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MONITORING of
PROJECT IMPLEMENTATION
a manual

o 10 20 30 40 50 60 70 80 90 100

Office of External Relations

Pan American Health Organization

Pan American Sanitary Bureau, Regional Office of the
World Health Organization
525 Twenty-third Street, N.W. 20037, U.S.A.

February 1999 Pan American Health Organization

Monitoring of Project Implem.3 11/3/00 10:40 AM Page i

MONITORING OF PROJECT IMPLEMENTATION

A MANUAL

Office of External Relations

Pan American Health Organization

Pan American Sanitary Bureau, Regional Office of the
World Health Organization
www.paho.org

February 1999
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Foreword

The introduction of the Logical Framework Approach (LFA) in PAHO a few years ago
has resulted in important improvements in the area of project design.Technical units and
Representations have improved their capacity to prepare better projects, incorporating all
the elements that will provide a greater chance for the attainment of the goals and that
will make a project appealing to the international community. Externally funded projects
are critical in the delivery of PAHO’s technical cooperation to countries, enhancing our
capacity to respond to demands beyond our regular resources.
We have a manual known as the “Standardized Format for PAHO Project Documents
and Profiles”, guiding our personnel, providing them with what are considered the mini-
mum requirements for a good project.This manual is intended to guide a project designer
step by step, securing that all basic elements of good project design are present, including:
involvement of all stakeholders, establishment of clear goals and purpose, identification of
assumptions and risks, and definition of expected results, manageable interest, necessary
activities, indicators of progress and means of verification, etc.
In addition, PAHO has created the necessary internal mechanisms for project review
through the establishment of the Project Review Process (PRP) and Project Review Group
(PRG). Both have allowed the Organization to have a clear view of the projects prepared by
different organizational structures, their degree of development, their priority within Divisions
and the Organization as a whole, and their status in obtaining support from the international
community. The PRG has been an excellent opportunity for peer review, personnel develop-
ment in project design, and identification of opportunities for inter-programmatic work.
To get a project funded is not enough. It is also necessary to execute it well, timely
and in accordance with agreed upon commitments with donors and beneficiaries.
Monitoring is critical to project execution. It is a management tool for tracking progress of
on-going projects and is an integral part of project execution. Accordingly, project man-
agers must develop a monitoring plan to enable them to perform this function with dili-
gence, overseeing integral project implementation, including technical and financial
aspects. Project management is an area within the Organization that needs strengthening.
The purpose of this manual, prepared by the Office of External Relations (DEC), is to cre-
ate some standard procedures, as was done with project design, for managing the imple-
mentation of technical cooperation projects. It provides guidance on how to monitor proj-
ects in a way that will make project management more effective, and facilitate follow up.
Once in place, monitoring will save time and effort for the project manager and will facili-
tate project reporting on achievements and obstacles to our counterparts. Good reporting
provides the basis for continued support from the international community.

Irene Klinger
Chief, Office of External Relations
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TABLE OF CONTENTS

1. Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .1
1.1. What is monitoring and why is it useful? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .1
1.2. Purpose of the manual . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .1
1.3. How the monitoring manual relates to other PAHO documents . . . . . . . . . . . . . . . . . . . . . . . . . . .2
2. The project cycle and the use of evaluation tools . . . . . . . . . . . . . . . . . . . . . . . . . .2
2.1. The planning process in PAHO . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .3
2.2. The project cycle . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .3
2.3. Spanish – English terminology . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .4
2.4. Purpose of appraisal, monitoring and evaluation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .5
3. Project management during the implementation phase . . . . . . . . . . . . . . . . . . .5
3.1. The project document . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .5
3.2. Preparing annual work plans and budgets . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .5
3.3. Responsibilities of the project manager . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .6
3.4. The logical framework approach . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .6
3.5. How far does the project manager’s responsibility extend? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .7
4. The monitoring procedure . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .7
4.1. Reviewing the agreement with the donor . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .7
4.2. Making an operational plan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .8
4.3. Making annual work plans . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .9
4.4. Breaking down the project budget . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .9
4.5. Preparing a monitoring plan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .10
4.5.1. Performance indicators and their definitions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .11
4.5.2. Baseline data . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .11
4.5.3. Performance targets . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .12
4.5.4. Means of verification and data source . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13
4.5.5. Method of data collection . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13
4.5.6. Frequency and schedule of data collection . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .14
4.5.7. Responsibilities for acquiring data . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .14
4.5.8. Data analysis plan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .14
4.5.9. Identifying needs for complementary evaluations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .14
4.5.10. Plans for communicating and using monitoring information . . . . . . . . . . . . . . . . . . . . . . .14
5. Analyzing results of monitoring . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .15
6. Suggesting correcting measures . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .15
7. Editing progress reports/annual reports . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .15
8. Concluding remarks . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .16
8.1. A participatory approach . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .16
8.2. Results Oriented Management . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .17
ANNEX I
CONDENSED GUIDE FOR PAHO MONITORING PROCEDURE . . . . . . . . . . . . . . . . . . . . . . . . . . . .19
ANNEX II
FORMAT FOR ANNUAL PROGRESS REPORT . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .22
LIST OF ABBREVIATIONS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .24
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1. Introduction
1.1. What is monitoring and why is it useful?
Monitoring is a management tool for tracking progress of ongoing projects.
The basic idea is to compare actual performance with plans and to measure
actual results against expected results.
The monitoring function is an integral part of project execution. It is simply
a way of making efficient project follow-up and to provide systematic, consis-
tent and reliable information on project progress.
Once in place, monitoring will save time and effort for the project manager
and facilitate project follow-up and reporting. It does not make a project more
complex – instead, it makes it more systematically manageable.
Monitoring serves the project manager in several ways:

• It provides information to be presented to national counterparts, PAHO and

external financing partners at periodic meetings and in progress reports.
• It provides a basis for decisions on necessary modifications of the project:
Resource utilization may be adjusted, priorities shifted and new activities
introduced. Flexibility and agility in project management is enhanced.
• It helps the manager:

- to show results, 1
- to understand and explain to others what is happening in the project
and why expected results are or are not achieved,
- to provide arguments for needed changes, and
- to build confidence with top management in PAHO, national counter-
parts and financing partner agencies.

• It improves the chances of serving the target population well, because the
effect on the target population is analyzed reiteratively.

1.2. Purpose of the manual

Project management is an area within the organization that needs strength-
ening.The purpose of this manual is to create some standard procedure for man-
aging the implementation of technical cooperation projects and to provide guid-
ance on how to perform monitoring in a way that will make project manage-
ment more effective, facilitate follow-up and make reporting more consistent.
The manual is organized in such a way that it should be easy to use for ref-
erence.After the introductory chapters which define monitoring and its place
in the project cycle, as well as its use as a management tool during project
implementation, the monitoring procedure is explained step by step (Chapter
4).Annex I contains a Condensed guide to the PAHO monitoring procedure
and annex II a format for annual progress reports.
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1.3. How the monitoring manual relates to other PAHO documents

This manual builds on and is closely linked to a number of other PAHO doc-
uments and systems in use.
AMPES, the system through which PAHO establishes managerial procedures
for planning, programming, monitoring and evaluation provides the framework
for this new manual.The basic document explaining the application of AMPES:
Technical Cooperation Planning, Programming and Evaluation System AMPES
(1998) should be familiar to all readers.
2
Already in use in PAHO is also the manual Standardized Format for PAHO
Project Documents and Profiles (1994), relating to the Design Phase of the proj-
ect cycle.The new manual should be seen as a complement elaborated to sup-
port the Implementation Phase in the life of a project.
The two manuals, as well as AMPES, are based on the Logical Framework
Approach (LFA) to Project Management. A review of the document The
Logical Approach to Project Management in PAHO is recommended
(PAHO/AD-DAP/96.01).

2. The project cycle and the use of evaluation tools

2.1. The planning process in PAHO
The planning process in PAHO called AMPES includes five levels of objectives
linked by hierarchy and encompasses the following three stages of planning:

1 Policy Planning,
2 Strategic Planning, and
3 Operational Planning.

This manual is related only to the Operational Planning.The figure below

illustrates the hierarchy and the planning levels.

AMPES

Policy Planning General Program of Work (GPW)

Strategic and Programmatic Orientations (SPO)

Strategic Planning Biennial Program Budget (BPB)

Operational Programming Semiannual Program of Work (SPW)

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2.2. The project cycle

Project management in PAHO encompasses responsibility for the three
phases of the project cycle:

DESIGN
Appraisal

LOGICAL
APPROACH

EVALUATION IMPLEMENTATION
Ex-post evaluation Monitoring

The project manager will need different analytical tools to assess and evalu-
ate the project in each phase of the cycle:
3

• Appraisal for the Design phase.

• Monitoring for the Implementation phase.
• Ex-post evaluation for the Evaluation phase.

The concepts of appraisal, monitoring and ex-post evaluation must be clear-

ly separated.Their respective places in the project cycle are illustrated in the
figure above.

2.3. Spanish – English terminology

In Spanish, the term “evaluación” is often used for all three activities:
appraisal, monitoring and ex-post evaluation. In order to establish a clear and
unambiguous terminology, the following terms should be used in English and
Spanish, respectively:
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English Spanish

Design phase Appraisal Evaluación ex ante

Implementation phase Monitoring Monitoreo

4
Evaluation phase Ex-post evaluation Evaluación ex post

2.4. Purpose of appraisal, monitoring and evaluation

The purpose of an appraisal is to assess the viability of a proposed project
before a decision is taken.The project design is scrutinized and alternative
approaches and designs are compared.As a result, it will be recommended that
the project be implemented as proposed, be modified or not be executed at all.
Appraisal is sometimes called ex-ante evaluation.
The purpose of monitoring is to steer a project towards its purpose and to
detect any problems that makes it probable that the project will not achieve
expected results.This is done through periodic follow up of technical progress
and financial expenditure, whereby actual performance and results are com-
pared to plans.
The purpose of ex-post evaluation is to improve the design, strategy and
processes of development cooperation by learning lessons of experience.
Evaluation addresses the higher levels of the project hierarchy,i.e. the project
purpose and the project goal.
Monitoring and evaluation share some of the same objectives:

• To improve the management of projects and ensure the optimum use of

funds.
• To foster accountability and transparency in the management process.
• To ensure that the technical cooperation is pertinent, effective and efficient.
• To provide well substantiated information on project progress and results
to be reported to higher levels in the organization, stakeholders and finan-
cial partners.
• To learn lessons of experience with the aim of improving the design, formu-
lation and management of projects (organizational learning).

Monitoring and evaluation are however different with respect to their tim-
ing and the aspects that they address. Evaluation is more occasional than moni-
toring and is typically undertaken “after the fact” analyzing the long-term
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impact of an intervention. Monitoring, on the other hand, is done periodically

during project implementation assessing project progress.
From now on this manual will address the concept and tool of monitoring
only, i.e. tracking project progress during the implementation of a project.

3. Project management during the implementation phase

3.1. The project document
The project document, which is elaborated at the final stage of project
preparation, is a systematic description of the project including a budget and a
chronogram. It is intended to guide the implementation phase. It is also the
basis for the formal agreements between PAHO and the national counterparts
and between PAHO and external financing partners.

3.2. Preparing annual work plans and budgets

The project document covers the entire project period. In order to translate
the document into operational programming, it is necessary to break it down
into annual work plans and budgets.Tasks, activities and expenditure are pro-
grammed on a yearly basis (or any other chosen period).The work plan is in
fact a calendar of activities to be performed in a given period and the estimated
financial expenditure related to these activities, as well as an identification of
the responsible party for its execution. 5
The annual work plan and budget will then form a basis for monitoring of
project progress.They should be elaborated in collaboration with designated
(international, national, and local) counterparts and be presented to higher lev-
els of management in PAHO and to external financing partners.

3.3. Responsibilities of the project manager

Successful project implementation requires that managers assume the fol-
lowing responsibilities:

• Manage all the resources.

• Produce outputs (the expected results) of the project.
• Perform technical as well as financial monitoring.
• Alert top management when

- The achievement of expected results is uncertain.

- Problems within the project appear to threaten achievement of the
project purpose.
- Changes in the project environment have a negative impact on the project.

• Recommend adjustments and corrective action.

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3.4. The logical framework approach

The logical approach (LFA) to project management provides the basic ele-
ments needed for designing complex projects and assisting in their execution,
monitoring and evaluation. LFA is a management tool that facilitates project
management.
It is expected that projects designed with LFA have well-formulated objec-
tives and measurable targets to make it possible to monitor progress and assess
results. Indicators need to be established, means of verification determined and
6 assumptions explicitly stated.

LFA MATRIX FOR PROJECT DESIGN

HIERARCHY OF INDICATORS MEANS OF ASSUMPTIONS

OBJECTIVES VERIFICATION AND RISKS

GOAL

PURPOSE

EXPECTED RESULTS

ACTIVITIES Resources

3.5. How far does the project manager’s responsibility extend?

The LFA matrix also defines the responsibilities for a project.
The lower levels of the LFA hierarchy, up to and including expected results,
are under management control.The project manager will therefore be responsi-
ble and held accountable for achieving the expected results.This is sometimes
called the management contract.
Achievement of the project purpose, on the other hand, depends partly on
factors beyond the project manager’s control; hence he or she cannot assume
responsibility or be held accountable for achieving the project purpose and
even less for attaining the goal. Nevertheless, the project manager is committed
to working towards the purpose and the goal of the project and to alert his/her
superiors, if there is evidence or probability that the project purpose will not
be achieved.
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Not under management control:

GOAL
EV A L U AT I O N
PURPOSE

Under management control

and responsibility: EXPECTED
RESULTS
M O N I T OR I N G
ACTIVITIES

As shown in this figure, monitoring is to be focused on the activities and

expected results levels, while evaluations should address the project purpose
level, and possibly also the goal level. 7

4. The monitoring procedure

In this section the reader will be guided through a typical monitoring pro-
cedure, step by step.

4.1. Reviewing the agreement with the donor

For every new project funded by the international community, there will be
either a project specific agreement, or an umbrella agreement that rules the
relations with that specific donor and covers more than one project.
The project manager should familiarize him/herself with that agreement in
order to ensure compliance with all its specifications, which have been
approved and signed by PAHO’s Director or his designate. Project agreements
have specific clauses regarding transfers of funds, structures for project imple-
mentation, project personnel, procurement issues, relations with national coun-
terparts, involvement of the donor at different stages, reporting requirements,
etc. These are all crucial elements to be considered by the project manager
when defining plans of action and when monitoring execution.
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4.2. Making an operational plan

Once the project document is approved, an operational plan for the entire project
period must be elaborated. By this is meant that activities necessary for achieving
expected results are outlined indicating the sequence and timing of and defining
dates when stated results are to be achieved.A simplified and condensed operational
plan may be organized as follows:
OPERATIONAL PLAN FOR PROJECT CONTRIBUTING TO THE ELIM-
INATION OF ILLNESSES CAUSED BY DRINKING IMPURE WATER
8
Project purpose: Hygienic practices adopted
Chronogram
by rural population in the NW region
J F M A M J J A S O N D
A E A P A U U U E C O E
Expected Results N B R R Y N L G P T V C
01 Clean water provided to villages in NW region
02 Health workers trained
03 Community informed about water treatment
techniques

Activities
01 Consultations with regional and local
representatives
Choose sites for wells
Determine techniques
Invitation to tender
Contract firm
02 Develop curriculum
Develop training material
Train trainers
Select participants
Conduct training courses
Evaluate results of training
03 Assess hygienic practices to create baseline
Organize local workshops
Hire trainers
Recruit local representatives
Conduct workshops
Evaluate hygienic practices after training
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4.3. Making annual work plans

Based on the operational plan annual work plans should be elaborated
specifying in greater detail the timing of technical execution and related finan-
cial expenditure.A calendar of activities and a budget related to planned activi-
ties and expected results should be established. For the first year the plan must
be detailed and specific.Towards the end of the first year a more specific work
plan for the following year will be elaborated and so on.
For a specific year in the work plan the following will be defined:

• expected results to be achieved based on the project document

• activities to be performed
• tasks to be undertaken
• costs, i.e. a budget specifying funds needed to carry out the annual work plan.

The work plan forms the basis for the technical monitoring.

4.4. Breaking down the project budget

The project budget included in the project document indicates the finan-
cial resources needed for the entire project period.The costing of the project is
calculated on the basis of tasks, activities and expected results.This budget now
needs to be broken down by year or shorter periods to show what resources 9
will be needed to accomplish the work plan.
The annual work plan outlining the technical execution should be accom-
panied by a break down of expected costs related to tasks, activities and the
expected results.

A simplified project budget may look like this:

YEAR 1 YEAR 2 YEAR 3 TOTAL BUDGET

Result 01

Activity 1

Task 1

Task 2

Activity 2

Cost per year

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The project manager will need a budget with a considerable level of detail.
Superiors and financing partners, however, will be better served with budgets
where items have been aggregated up to the activities level or even to results
level.This way they get a better overview.
The budget constitutes the basis for the financial monitoring.

4.5. Preparing a monitoring plan

10 Once the work plan is elaborated, a monitoring plan should be prepared. It

should address the expected results level, i.e. when, whether or to what extent
expected results are being achieved.
At the task and the activity levels, performance will be checked against the
calendar of activities and the budget. No other indicators are needed.This is a
straightforward and relatively uncomplicated exercise and will not be dealt
with further here.
A monitoring plan is used to plan, manage and document the data collec-
tion process. It ensures that comparable data will be collected on a regular and
timely basis. It identifies the indicators to be tracked, specifies the source,
method and schedule of data collection and assigns responsibilities.The plan
will help keeping the monitoring system on track and ensure that data are
reported regularly to project management.
The elaboration of such plan should preferably be undertaken with partici-
pation of all the stakeholders of the project, specially a representative of the
beneficiary party, as well as the financing partner.A multiparty project steering
or technical committee, with representatives of all stakeholders, is usually a
good participatory mechanism to monitor progress. It allows for a shared view
on planning and on monitoring indicators. It also offers opportunity for
exchange of views among all involved on obstacles and potential solutions.
The following elements should be included in the monitoring plan:
Plans for data collection:

• Performance indicators and their definitions

• Baseline data
• Performance targets
• Data Source
• Method of data collection
• Frequency and Schedule of data collection
• Responsibilities for acquiring data

Plans for data analysis, reporting and use of information:

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• Data analysis plans

• Identifying needs for complementary evaluation
• Plans for communication and using monitoring information

Each one of these elements is explained below and some advice offered.

4.5.1. Performance indicators and their definitions

For monitoring purposes, indicators need only to be defined for the
expected results level. In the work plan some preliminary indicators may
have been identified. In that case, they should be revised and, if necessary,
complemented.
Example:

PROJECT PURPOSE EXPECTED RESULT INDICATORS

Management of health 1.Patients´ waiting period Waiting time

services improved reduced by 30% measurement

2.Medical staff receives 10% Number of

more patients per day patients

3.User satisfaction level Patients 11

remains the same opinions

Good indicators start with a clear statement of objectives or expected

results. Each indicator needs a detailed definition specifying quantity, quality
and time.When selecting indicators the most important characteristics are
the following:

• Validity – that the indicator actually measures what is purported to

measure,
• Reliability – that repeated measurements will give the same results,
• Sensibility – that the indicator will be responsive to changes, and
• Specificity – that the indicator measures only those changes related to
the project intervention in question.

4.5.2. Baseline data

It is hardly possible to establish targets or measure progress without
knowing what the situation is like at the commencement of a project.That
is why baseline data have to be established before the project starts.They
should reflect, as near as possible, the value of each indicator at the outset
of a project and they will be the value against which changes will be meas-
ured throughout the project period.
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Example:
In a project aimed at increased wheat production of small farmers establishing
the baseline is easy, at least in theory:The level of production of wheat at the
outset of a project specifying the quality of wheat.
In cases where expected results are of a more qualitative nature, e.g. “increased
awareness of hygienic practices related to use of water”, it takes a bit more
imagination to establish the baseline.
12

4.5.3. Performance targets

Targets represent the exact level and timing of expected results to be
achieved by a project.Whereas the indicator defines how performance will
be measured along a scale or dimension, the target identifies the specific
planned level of result to be achieved within an explicit time frame.

Example:
If the expected result is “patients' waiting period reduced by 30% in a two year
period”, interim targets may be set as follows:
“10% reduction of average waiting time by July Year 1; further 10% reduction by
January Year 2 and finally an additional 10% reduction by July Year 2.”

A final target is the planned value of an indicator by the end of the proj-
ect or the planning period. If this time frame is very long, it is advisable to
set interim targets or, as they are often called, milestones.

Example:
Expected result: “Access to clean drinking water to 80% of the rural population
in the province of Santa Clara”.
When the project starts only 50% of the population has access to clean water
(baseline value).The project is planned for a seven-year period.The final target
is 80% to be achieved by the end of 7 years. In this case it may be wise to
establish intermediate targets, e.g. 60% after two years, 70% after four years
and 80% after seven years.

It is a good idea to use a cumulative curve to illustrate the intermediate

targets and the final target.This will be a good basis for comparison with
actual achievements.
Monitoring of Project Implem.3 11/3/00 10:40 AM Page 13

4.5.4. Means of verification and data source

The means of verification make it possible to verify the status of the
indicators.They should be defined in the LFA-matrix of the project docu-
ment. If this has not been done or if new indicators have been selected,
project management has to establish means of verification.
The data source is where the data to verify the status of the indicator
are to be found. It can be an institution that conducts the data collection or
a system for data collection set up by the project. It is important that the
same source can be used routinely, as switching data sources for the same
indicator over time can lead to inconsistencies and misinterpretations. For
example switching from estimates of infant mortality rates based on nation-
al sample surveys to estimates based on hospital registration statistics can
lead to false impressions of change.
Two examples:

EXPECTED MEANS OF
RESULTS INDICATORS VERIFICATION DATA SOURCE

Reduced mortality of U5MR Mortality statistics Bureau of National

pre-school children by Statistics
20% in three years

Management of health Patients’ waiting time Waiting time Statistics of 10 select-

13
services more respon- reduced. monitoring sheet ed health centers on
sive to client demands More patients number of patients
received. and waiting time.

Satisfaction levels Exit questionnaires to

Client satisfaction clients
increased.

4.5.5. Method of data collection

The method or approach to data collection for each indicator should be
specified. It should be noted whether it is primary data collection or is
based on secondary data.
For primary data collection, consider

• The unit of analysis

• Data segregation needs (by gender, age, ethnic group, location)
• Sampling techniques
• Techniques or instruments for acquiring data.
Monitoring of Project Implem.3 11/3/00 10:40 AM Page 14

For indicators based on secondary data, give the method of calculating the
specific indicator data point and the sources of data. Provide sufficient detail
on the data collection or calculation method to enable it to be replicated.

4.5.6. Frequency and schedule of data collection

Monitoring systems must gather comparable data periodically to meas-
ure progress. How often should data be collected? There is no general
answer. Depending on the indicator, it may make sense to collect data on a
14 quarterly, annual or less frequent basis. For example, because changes are
slow, fertility data may be collected every few years whereas data on contra-
ceptive distribution and sales may be gathered quarterly.
When planning the frequency and the scheduling for data collection,
important factors to consider are the management’ s needs for timely deci-
sion making and the decision points in the project cycle.

4.5.7. Responsibilities for acquiring data

In terms of each indicator, the responsibility for the timely acquisition
of data from their source should be clearly assigned to a particular individ-
ual, team or office.The mode of registration of data should be determined.

4.5.8. Data analysis plan

To the extent possible, it is advisable to plan in advance not only for the
collection of data, but also for data analysis, reporting, review and use, to
identify data analysis techniques and data presentation formats to be used.

4.5.9. Identifying needs for complementary evaluations

Evaluations of ongoing projects should be undertaken only when moni-
toring results show that there are serious problems or obstacles that make
it less probable that the project purpose be achieved. For example, if rea-
sons for not meeting targets are not clearly understood, planning evalua-
tions to investigate and analyze the project makes sense.

4.5.10. Plans for communicating and using monitoring information

Planning how monitoring information will be used is critical for effec-
tive management.There are basically three ways of using the information:
1. Influencing management decisions
2. Writing progress/semiannual or annual reports directed to superiors,
national counterparts and financing partners.
3. Sharing the information with stakeholders for discussion and analysis.
Monitoring of Project Implem.3 11/3/00 10:40 AM Page 15

5. Analyzing results of monitoring

Analysis of monitoring results is basically a matter of comparing actual per-
formance with plans, and actual expenditure with budget and analyzing devia-
tions and discrepancies.This can be expressed in words, as well as in tables and
diagrams. Figures usually are easier and faster to interpret illustrating clearly the
comparison between plans and outcome.
Example:

TRAINING OF HEALTH WORKERS

No. planned Actual no. % Budgeted cost. Actual cost. %

trained US$ US$

180 162 90% 8,600 10,100 116%

In this case the technical execution, i.e. the number of health workers
trained, is only 90% of the expected, while the cost amounts to 16% more than
budgeted.There may be good reasons for this cost overrun that need to be
explained. Or there may be problems that motivate a change in the organiza-
tion of the training.
15
Discrepancies and shortfalls may be due to problems or conditions within
the project, such as the project organization, administrative systems, change of
project directors or shortage of staff.
But there is also the possibility that disappointing results, delays or cost
overruns are due to situations or changes in the project environment, such as
political disturbances, natural disasters, new legislation or increasing inflation.
The latter factors are related to the assumptions and assessment of risks that
should be considered at the project design stage.

6. Suggesting correcting measures

Depending on the results of the analysis the project manager may want to
propose corrective measures, improve the project design or adjust resource
allocation.The operational frame or the assigning of responsibilities may need
adjustment. Monitoring results will help justify such measures.

7. Editing progress reports/annual reports

Monitoring results should be incorporated into periodic reports and taken into
account when new work plans are drawn up.The reports should always relate to
the project document and to the LFA matrix presented in that document.
Monitoring of Project Implem.3 11/3/00 10:40 AM Page 16

There are two main issues that should be addressed in the reports:

• Technical execution – as related to the annual plan. Focus should be on the

Expected Results level more than on the Activity and Task levels.
• Financial execution – as related to budget and specifically to expected cost
for producing Expected Results and to carrying out Activities.

The reporting on the two issues must be synchronized comparing the

16 degree of technical execution with the utilization of funds. It is the responsibili-
ty of the project manager to ensure that this match exists.
The monitoring of the technical execution provides the Project Manager with
elements for the technical reporting, while the financial system in PAHO (Budget
and Finance Division) supplies him or her with the financial information.
The reporting requirements of external financing partners are defined in the
respective agreements between PAHO and the contracting partner. Requirements
vary to some extent in terms of frequency, content and level of detail.
It is important that reports are well structured, concise and to the point.
The aim should be to give an overview of project progress, of the extent to
which expected results have been achieved, of problems encountered in proj-
ect execution and in the project environment, and of perspectives for the next
reporting period. It is wise to avoid getting involved in great detail.
The structure of the reports should remain the same throughout the life of
the project and the level and categories of reporting should be maintained in
order to facilitate comparison.

8. Concluding remarks
8.1. A participatory approach
Experience shows that people centered approaches to design, monitoring
and evaluation enhance ownership and promote the sustainability of interven-
tions. Participatory approaches will lead to greater involvement, better and
more lasting results, and shared commitment and responsibilities.
As convenient and pertinent, counterparts, staff and the representatives for
the target group should therefore be involved in planning and conducting mon-
itoring activities, interpreting data, analyzing results and discussing the reasons
for results being achieved or not achieved. Besides the instant advantages of
such an approach, it also has the benefit of building national capacity in the
area of monitoring.
Monitoring of Project Implem.3 11/3/00 10:40 AM Page 17

8.2. Results Oriented Management

Monitoring for project progress is an integral part of project management. It
is a useful tool that does not make project management more difficult or more
complicated. On the contrary, it pays in the long run to establish an effective
system of monitoring. It is a way of managing projects better and smarter.
Monitoring will save time and effort for the project manager and make proj-
ect follow-up and reporting more effective.
Monitoring is a way of knowing and understanding what is going on in the
project and of being in control.The results serve as the basis for decisions with
regard to the need for reprogramming and/or reassigning human and financial
resources. It will provide relevant and timely information to top management
on the progress and any difficulties encountered in the project.
Monitoring is to be focused on the Expected Results level of the LFA hier-
archy, a level that is under management control.The project document, and
more particularly the annual work plans, constitutes the basis for monitoring
project progress.
Monitoring means comparing actual performance with plans. It includes
two distinct but interrelated types of follow-up: technical execution of the proj-
ect and financial expenditure related to the project.The two aspects of moni-
toring and reporting should be performed in a synchronized manner.
Monitoring results are valuable inputs in future evaluations of the project. 17
Effective monitoring will enhance the quality of project management.This is a
logical step in the institutional development of the organization and will make
PAHO more accountable and attractive as a partner of external financing agencies.
Monitoring of Project Implem.3 11/3/00 10:40 AM Page 18

ANNEXES
Monitoring of Project Implem.3 11/3/00 10:40 AM Page 19

Annex I
CONDENSED GUIDE FOR PAHO MONITORING PROCEDURE

1. PREPARING THE MONITORING PLAN

1.1. Review project agreement
Internalize all aspects related to project execution and reporting that
appear in the project agreement signed with the donor.What are the commit-
ments? Which procurement procedures? How often will transfers of funds be
made? Which implementation structure needs to be in place? How often are
reports due? How will donor be involved or not during the life of the project?

1.2. Review LFA matrix for project.

What are the “expected results” to be achieved?

1.3. Review work plan for current year.

What activities are to take place during the year?
What is the expected expenditure (budget) for the year?
What should be achieved by the end of the year?
19
1.4. Review/develop indicators for tracking progress at the “expected
results” level
Which are the indicators whereby progress can be tracked?
Which targets have been set (expected results level):
• To be achieved by the end of the project?
• To be achieved by the end of the year (intermediate targets or milestones)?

Expected End of project Target Year 1 Result Year 1 % of year

results target target

01

02

03
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1.5. What are the means of verification of the selected indicators?

1.6. What data sources should be used?

1.7. Who is responsible for the data collection?

2. DATA COLLECTION IN ACCORDANCE WITH

20 MONITORING PLAN

3. ANALYSIS OF MONITORING RESULTS

3.1. Rate of technical execution?

3.2. Rate of financial execution?

3.3. Consolidating and comparing technical and financial execution

TRAINING OF HEALTH WORKERS

No. planned Actual no. % Budgeted cost. Actual cost. %

trained US$ US$

180 162 90% 8,600 10,100 116%

3.4. Technical execution: Deviations and discrepancies from planned

results?

• At the level of “expected results”

• At the level of activities

3.5. Technical execution: Analysis of deviations and shortfalls

• Problems within the project (project design, organization, counterparts,

staffing etc)?
Monitoring of Project Implem.3 11/3/00 10:40 AM Page 21

• Problems in the project environment – outside the control of project man-

agement?
• Any unexpected results – positive or negative?

3.6. Financial execution: Deviations from budget

• At the level of expected results

• At the level of activities

Budget Actual Expenditure as

Year 1 expenditure % of budget

Expected
result 01: 100 90 90

Activity 1 25 25 100

Activity 2 40 36 90

Activity 3 35 29 83 21

3.7. Financial execution: Analysis of over-spending or under-spending

4. PROPOSED ACTION

• Immediate action?
• Adjustments in work plan of the following year
• Adjustments in budget for the following year

5. CONCLUSIONS AND LESSONS LEARNED

Monitoring of Project Implem.3 11/3/00 10:40 AM Page 22

ANNEX II
FORMAT FOR ANNUAL PROGRESS REPORT

The report should preferably be limited to 10 pages, and should in no case

exceed 15 pages. If more information is deemed pertinent and necessary it
should be presented in annexes to the report.

22
1. EXECUTIVE SUMMARY
Principal project achievements, problems, summary, financial execution and
future proposals
(one page).

2. INTRODUCTION-CONTEXT
Brief history of the project. Political, social and economic context in which
the project is carried out.
This section should not exceed one page unless there were changes affecting
the development of the project (such as elections, natural disasters, and war).

3. PERTINENT NATIONAL POLICIES AND THEIR IMPACT ON

THE PROJECT
RELATIONS TO NATIONAL AND LOCAL COUNTERPARTS
Maximum one page.

4. PROJECT PROGRESS
This section must be based on the LFA matrix. Explanatory notes should
not exceed three pages.

4.1 Describe to what extent the expected results have been achieved using the
data emerging from the project monitoring. Refer to good indicators.
Explain and comment delays, deviations and differences of actual perform-
ance as compared to plans. Indicate and discuss problems, deficiencies,
errors etc and propose corrective action.

4.2 Indicate to what extent expected results are actually contributing to the
project purpose. Comment on whether or to what extent the project envi-
ronment – what is outside the control of the project – has affected the proj-
ect positively or negatively.Are there any unexpected results, positive or
negative?
Monitoring of Project Implem.3 11/3/00 10:40 AM Page 23

4.3 Assess progress from the point of view of project management, e.g. com-
ment on project organization, operational framework, administrative sys-
tems, adequacy of staffing – both in PAHO and the counterpart institution.

5. FINANCIAL EXECUTION ANALYSIS

This section should not exceed two pages.

5.1 Analyze expenditure as percentage of budget by activity corresponding to

the work plan. If requested by donor, also include PAHO’s budget compo-
nents. In case of multi-country projects, include tables for each country, as
well as a consolidated table.

5.2 Utilizing the ABF/ABU official report prepared by the Budget and Report
Section of PAHO, show the rate of technical and financial execution by con-
solidating technical and financial data. Explain and comment on any devia-
tion. Suggest corrective measures, as necessary.This is not an auditing exer-
cise, but rather a review of project progress in relation to the utilization of
funds.The purpose is to determine whether it is necessary to reassign allot-
ments or adjust calendar of activities.

5.3 Introduce a financial chart showing

a) PAHO’s contribution, including resources from external financing partners
b) National counterpart contribution
23

5.4 All the data mentioned should be presented for the year for which the
report is made, and accumulated during life of the project and also be relat-
ed to the original project document and budget.

6. FUTURE PROGRAMMING
Propose the work plan for the following year. In the case of multi-country
projects, include one for each country.
Comments are necessary only if new activities are introduced or if changes
are proposed in terms of activities or the budget contained in the original proj-
ect document.

7. ADDITIONAL COMMENTS
Further comments should be included only if there are relevant or impor-
tant issues that have not already been covered in the report.
Monitoring of Project Implem.3 11/3/00 10:40 AM Page 24

LIST OF ABBREVIATIONS

ABF/ABU Office of Budget and Reports

AMPES Technical Cooperation Planning, Programming and
Evaluation System
BPB Biennial Program Budget
DEC Office of External Relations
24
GPW General Program of Work
LFA Logical Framework Approach
PAHO Pan American Health Organization
PRG Project Review Group
PRP Project Review Process
SPO Strategic and Programmatic Orientations
SPW Semiannual Program of Work
U5MR Under 5 Mortality Rate
Monitoring Cover Final.qxd 11/3/00 10:42 AM Page 1

MONITORING of
PROJECT IMPLEMENTATION
a manual

o 10 20 30 40 50 60 70 80 90 100

Office of External Relations

Pan American Health Organization

Pan American Sanitary Bureau, Regional Office of the
World Health Organization
525 Twenty-third Street, N.W. 20037, U.S.A.

February 1999 Pan American Health Organization