Project Management Framework

There is no denying the fact that the concept of Logical Framework approach was developed by Practical Concepts Inc. (USA). The concept presupposes selection of the most potentially cost effective alternative instruments for attaining the desired and beneficial result. This approach accepts the uncertainty of the development hypotheses.The Logical Framework approach is a set of interlocking concepts, which must be used together in a dynamic fashion to develop a well - designed, objectively described, and evaluated project. Uncertainty within the project is made explicit. Result of the process of using the Logical Framework concepts can be displayed in a 4 x 4 Matrix, providing a one-page, concise summary of major project elements and their relationships to each other.

The contents of each column are arranged in a logical sequence that corresponds to the logical hierarchy of project objectives. The content of each row relates directly to the objectives in that row.

The Logical Framework has been used widely by USAID Mission to:

(1) Aid in Planning a Project;

(2) Provide measures to evaluate a project and

(3) State assumptions about causal linkage.

This approach was developed to avoid adverse relationships in both project formulations and evaluation by:

1)      Fostering a clearly stated, explicit and measurable description of what will happen if the project is successful;

2)      Clarifying what a project manager should be responsible for accomplishing and why;

3)      Displaying key elements of project design and their relationships to each other in a way that facilities project analysis;

4)      Changing the focus of evaluation from "who is to blame?" to "what is the most realistic plan for this project for the future based on the best up-to-date evidence available now?" 

The Logical Framework (sometimes called the 'Project Planning Matrix" or just log-frame) is a basic tool for project designing, monitoring and evaluation. It provides a one-page summary that explains:

WHY: A project is carried out

WHAT: The project is expected to achieve

HOW: The project is going to achieve results

WHICH: External factors are crucial for project success

HOW: Success of the project can be assessed

WHEN: Specific activities are expected to be completed

WHERE: Data to determine how the success of the project can be found

WHAT: The project will cost.

2. THE DESIGN OF THE LOGICAL FRAMEWORK:

The framework displays a set of interlocking concepts that clarify why a project is being undertaken and specifically what we will do to achieve the desired result.

It is convenient to think of the Logical Framework in terms of two types of thought process: (1) A vertical logic that clarifies why a project is undertaken (project design) and

(2) A horizontal logic that clarifies what is to be produced and the evidence that will signal success (evaluation).

3. "GPOI:" THE VERTICAL LOGIC OF THE LOGICAL FRAMEWORK:

1.	Goal	=	The higher level objective towards which the project is expected to contribute.
2.	Purpose	=	(Immediate objective) the effect which is expected to be achieved as the result of the project.
3.	Outputs	=	The result that the project management should be able to guarantee.
4.	Inputs	=	The activities that have to be undertaken by the project in order to produce the outputs. / Or
			Inputs/activities are the detailed work tasks to be executed for accomplishing the results/outputs.

"GPOI" is an acronym for: GOAL-PURPOSE-OUTPUTS-INPUTS, and it characterizes a project as a set of linked hypotheses of the from:

"If we provide the following inputs, then we can produce the requisite outputs;

"If we produce those outputs, then the purpose will be achieved;

"If the purpose is achieved, then the goal will be realized."

Recognizing that the full set of necessary and sufficient conditions must be indicated at each level, and that many things important to project success may be outside the agency's control or influence, GPOI also requires that the project manager identify the key assumptions he must make to postulate success of his project. That is, he must explicitly identify the factors beyond his influence that will affect success of his project. The important point is to focus attention on factors that are vital to the success of the project but outside the project manager's control. Having cauterized the project as a set of linked hypotheses, it is important to note that there is a qualitative difference between input to output linkage and all higher linkages.

4.  THE HORIZONTAL LOGIC:

Having clarified the basic design of a project in terms of inputs, outputs, purpose and goal - why the effort is being undertaken - the Logical Framework demands that the project team note the evidence required to demonstrate accomplishment. We use the term "horizontal logic" because experience shows that spelling out the evidence required demonstrating a given event often clarifies the nature of the event itself.

Specifically, the horizontal logic demands that at each of the GPOI levels the project team specifics:

a)      Objectively verifiable indicators Demonstrate that the desired result has been realized;

b)      Means of verification - Specific mechanisms through which accomplishment will be objectively verified.

c)      Important assumptions - Are necessary condition not under project manager's control or influence.

5. HIERARCHY AND LEVELS OF PROJECT OBJECTIVES:

The Logical Framework breaks a project down into four separate and distinct levels of objectives.

Input and Output:

At the lowest levels are the Project Inputs. These are the activities and resources managed by the project that will, in turn, produce the second levels of objectives that we call the outputs. These outputs are the things that are directly accomplished by management of the inputs. For example, in an education project, we can produce trained teachers, a constructed and equipped school building and trained administrators.

The purpose is what we expect to result from having achieved the outputs. The outputs are a set of interrelated objectives that, combined, are aimed at achieving the project purpose. Within the project itself we therefore, have three levels: Inputs, Outputs and Purpose.

The fourth level in the Logical Framework is a higher order objective called the Goal. The project is one of the necessary conditions for achieving this goal, but will not be sufficient by itself to achieve the goal.

The description of all these four levels of objectives representing hierarchy of project objectives "usually known as Narrative Summary (NS)". In order to achieve this goal, other projects also may have to be undertaken, such as one to motivate those with the required skills to work in the region in which their skills are needed.

6. LINKED HYPOTHESIS:

A hypothesis is defined as a predictive statement about a causal relationship that involves uncertainty. It is important to mention that the relationship between the levels of objectives is not random or accidental; there is a definite causal relationship. When we identify our purpose, we select these outputs because we believe they can cause the purpose to happen. Therefore, we are making a hypothesis that if outputs, then purpose.

A simple example of this is the prediction that if one boards his regular morning bus by 8 O'clock, then he will arrive at his office on time.

However, there is not 100 percent certainty that he will get to his office on time because many things could happen between boarding the bus and arriving at the office, such as the bus breaking down, or being involved in an accident.

When we design a project using the Logical Framework, we make a series.

These are:

	If	Then
1.	If the inputs are managed properly,	THEN the outputs will be produced.
2.	IF the outputs are produced,	THEN the purpose will be achieved
3.	IF the purpose is achieved	THEN this will contribute to achievement of the goal.

            This can be viewed graphically:

GOAL			IF PURPOSE
			THEN GOAL
PURPOSE
			IF OUTPUTS
			THEN PURPOSE
OUTPUTS
			IF INPUTS
			THEN OUTPUTS
INPUTS

The amount of uncertainty increases as we reach higher up the project hierarchy of objectives. It, is very important to clarify the nature of uncertainty so that we can select a design that has the highest probability to success. This is done by additionally including in our project, design statements describing factors necessary for achieving success but that are beyond our control.

For example, when one predicts that one will get to the office on time by boarding one's regular bus at 8 O'clock, one must also assume that the bus will be in good mechanical condition, and that there will be accidents.

Instead of saying

IF one gets the bus on time, THEN he will arrive at the office on time. We must say:

IF one gets the bus on time, (1) IF the bus doesn't break down,

                                             (2) IF there are no traffic delays,

THEN he will arrive at the office on time.

We have then described the nature of the uncertainty affecting our hypothesis, and have expressed it in the form of assumptions.

7 OBJECTIVELY VERIFIABLE INDICATORS:

Objectively Verifiable indicators (OVI) are the means for establishing what conditions will signal successful achievement of the project objectives. The statements of Goal, Purpose, Outputs, and Inputs, are frequently subjected to misunderstanding or open to different interpretation by those involved with the project. Goal and Purpose level statements, in particular, tend to be more ambiguous.

For example, an objective such as "improved living conditions for villagers" is liable to have very different meanings for different people. If we could visualize exactly how we will be able to recognize success at each project level, we would be able to sharpen our focus on the project objectives.

The Logical Framework, therefore, encourages the project designer to define clearly and explicitly what will indicate that the project can be considered a success. We call the indicators for all of the four levels OBJECTIVELY VERIFIABLE INDICATORS (OVIS). Included directly in the project design, it is the set of conditions that will signal successful achievement of the project purpose. This set of conditions we call END OF PROJECT STATUS (EOPS). The EOPS represents the indicators of success at the indicators of success at the purpose level of the Logical Framework. It is just at the purpose level that we have a special additional name for the indicators (EOPS): this is due to the importance of the purpose-it is the main thrust of the projects and the focus for programming and project dialogue.

Objectively Verifiable Indicators tell us how we will know when an objective has been achieved. These are statements that define the performance standard to be reached in order to achieve an objective in terms of

1.	Quantity	How much?
2.	Quality	How Well?
3.	Time	By when?
4.	Location	In what place?

They provide the basis for project monitoring & evaluation.

7.1 Characteristics of Good Indicators:

While identifying the good indicators project designers should be critical and cautious about the following characteristics of indicators:

i)         Indicators Measure what is Important:

The indicators must measure what is important in the objective. For example, in our statement of goal "Small farmer income increased".

It will be easier to measure farmer income, but we are interested in small farmer income; thus, our indicators must reflect our interest in small farmers. And we are talking about income - but do we mean income in general or do we mean real income? If the latter, we must specify that. So we measure the important aspects of our project.

ii)        Indicators Must be Plausible:

The indicators we select must be so closely related to what we are trying to measure that we are confident our project was an important factor in the observable results. For example, to state that the presence of farmers making large profits demonstrates that a functional credit system has been established is not plausible. Farmers making large profits could demonstrate a number of other factors at work-successful crop production, unusually high demand and short supply of a specific crop. To demonstrate that we have a functioning credit system, we must look for indicators more closely related to what it means to have a functioning credit system-i.e. numbers of loans actually issued to small farmers; effective default rates; speed and efficiency with which loans are processed and administered, etc.

iii)              Indicators Must Be Targeted:

Indicators must be targeted in terms of quantity, quality and time (QQT). If any of these three is missing we cannot be entirely objective about whether we have been successful or not. There is a simple, step-by-step process for targeting an indicator, which is described below using one of the indicators selected to signal successful achievement of the purpose.

Step One	Identify Indicator	“Adarsha Gram” established and functional
Step Two	Quantity	In 650 “Adarsha Gram” and 4800 families settled and their income generated.
Step Three	Set Quality	In 650 “Adarsha Gram” and 4800 rootless families (having no land) settled and be provided with homesteads and skill training.
Step Four	Specify Time Frame	In 650 “Adarsha Gram” rootless families (having no land) settled and be provided with homesteads and skill training during 2005-2007.

iv)              INDEPENDENT INDICATORS

The indicators that demonstrate an achievement of an objective at one specific level cannot be used to demonstrate an achievement at the next higher level. Although this appears to be one of the simplest concepts of Logical Framework methodology, it is also one of the most common weaknesses in Logical Framework designs.

There is a common tendency to demonstrate achievement of a result by measuring the means used to achieve the result. It is a common error to use "school building constructed" and "teachers trained" (outputs) as indicators of the improved quality of education in the school (purpose). Or "health center constructed" medicines supplied" and the "medical staff hired" (outputs) as indicators of health care services provided by the health center (purpose).

Purpose level objectives are much harder to define. We need to think carefully about what indicators would truly demonstrate health care services provided; i.e., number, type and quality of actual health care provided to specified target audiences - such as number of children immunized, numbers of mothers that receive preventive health counseling, number of babies delivered successfully, etc.

v)                 Special Indicators

Good indicators are not always available. A good indicator is a direct measure of achievement. For example, increased crop productivity can be measured by the change in crop yield per hectare on fields in the area in which the project is operating. Evaluators can measure success of this project at termination. However, when the objective is a "viable industry established" it becomes much more difficult to measure project success at termination. The industry may have been developed in such a fashion that it will become viable three years after the project terminates.

In order to have some confidence of success at termination it is necessary to find out indicators that can be assessed now that will predict later performance. When predicting later performance, such as, in the example above, well call the indirect indicator a "leading indicator". Indirect indicators can also be used to measure results when direct indicators are too costly to verify.

8. MEANS OF VERIFICATION (MOV):

The Logical Framework Approach to clarifying objectives, we must ask the question "How will we be able to measure our indicator?" 

The Means of Verification (MOV) is the actual type and source of data, which will be used to verify an indicator. The usefulness of an indicator is limited by the availability of data. The indicators prove achievement of objectives-but, if we cannot find data about how much rice farmers have harvested, then we cannot prove that yields increased, and therefore, we cannot show production increases in general. And if we cannot measure success (or failure), we should question the reasonableness of executing the project.

Means of verification are the sources of information or data which provide evidence that objectives and related OVI(s) have been achieved. MOVs must be available, affordable, timely and useful.

9          ASSUMPTIONS:

Something assumptions must happen if the project is to succeed, but which is not directly controlled by the Project Team. At each level in the project design (GPOI), the sum of the objective(s) and the assumptions represent the necessary and sufficient set of conditions to achieve the next higher level.

Assumptions reflect our recognition that there are factors beyond our control that are necessary for successful achievement of objectives at all levels of the project.

The important point is that we must define, at any one level that must be in place for us to achieve the next level objective. Important Assumptions are conditions that must exist if the project is to succeed but which are not under the direct project control.

Assumptions are used to connect an objective at one level to the objective at the next higher level.

Once having identified the assumptions, we can then try to deal with them in such a way as to increase our probability of success and consequently, our confidence in our project design. In the case of the bus, we can get up earlier to avoid traffic delays; we could call the bus company and find out how often their buses do break down.

Logical Framework

Establishment of Project Management Academy at Savar

NARRATIVE SUMMARY	OBJECTIVELY VERIFUABLE INDICATOR	MEANS OF VERIFICATION (MOV)	IMPORTANT ASSUMPTIONS
GOAL Contribution to GDP increased	1.Contribution of different sectors to GDP increased at least 1% from 2012 onward.	1.Statistical Year Book 2.Economic Review
PURPOSE Quality of Project Management Improved	1.95% of trained officersused their knowledge skill and attitudes in their working places by 2012.	1. M/O-Planning 2.IMED. 3.Annual Report	1. Other factors of the economy remain at desirable level 2. No natural disaster.
OUTPUT 1.      Construction of Academic Building completed. 2.      Personnel Recruited are in Position 3.      Officers Trained.	1. 5 class rooms (x square feet) of Academic Building constructed by March, 2008. 2. 20 personnel of different categories recruited by December, 2008 3. 2000project personnel trained by December, 2012.	1. IMED 2. Project Management Record 3. PD office 4. Site Visit Report.	1.Receptive capabilities of the trainees. 2. Right placement to work 3.Trained officers  are using new knowledge, skill and attitude acquired from training. 4. Quality training ensured.
INPUT/ACTIVITIES 1.Land acquisition 2.Construction of academic building 3.Manpower recruitment 4.Procurement of equipment 5. Conduct training.	EXPENDITURE/BUDGET 1.Land acquisition…………….250 2.Construction of academic building.                     50.00 3.Manpower recruitmen50.00t 4.Procurement of equipment50.00 5. Conduct training.20.  Total:  420.00	1.Project Director Office 2.Project Management Record 3.Office File	1.Timely release of fund 2.Timely acquisition of land 3.Timely procurement 4.Timely release of trainees from different organizations

4.11. ADVANTAGES OF LOGFRAME:

1.      The Logical Framework is simple to understand. It provides a structure for concept, ensuring that the decision maker thinks through the fundamental aspects of a project design.

2.      The Framework aids in evaluating a project since both initial goals and final results are clearly delineated.

3.      In ensures that fundamental questions are asked and weaknesses are analyzed, in order to provide decision makers with better and more relevant information.

4.      It guides systematic and logical analysis of the inter-related key elements, which constitute a well-designed project.

5.      It improves planning by highlighting linkages between project elements and external factors.

6.      It facilitates common understanding and better communication between decision-makers, managers and other parties involved in the project.

7.      Management and administration benefit from standardized procedures for collecting and assessing information.

8.      The use of Logical Framework and systematic monitoring ensures continuity of approach when original project staff is replaced.

9.      As more institutions adopt the Logical Framework concept it may facilitate communication between government and donor agencies.

10.  Widespread use of the Logical Framework format makes it easier to undertake both sectoral studies and comparative studies in general.

4.12. LIMITATIONS OF LOGFRAME:

1. During the planning process, the Logical Framework does not take uncertainty into account. Neither does is allow for the consideration of potential alternative actions.
2. A linear causal sequence is assumed which is an unlikely simplification of the relationships among various project components and elements in the environment.

4.13. THE USE OF LOGICAL FRAMEWORK IN BANGLADESH:

As has been stated earlier, Log-frame was developed by the USAID in the year 1970 and was popularized through its aided projects during the late seventies. As an important recipient of grant from the USAID, Bangladesh received technical assistance including training of senior trainers with the help of USAID experts in the year 1978. The core-trained trainers on Log-frame spread the Log frame concept through various training programs on project management organized by local training institutions. Over a period of five years, a large number of officers of economic cadre project managers, and officers of public corporations were trained on Log-frame. By the end of 1985, the Planning Commission of Bangladesh decided to incorporate Log-frame in its development project documents for making the project design more logical and succinct. Accordingly, a provision was made in the PP and each of the development projects of public sector is required to be prepared in the form of Log-frame and included in the PP. At present, Log-frame has become a common feature of designing public sector projects. Now in the DPP format log frame has been incorporated.

Most of NGOs are also practicing Log-frame for designing the project either with or without minor changes. The major donor agencies, including the World Bank, ADB etc. are also using Log-frame for designing all of its development projects. Needless to mention, Log-frame is also used for mid-term review and post-evaluation in many public and private projects. It is quite a helpful tool for the Planning Commission, IMED, various Ministries and NGOs for designing, monitoring and evaluation of projects.

4.14. Conclusion:

Like any other model, log frame also has its limitations. It is certainly not an answer to all the problems, which development projects are likely to encounter, but at least it offers project managers a guide so that implementation does not happen without any thought of the relevant means - end relationships. It is important tool for project monitoring and evaluation.

	Narrative Summary	Objectively       Verifiable Indicators (OVI)	Means of Verificati on (MOV)	Important Assumptions (IA)
GOAL	Small farmer income increased     in Northern Region	1.       Average           farmer income raised from 100 taka per year in 1979 to 130 Tk. /Year in 1981. 2.Small      farmer     income raised from 70 to 110 Taka in same period.	Agency Report	_
PURPOS E I	Small farmer rice production increased     in Northern Region	1. 30,000 farmers (owning 7 bighas or less) increase rice yields by 50% between October 1979& October 1981. 2. Rice harvested by small farmers in 1981 is of better or equal quality to rice harvested by same farmers in 1979. 3. 95% of farmers buy HYV seed for 1979 planting season.	Agriculture Ext. Deptt. Report	1.Price of rice does not fall 2.          market absorbs     total increased production each harvest 3. No spoilage or waste     system occurs          in marketing /storage system
OUTPUT S	1. Functioning fertilizer    and high    yielding variety       rice seed distribution system         in place. 2.        Farmers trained. 3. Functioning Credit System in Place	la) 10 distribution centers constructed by 12/81. b) X tons fertilizer & X tons seed distributed to target group by 12/81. c) 95% o all purchases paid for within 2 months of purchase. 2a. 35000 farmers trained by 12/81. b. 98% of those trained use new planting & cultivating          techniques appropriately. 3a. 8m Taka issued in credits to 25000 small farmers by 1981, by 30 credit area offices. b. Default rate does not 2% of total loans. c. Credit terms acceptable to local farm leaders.	Baseline surveys PMU/NGOP reports	1.       Extension agents correctly supervise farmers' application    of fertilizer 2. 100mm rainfalls between May and October each yr. 3. Price of jute stays at 1979 level   so    that farmers stay with rice project and not convert to Jute. .
INPUTS / ACTIVIT IES	la.      Design distribution System b.      Construct Storage Facilities c. Train Staff. 2a.        Recruit . farmers. b.         Develop trng. Facitilies and materials c.        Conduct trng. 3a. Hire crediot specialist. 1 b.Develop	Level of Effort/ Expenditure for each activity la. 6 man-months $ 15000, Taka 600,00 b. 12 „ $ 18000_900,000 c. 36,, $ 150000 „ 1200000 ''• 24„ $100,000 „ 100,000 -3. 36„ $ 150000 ,,........ -3. 4.---------------------------- Total Cost (in Lakh)	PMU Reports	1.         Farmers willing to accept new cultivation methods. 2.        Fertilizer prices do not exceed        Tk. X/ton. 3. Can recruit locally 150 agri. Extn. Agents.

An alternative Log-frame Matrix: