Achieving the Programmatic Organization

Brief No. 1

What is a Program Approach?

W e have always known intuitively that short-term projects are an ineffective medium for achieving
sustainable impacts on underlying causes of poverty and social injustice. The findings from the
Women’s Empowerment Strategic Impact Inquiry (SII) attest to this and, consequently, there has been
wide endorsement of the shift to a longer-term program approach from across CARE International. This
shift encapsulates the program quality actions of the CARE USA strategic plan and it is aligned with the
direction to improve knowledge management in the CI strategic plan. The commitment displayed
throughout the discussions in the Istanbul workshop of April 2008 makes this a watershed event in
advancing CARE globally toward a program approach. We already have sufficient evidence from the
Latin America and Caribbean (LAC) Region to show how a program approach can increase relevance,
quality and impact of CARE’s work, and now eight additional Learning Laboratories will test further the
shift to programs in the next two years.

Participants at the Istanbul workshop agreed on a consolidated definition of a “program” and a set of
eight characteristics of a program approach. This is an important starting point for realizing a broad,
common understanding across the organization of what a program approach entails. The definition and
characteristics will be followed up with further guidance emerging from the experiences of the Learning
Laboratories as they make the shift.

Definition of Program

A program is a coherent set of initiatives by CARE and our allies that involves a long-
term commitment to specific marginalized and vulnerable groups to achieve lasting
impact at broad scale on underlying causes of poverty and social injustice. This goes
beyond the scope of projects to achieve positive changes in human conditions, in social
positions and in the enabling environment.

What this definition also connotes is that a program’s boundaries are not defined by geography or a
Country Office, as we have often tended to think based on a project orientation. A “program” revolves
around a specific poverty-affected population group. So, a departmental unit, regional unit, CO unit, CI
member, sector or even the global organization may have a program if it has defined its population
group based on an underlying cause analysis. C-USA’s signature programs are an example of a
“program” held by a CI Member with a scope spanning several countries.

The Learning Laboratories will include programs designed by a Country Office, C-USA (signature
programs), a departmental unit (the Water Sector of C-USA) and a region (LAC). Most of the Learning
Labs however, are Country Office experiments which will have 3-5 programs aimed at specific
population groups situated within their countries.

Characteristics of a Program Approach

CARE believes that in order to achieve significant and lasting impact on poverty and social injustice,
especially for women and girls, all of our programs should include the following eight characteristics:
 Achieving the Programmatic CARE

No. Characteristics of a Program Approach

A clearly defined goal for impact on the lives of a specific group, realized at broad scale.
1 • The program must define what “broad scale” means, but, in general, we mean at
least at national scale or for a whole marginalized population group.
• Impact should occur across three areas of unifying framework (human conditions,
social position, enabling environment).
• Impact should be seen and evaluated over an extended period of time.

A thorough analysis of underlying causes of poverty, gender inequality and social injustice
2 at multiple levels with multiple stakeholders.
• “Multiple levels” means community through global.
• Analysis includes scenarios based on potential risk (including disaster risks).
• Analysis identifies and prioritizes the causes that MUST be addressed in order to
achieve the goal.
• This analysis is updated regularly to incorporate changes in context.

An explicit theory of change that is rigorously tested and adapted to reflect ongoing
3 learning.
• A theory of change outlines the key assumptions and hypotheses that underpin the
program design.
• The theory should be robust enough to be applicable in various scenarios of risk.

A coherent set of initiatives that enable CARE and our allies to contribute significantly
4 to the transformation articulated in the theory of change.
• At a minimum these initiatives will challenge power relations, achieve systemic
changes in institutions, work at multiple levels, contribute to policy change.

Ability to promote organizational and social learning, to generate knowledge and

5 evidence of impact.
• Evidence and knowledge will be used for advocacy, risk analysis and mitigation,
adapting the theory of change and leveraging resources.

Contribution to broad movements for social change through our work with and
6 strengthening of partners, networks and alliances.
• This means clearly understanding and strengthening our organizational credibility,
legitimacy, identity and positioning.

A strategy to leverage and influence the use and allocation of financial and other
7 resources within society for maximizing change at a broader scale.
• This requires protecting and developing our knowledge and talent base,
demonstrating impact and cost-effectiveness of strategies, and building new types of
donor relationships.
Accountability systems to internal and external stakeholders that are transparent.
8 • To the marginalized groups whose rights we seek to see fulfilled.
• To allies and partners, including donors and governments.
• All staff are accountable for their contribution to the program.
• Stakeholders have the information they need.

The production of these characteristics underwent multiple rounds of vetting and dialogue. Hence,
strong arguments have been made for the choice of language, what was included and what was not
included in each characteristic. Further, the discussion was guided by the question, “What is different
about a program approach from the way CARE has been conventionally implementing projects?” To
ensure consistent interpretation, the characteristics will be accompanied by a definition of terms and set

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of explanatory notes for wider distribution. A communication strategy will be elaborated to enable both
internal and external audiences to understand the characteristics and their importance for the shift
CARE is making.

The Learning Laboratories will be the testing ground for the eight characteristics, bringing greater rigor
and insight to what the shift to programs entails.

As a further aid to understanding the program approach, it is also helpful to think about what it is not.

What is not a program approach?

A basket of projects that are not directly interconnected; geography
alone does not qualify as a programmatic connection

A long-term project

Changes at outcome level (and human condition level) only

Implementation that only targets a limited number of people and

remains at the local level

Activities that bring about only short-term change, and do not address
systemic and structural issues

Activities that are not rights-based

An organizational structure built only to support projects

Relationships with partners and other actors that are contractually-

driven, even though they are referred to as “partnerships”

Changes Required by a Program Approach

Shifting to a programmatic approach, as explained above, signifies changing our practices in all
business units across the whole organization. Our signature programs, regional programs, sector
programs and CI member programs all need to include a programmatic approach and logic. Let’s take
a closer look at the defining characteristics and how they differ from most current practice.

Changes from the current

Requirements of a Program Approach
approach

1. A clearly defined goal for impact on the lives of a specific group,

realized at broad scale.
Small to Large: The shift implies
Program impact goals will need to be developed within a broad vision of
an actor-centered approach versus
how we will achieve relevance in specific contexts, including how we will
a “problem focused” approach,
operate, and the kinds of changes envisaged in the lives of people. Each
requiring, among other changes,
program impact goal will need to delineate a specific constituency
new forms of accountability to
population, for instance not just “women and girls” but the kinds of
constituents.
“marginalized and excluded” groups within this broad category, and the
nature of the impact changes that will be sought.

2. A thorough analysis of underlying causes of poverty and social injustice Modest to Large: More detailed
at multiple levels with multiple stakeholders. analytical work is required than is
For a coherent program strategy to be developed, it requires a deep often undertaken at present, with
understanding of the barriers preventing sustainable change in the lives of the inclusion of multiple
the key constituent groups. stakeholder perspectives.

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Changes from the current

Requirements of a Program Approach
approach

3. An explicit theory of change that is rigorously tested and adapted to

reflect ongoing learning. Large: Less than 15 percent of
A program strategy must be based on a “theory of change” that sets out projects have explicit hypotheses,
the envisaged pathway to achieve the impact goal in the lives of the fewer test the hypotheses and the
constituent population. This theory will contain a number of hypotheses change pathways they envisage to
that will require regular testing and adjustment over time, through a foster the long-term learning
reflective learning system. Evolution of the program strategy will be needed to deliver on the strategy.
guided by this reflection.

4. A coherent set of initiatives that enable CARE and our allies to Large: Typically projects act in
contribute significantly to the transformation articulated in the theory of isolation of one another, even
change. when having overlapping
This set of initiatives will include advocacy and implementation activities geography. Building this coherence
that operate at multiple levels, some being project based and some not. requires program staff to
While CARE may be involved in a few direct implementation activities in understand their role and identity
order to develop operating models, CARE will mostly act as a facilitator and is wider than a single initiative or
networking organization, ensuring the linkage between all initiatives in the project.
program.

5. Ability to promote organizational and social learning, to generate Large: Limited reflective learning
knowledge and evidence of impact. has taken place in most projects.
There are two requirements here. First, a reflective learning system The project cycle tends to limit us
whereby the explicit and implicit knowledge being generated is reflected to making improvements within an
upon and used to question the assumptions and principles underlying the existing set of rules and routines.
design.
And second, identification of a core set of output and impact indicators, Large: Neither CARE nor other
compatible with the global system being established, and a knowledge organizations yet have meaningful,
generation and management strategy for producing and understanding common indicators of quality,
relevant information, so that a story can be developed of the kinds of output and impact that are broadly
impacts we are contributing to over a 10-15 year period. utilized.

6. Contribution to broad movements of social change through our work

with and strengthening of partners, networks and alliances. Modest to Large: We do not yet
We will need to work with others in ways where we are not necessarily work well with social movements.
defining the agenda and their roles. Programs will also require an advocacy The advocacy work necessary in a
strategy that emerges from the program’s position within a broader program approach will also expand
movement of social change. An advocacy agenda may be aimed at causes the scale, scope and investment
that originate outside the geographic location of the constituency required.
population, thus requiring advocates working in various locations.

7. A strategy to leverage and influence the use and allocation of financial

and other resources within society for maximizing change at a broader
scale. Modest to Large: Changes will
Shifting to a program approach will enhance both the quality and resource- be required in our approaches to
generation potential of projects, and will attract donors who wish to fundraising and this will alter the
support longer-term efforts (particularly philanthropic foundations and nature of some donor relations.
private individuals). We expect major growth in CARE’s size and influence
in the development sector.

8. Accountability systems to internal and external stakeholders.

Modest to Large: as we seek to
We will require greater 360° accountability to all stakeholders, especially
develop greater levels of 360 o
the constituent population whose lives we are seeking to impact. Donor
accountability.
accountability will remain important, with donors receiving information on
how their contribution is leveraging broader change and impact.

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Developing and Operationalizing a Long-Term Program

The following diagram illustrates the kind of steps inherent in developing a program. While not the sole
pathway to accomplishing the task, it should help us all understand the shift so that everyone, not just
those directly involved in the program, will be able to value the investment of time and attention
required in the midst of competing priorities. This extends to partners, donors and other allies and
stakeholders.

Fig. 1 Developing a set of long-term programs

1 Build awareness and buy in 2

(Extend communication Identify target group (analyze
strategy once programs in the underlying causes of
place) poverty and social injustice)

8 3
Conduct organizational audit Create a theory of change
(resources capacity, and a program strategy
structure, policies, attitude
and culture)

4
Clearly define program
7 impact statements (mid- and
Develop program quality, long-term goals, and impact
impact measurement and measurement indicators)
knowledge systems

5
Develop operational
6 Validate framework and framework (for field
triangulate analysis with all implementation and any
stakeholders changes in how we work)

The organizational implications of the programmatic shift at any level, CO and beyond, are by no
means modest, effecting both organizational culture and operating systems. The extensive discussions
in Istanbul prioritized five critical areas of change:

1. Organizational alignment strategy:

o Reorient and align organizational structure, policies, work planning, systems and internal
relationships.
o Achieve coherence and coordination between program and program support.
o In HR, develop appropriate strategies for talent retention and a clear set of competencies.
o In Finance, review the levels and use of unrestricted funds, as well as our forms of financial
analysis.
o The transition phase itself will have to be managed differently and for this, the Learning Labs
are designed to inform the organization.
2. Resourcing strategy:
o Seek new ways of mobilizing resources, especially from philanthropy and the private sector,
using the program framework for leveraging purposes, even if the project remains the “unit of
sale” for many donors.
o Increasing flexibility and investment in resource management and social entrepreneurship;
reviewing as part of our business policies and practices.

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3. Changing relationships and forms of accountability:

o Need to work with a range of stakeholders differently and improve 360o accountability to
program constituents, partners and donors.
o Careful attention and rapid improvement in “the basics” of project management, reporting and
accounting, where possible as part of moving to a program approach.
o Our allies and partners need to be co-creators of the program, engaging significantly and
consistently through all phases of a program management cycle.
o Clarify specific roles and responsibilities of senior management, CI members, regional quality
teams and other relevant actors.
4. Communication strategy:
o External communications to all stakeholders will need to be much more aligned to the
knowledge and impact that is being generated through the CO programs.
o Messages to external audiences need to be kept simple without compromising on quality and
meaning of content.
o Internally, concerted efforts need to be made to facilitate staff understanding of the
programmatic shift and what it means for their work.
o Different levels and units of the organization will need to communicate and work together in
ways they have not done before.
5. Knowledge management and learning:
o Knowledge management systems created around programs will need to aggregate or link up.
o Create a global knowledge sharing and learning strategy around the eight characteristics of a
program approach (or some subset) and around the signature programs.
o New learning processes will need to be introduced at different levels.

Program and Project Cycle Management

The major implications of the program approach are that project cycle management will need to take
place within a programmatic framework. This will lead to major changes in project design, as
eventually all projects should be designed within the framework of a long-term program and its theory
of change. Program life-cycles will be inherently different from project life-cycles and a country,
region, and/or CARE member office will establish the timeframe through its long-range strategic
planning process. Since program contexts and knowledge about the effectiveness of program
initiatives will change over time, so programs themselves will have to evolve or phase out. However, it
would be a sign of poor program quality management to stop and start programs on a regular basis.

New guidelines for quality program and project cycle management will be developed based on the
characteristics of a program approach (above) and the evolving experience of the Learning
Laboratories over the next two years. Preliminary discussions on program cycle management in
Istanbul will be further developed into guidelines that will pertain to all levels – country, regional and
CARE member offices – at which programs are managed.

May 2008 Prepared by PIKL Alliance, CARE USA

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