equally (and eventually, based on data availability, of youth under 35 years old). The works should be implemented in a participatory and collaborative way through consultations, interviews, workshops and public-private dialogue.

The contractor shall provide the following services:

1.Prepare kick-off meeting

• Organise a technical kick-off meeting with the EPMMQ and relevant stakeholders (such as the EUD) to review project implementation logistics and scope (milestones, responsibilities and timeline; indicating clearly the role to be played by involved parties and when these should be carried out).
• Liaise with ICR facility and the EPMMQ on the organisation of the meeting.

2.Assessment

• 1. Assessment for EPMMQ's to streamline activities within the Operations and Maintenance model: operations and supervision
• Carry out an assessment and consultation process through in person/online meetings, on-site observation or workshops with the current operator, maintenance providers and other stakeholders and relevant organizations (including employees’ representatives).
• Assess the most suitable operational and maintenance arrangements for activities under the new Operations Contract (2028–2032), including, but not limited to, service planning, PCC operations, train operations, customer service, fare collection management, physical security, cleaning services, preventive and corrective maintenance, and Metro Culture and communications.
• Assess EPMMQ's technical and management capacities for fulfilling its role in supervising and operating the metro subsystem, including:

• Assess if any parts of the current Operations should be excluded from the upcoming 2028 bidding. These activities could be outsourced to local suppliers or operated by EPMMQ directly. Define the appropriate supervisory model for this. Complete a cost analysis of different alternatives.
• Analysis of capacities for supervising the operation and maintenance of the metro system and related data needs.
• Analysis of the mechanisms for controlling, monitoring, and managing operational and maintenance information.
• Identification of gaps and existing capacities that affect EPMMQ's performance as the supervising authority.
• Recommendations for capacity building from now until 2028, aimed at preparing EPMMQ to a new operation model of the Quito Metro subsystem (for ex. supervising different vendors).

• Cost analysis of the different alternatives for supervision and/or execution of the components, distinguishing between operating costs and capital investment costs. Assess potential suppliers with their strengths and costs.

2.2) Review ICT and data needs

• Comprehensive analysis of the ICTs currently used by the different operators and maintenance providers of the system.
• Technology mapping to identify platforms, systems, and information flows, assessing their level of interoperability.
• Define what information and in what format should be submitted to EPMMQ, so that EPMMQ can consolidate the relevant technical and economic information distributed among different suppliers, systems and reporting systems, as it relates to the status of assets, maintenance activities, operational performance, incidents and users’ experience.
• Assess and present the options for the platform to be used by EPMMQ

2.3) Gender gap analysis: Assess the role of women in the operation and maintenance activities and areas and identify gaps in women’s participation.

3.Prepare report

Prepare a report (covering operations, supervision, and data needs) and an action plan identifying the most suitable operational, maintenance, and management arrangements for the activities assessed, as well as the training, capacity-building, and institutional strengthening requirements for EPMMQ. The study will benchmark international and regional good practices and translate them into practical recommendations for a more efficient and coherent operating model. Include recommendations to increase the participation of women in areas where they are underrepresented.

4.Validation meeting and final report

• Validation meeting: prepare a presentation of the analysis and findings of the assessment study and recommendations for action. Organize and present in a workshop with Metro de Quito, ICR Facility and any other relevant stakeholders.
• Final report: Incorporate the comments and feedback from the validation workshop and prepare a final report.

The databases used and generated during the consultancy shall be documented and transferred to EPMMQ as a deliverable, ensuring their traceability, future use, and replicability to support decision-making.

• Policy note: Develop a 3 to 5 pages policy brief targeted at policy makers, multilateral institutions and investors (government officials or relevant decision-level stakeholders, most likely non-technical, and with little time availability) highlighting the main assessment and recommendation.

5.Capacity building and knowledge transfer

• The contractor shall design and implement a capacity-building process for the Metro de Quito’s technical team, to ensure a clear understanding of the scope, assumptions, and results of the proposed O&M model. The training shall include practical sessions and the delivery of technical inputs to ensure institutional ownership of the model.

6.Closing meeting

• Closing meeting: Prepare and present at the closing meeting with the Metro de Quito, the European Union Delegation, the GG ICR Facility and other relevant stakeholders.
• Contribute to the Completion report containing Monitoring & Evaluation (M&E) indicators: provide the Participants lists with the number of participants by gender, main activities carried out, expected results (outcomes), potential follow-up actions and lessons learned (template to be provided by the ICR facility).
• Prepare two (2) blog articles, one during the project and one at the end of the project (for publication possibly in the ICR LinkedIn/website) as project communication (including text, quote and photograph/image). The topic is to be decided (possible topics include: Global Gateway and related European investments, role of women in a relevant area of metro operations and/or maintenance, replicable aspects from the project or lessons for other metro/mass transport in the global South, etc..)

7.Follow up on results (outcomes)

• Provide support to the Metro de Quito: provide follow-up support as required, in agreement with the GG ICR Facility, to facilitate the practical implementation of results.  
• As part of the in-person consultation process, collect communication materials for the GG ICR Facility, such as photos or videos of events and participants (with participant’s relevant authorization), as agreed beforehand with the GG ICR Facility project manager for communications posts of the activities on Linkedin.
• When organizing workshops, prepare and obtain the signed participants’ lists with the number of participants by gender (model to be provided by the GG ICR Facility)

General note on reports:  Each report produced shall include:

• Executive summary.
• Acknowledgements section.
• Description of the methodology used for the study.
• Clear, actionable recommendations, classified by short, medium and long term, with feasibility, impact, responsible entity and budget associated.
• Implementation roadmap.

Reports and Powerpoint presentations should follow the format provided by the GG ICR Facility.

The deliverables will be written in Spanish.

Meetings will take place in Spanish. The consultant(s) shall speak Spanish or organize at their expense any required translation.

4.Qualifications for the contractor

The position is open to individual consultants or firms with the following credentials:

• Minimum of master's degree in Transport or other related studies.
• Minimum 10 years of experience in the field of transport, particularly on urban railway/metro systems. Experience in the design, supervision and implementation of O&M models.
• Knowledge and experience on institutional development and women economic empowerment.
• Experience on policy/regulatory environment, business environment reforms, and Public-Private Dialogue in in developing economies.
• Experience providing technical assistance to the public and private sector in emerging economies.
• The team should include members with expertise on urban Railway/Metro Operations, Operations and Maintenance, Governance/Institutional setup and Data/Performance.
• Fluency in Spanish for some members of team (desirable for all).
• One consultant shall be based in Quito, Ecuador, or be able to spend a significant amount of project time there.  

Deliverable, Date and Level of effort 

1. Kick-off meeting, 15 working days after contract signature: up to 2 expert days

2. Assessment: operations and data , 65 working days after contract signature (aprox end of July):        up to 35 expert days

3. Draft report, 95 working days after contract signature (aprox mid September): up to 16 expert days

4. Validation meeting and Final Report, 125 working days after contract signature (aprox end October): Up to 10 expert day

5. Capacity building, 145 working days after contract signature (aprox end November): up to 5 expert days

6. Closing meeting, completion report and blogs, 155 working days after contract signature (aprox mid December): up to 3 expert days

7. Follow up on Results (outcomes): subject to prior written approval by SNV manager, 155 working days after contract signature (aprox mid December) pending ICR/SNV task manager approval: up to 3 expert days

Level of effort: total number of expert days is 74.

The number of days/travel/workshops and the budgets will be contractually agreed as maximum amounts. Assessment will be based on qualification and rate.

Period of assignment

The project shall last from June 8, 2026 to December 15, 2026.

Travel

The country of assignment will be Ecuador.

Workshops, Training

The contractor implements virtual meetings and workshops as defined above and supports the organisation of physical meetings with the PSD Department. The consultant will draft the agenda, advise the selection of attendees, prepare content and facilitate the workshops.

• For virtual meetings, the consultant ensures s/he has appropriate software to invite for virtual meetings / video conferences / webinars. No budget is provided for this.
• For physical workshops, the consultant will work closely with the PSD Department to organise these meetings. The ICR Facility will cater for the costs (venue, catering) of holding a physical meeting. The meeting logistics will be organised in coordination with SNV HQ. 

Data collection

The consultant will be acting as an independent data controller of personal data being processed in connection with the contract and shall ensure that all data collected during the project are processed in accordance with the EU General Data Protection Regulation (GDPR).

6.Role and responsibilities of the requesting organisation

The GG ICR Facility pays directly for the time and travel of the expert team (one or more international and/or national experts -remote or in country) and for events (venue, refreshments). It does not provide allowances for participants.

The requesting organisation ensures timely availability of staff, inputs, and relevant information to enable effective delivery. It will work in close collaboration with the experts, to provide them with key information for the diagnosis and facilitate the organisation of meetings with key stakeholders, including members and external partners from the public and private sector.

The requesting organisation is expected to:

1. Follow up on project implementation.
2. Assign and operational focal point and managerial focal point, to work closely with the expert team.  The Direction of External Affairs of EPMMQ will be the point of contact for project follow up, organizing meetings and general coordination.  A technical team at EPMMQ will act as the technical counterpart to support the project and provide technical inputs.
3. In-kind contribution: The expert team leads technical content; the partner organisation leads logistics and the organization of local events and meetings. It identifies participants, sends and follows up on invitations, finds venues and budgets, and leverages networks to ensure stakeholder involvement. The partner’s organization covers its own staff time, travel, equipment.
4. Open communication: to participate in regular follow up meetings, share timely responses, update about changes (such as staff or leadership changes) and internal coordination.
5. Ensure gender considerations are meaningfully included in the design, implementation, and results of the technical assistance.
6. Commitment to results: The partner organization will make all efforts to implement the relevant recommendations coming out of the technical assistance, and inform any updated during the post-implementation evaluation phase of the project.
7. Commitment to deliverables: If engagement drops to a level that jeopardizes project implementation within the agreed timeframe, the GG ICR Facility may cancel the project.

7.How to apply

Please submit the technical proposal with CV(s) and financial offer (or daily rate) by June 4th.

Full document and ToR can be found here.