Guide for Preparing a Country Development Programming Framework (CDPF)

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 Guidelines for Preparing a Country Development
        Programming Framework (CDPF)




     Canadian International Development Agency



                        March 2008




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ACRONYMS

CDPF       Country Development Programming Framework
CIDA       Canadian International Development Agency
CPB        Canadian Partnership Branch
CPAG       Corporate Planning and Analysis Group
CPIA       Country Policy and Institutional Assessment (World Bank)
DAC        Development Assistance Committee
EMM        Europe, Middle East and Maghreb Branch
FMA        Financial Management Advisor
IM/IT      Information Management/Information Technology
IPF        Indicative Planning Figure
JAS        Joint Assistance Strategy
LDCs       Least Developed Countries
MDGs       Millennium Development Goals
MfDR       Managing for Development Results
MPB        Multilateral Programs Branch
MRRS       Management Resources and Results Structure
NDP        National Development Plan
OA         Official Assistance
ODA        Official Development Assistance
ODG        Office for Democratic Governance
OECD       Organization for Economic Co-operation and Development
OGDs       Other Government Departments
PAA        Program Activity Architecture
PBA        Program-based Approach
PPR        Project/Program Performance Report
PMF        Performance Measurement Framework
PKMB       Performance and Knowledge Management Branch
PRS        Poverty Reduction Strategy
PRSP       Poverty Reduction Strategy Paper
RDPF       Regional Development Programming Framework
RRMAF      Results and Risk Management and Accountability Framework
SEA        Strategic Environmental Assessment
SPWG       Strategic Planning Working Group
TBS        Treasury Board Secretariat
YDP        Corporate Planning Division (Policy Branch, CIDA)




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Introduction
The CDPF Guidelines present a flexible, corporate approach to the preparation of
development programming frameworks - CDPFs and RDPFs1. CDPFs set out the details of
how CIDA, together with its developing country partners, and in accordance with its aid
effectiveness commitments, will contribute to its partners’ ability to achieve development
results.

The graph below outlines the various steps in the CDPF management cycle. They mirror
CIDA’s performance management cycle. These guidelines will focus on the steps up to the
approval of the CDPF.

                                      CDPF Management Cycle




1. Purpose of a Programming Framework

A CDPF provides both a strategic vision for CIDA’s engagement with, and within a country,
and an operational plan for its activities. CDPFs serve a dual role: as a key part of CIDA’s
performance management framework (Management Resources and Results Structure
(MRRS)) and program delivery cycle; and as a framework for dialogue and mutual
accountability with the partner government and other donors in the country.

CDPFs are not a substitute for a partner’s strategy, e.g. a Poverty Reduction Strategy, nor for
a Joint Assistance Strategy (JAS). Where CIDA has signed onto a JAS or is intending to do
so, the CDPF is still required because it represents a corporate document of CIDA
programming. Nonetheless, the CDPF can draw on much of the existing country analysis
related to the PRSP and the donor context of the JAS, and articulate the CDPF as CIDA’s
plan to support the partner country’s priorities, while at the same time, contributing to
CIDA’s corporate results, both bilateral and non-bilateral programming.

CDPFs offer important benefits because they articulate a strategic plan for CIDA’s
engagement in the partner country, and lay the groundwork for managing a program for
results.


1
    RDPF may be substituted wherever the word CDPF appears.


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2. Coverage and Mandatory Requirements
2.1 Coverage

These Guidelines apply to all of CIDA’s country and regional programs2, so that each
country or regional program has a valid programming framework and performance
measurement framework (PMF). The approval authority, level of complexity and format of
the CDPF will vary depending on the materiality and category of CIDA’s program.

2.2 Mandatory requirements
    As a mandatory minimum, CDPFs will include:
        Development context including an assessment of democratic governance and a
          strategic analysis that situates CIDA programming and the donor community;
        Proposed CIDA program and resource profile (financial and human resources)
          for the duration of the framework;
        Logic model and performance measurement framework;
        Country program risk profile and risk management strategy, as well as the
          proposed management approach to monitoring, reporting and evaluation; and
        Strategic Environmental Assessment and Gender Equality Assessment, a
          strategy for environment and a strategy for equality between women and men.


For any country program that does not have a CDPF, a new programming framework will be
prepared and will be approved by the appropriate authority. Once a program has a valid
approved framework, the annual business plan process of the MRRS will be the trigger to
determine whether its CDPF needs ―ever-greening‖ or whether circumstances have changed
sufficiently to raise questions about the validity of the existing framework and consequently
require an update - for example, when:
 a country program is being significantly modified;
 major changes occur, e.g. political, economic or organizational, in the country and these
    represent changing risks, mitigation and accountabilities for the program;
 a shift has occurred in Canadian foreign/development cooperation policy, which has a
    major impact upon CIDA programming in a given country or region; or
 the assessment of lessons learned from recent CIDA programming (e.g. from an internal
    audit or formative evaluation) and that of other major donors finds that assumptions made
    to define the program’s strategic orientation have changed considerably and justify
    making significant adjustments to a CDPF.



2
 Any program that reflects the following characteristics is considered a regional program and requires an
RDPF:
    At least three countries in the region are involved;
    Programming addresses issues of regional interest; and
    Programming is usually designed and delivered by trusted regional institutions financed by CIDA.


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Optimally, the time frame of a CDPF could be parallel to, and be synchronized with, the time
horizon of a PRS/NDP or equivalent in the partner country, including instances where there
is a JAS with other donors. In some cases where suitable synergy is best achieved by
extending a valid CDPF to allow time better develop the subsequent CDPF to reflect CIDA’s
contribution within an evolving PRSP and/or JAS, the country program may seek guidance
from its responsible Vice-President about an interim extension to its CDPF as an option of
―ever-greening‖. Nonetheless, a CDPF must be renewed/updated approximately every five
years.

For more information, refer to the relevant CDPF Net topics in ANNEX A: References in the
Guidelines.

3. The CDPF and Aid Effectiveness
The Agency is committed to integrating lessons learned on what makes aid more effective
through its Four-Part Agenda for Aid Effectiveness. The Agenda prioritizes CIDA actions
toward: strategic focus, strengthened program delivery, a more effective use of resources,
and demonstrating clear accountability for results. CDPFs should address each component of
the Four-Part Agenda for Aid Effectiveness.

1) Strategic Focus: CDPFs should reflect the efforts of the CIDA country program to focus
on a limited number of priorities aligned with the MDGs (and/or other international
commitments, e.g. Rio Conventions3) and the country’s own priorities, commensurate with
the resources available to the program. As well, the development context analytical work will
include an assessment of democratic governance, of the environment and of equality between
women and men, to inform decisions regarding an appropriate programming approach.

2) Strengthen program delivery: In 2005, the development community, including Canada,
endorsed the Paris Declaration on Aid Effectiveness that sets out agreed principles and
commitments to aid effectiveness. CDPFs play a central role in its implementation.

CDPFs will describe the extent to which the following principles of the Paris Declaration are
being implemented in-country and the appropriate next steps to further these principles.
     Ownership – Partner countries exercise effective leadership over their development
       policies, and strategies and co-ordinate development actions
     Alignment – Donors base their overall support on partner countries’ national
       development strategies, their institutional systems and procedures
     Harmonisation – Donors’ actions are more harmonized, transparent and collectively
       effective
     Managing for development results
     Mutual accountability - The Paris Declaration frames the nature of mutual
       accountability in the context of the respective and shared commitments of donors and


3
  The three RioConventions—on Biodiversity, Climate Change and Desertification— to which Canada is a
signatory derive directly from the 1992 Earth Summit


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       partner countries and the assessment of mutual progress toward these commitments.
       Donors and partners are accountable for development results.

CDPFs must provide to the extent possible, a corporate vision for CIDA’s program. CDPF
should be prepared in a corporate manner, through the active participation of all
programming branches from the early stages of the analysis of the partner context and the
proposed programming orientation.

3) Demonstrate effective use of resources: Programs should discuss their approach to
managing the program, and present information on the expected cost (both financial and
human resources) in relation to the size of the anticipated aid budget; they should look for
ways to improve program efficiency. In analyzing effectiveness, the focus should be on
CIDA’s management capacity, in the field and in headquarters, and on the alignment of
resources and skills to respond to the evolving needs of the program over the course of the
CDPF lifecycle.

4) Clear accountability for results: The CDPF should position the program relative to the
Agency`s corporate results, as defined in CIDA’s Logic Model, and provide a strong basis
for ongoing monitoring and reporting. This includes articulating a strategic corporate view of
CIDA’s relationship with the country, and drawing on lessons learned from earlier
programming. CIDA’s MRRS provides the frame guiding the Agency’s approach to
performance management. It includes CIDA’s PAA, which sets out 5 main program activities
and expected results (which are in turn supported by sub-program activities, in many cases,
country or regional programs).

Therefore, the CDPF logic model and performance measurement framework (PMF) will be
anchored in the Agency’s MRRS and vice versa. The PMF will allow CIDA to
systematically measure and monitor the program’s program performance, report upon it, and
integrate lessons learned into the next planning cycle, including decision-making on budgets
and human resources. Where appropriate, progress with respect to indicators related to the
principles of the Paris Declaration will be tracked as part of the CDPF’s PMF.

The MRRS is also complemented by CIDA’s "CIDA's Corporate Results and Risk
Management and Accountability Framework", which details the Agency’s corporate
approach to performance measurement and risk management. It provides a broad risk
management approach to guide the CDPF’s risk management strategy.

For more information, refer to the relevant CDPF Net topics in ANNEX A: References in the
Guidelines.


4. Approval Levels for CDPF Documents:
For all countries of concentration, fragile states, and selected countries and regions with
annual budgets exceeding $10 M., the responsible Vice-President submits the concept paper
to the Policy and Performance Committee for consideration and approval by the President.


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Subsequently, Ministerial approval is required for communication/consultations on the
concept paper and also for the CDPF. Concept papers and CDPFs for all other country
programs are approved by the responsible Vice-President and only directed to Policy
Committee at his/her discretion. All decisions on CDPFs and related documents must be
relayed to the Strategic Policy and Performance Branch/YDP for corporate monitoring and
filing of the approved documents.

For more information, refer to the relevant CDPF Net topics in ANNEX A: References in the
Guidelines.


5. Mandatory Steps in the Preparation of a Country Development
   Programming Framework (CDPF)
The steps to developing a CDPF are as follows:

       Step 1:   Decision to renew or to prepare a CDPF
       Step 2:   Strategic analysis
       Step 3:   Approval of the concept paper
       Step 4:   Engaging the Minister
       Step 5:   Planning and consultation
       Step 6:   Approval of the CDPF
       Step 7:   Dissemination of information on the new CDPF
       Step 8:   Implementation: manage the program for results!

5.1 Step 1: Decision to renew or to prepare a CDPF




All country and regional programs require a CDPF. These steps outline the anticipated
process for a new CDPF or updating a CDPF near the end of its approved lifecycle. See
Section 2. Coverage and Mandatory Requirements regarding factors that will determine
the decision to renew or prepare a CDPF.

In order to prepare a CDPF, a Team will be formed under the leadership of a CIDA program
representative, usually the program analyst (the ―Originator‖), designated by the country
program director. This step will be undertaken with close consultation among officials at


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headquarters and in the field, in a collaborative manner, through the active participation and
input of other programming branches from the early stages of the preparation process.4 In
most cases, the bilateral team will direct this process, either from headquarters or the field. In
certain selected countries, e.g. those where the most significant programming is not bilateral,
the lead may be taken by the appropriate branch for the type of programming in that country.

Securing the involvement on the Team of the appropriate CIDA areas of expertise and
accountability contributes considerably to building a solid CDPF. The Team should include
field officers assigned to the given country (or related mission with responsibilities for the
country in question), local staff and consultants for the CIDA program in that country, as
well as representatives of other programming and corporate branches; on occasion,
representatives from other government departments (OGDs) engaged in a significant manner
in the partner country may be invited to join the team from the outset, whereas others may
join as the preparation process unfolds. The Team must include key branch specialists
(strategic analyst/performance management specialist, and analysts for gender equality,
environment and governance), the appropriate representatives from Strategic Policy and
Performance Branch, and other relevant sectoral and thematic analysts as appropriate.

From the outset, Team members will add value to the process by integrating the interests,
relative strengths, lessons learned from earlier CIDA experience and that of other donors in
the country, information on significant programming by Canadian and international partners
in the country, and existing and possible future programming orientations of their respective
branches in the country or region.

The country program director is accountable and responsible for designating an appropriate
Team leader to oversee the process of developing the CDPF, and ensuring compliance with
the guidelines, identifying and mitigating risks, negotiating and allocating appropriate
resources for the program once approved, monitoring program performance and taking
corrective action, and ensuring that program performance is reported upon according to
Agency requirements.

Under the leadership of the CDPF Team Leader, CDPF Team members share responsibility
for:
        Ensuring the core requirements of these Guidelines are met;
        The quality and appropriate depth of the analysis and the nature of consultation
         undertaken;
        The alignment of the framework with CIDA’s results and risk frameworks;
        The alignment of the framework with the partner country’s PRSP or equivalent and
         CIDA’s commitment to aid effectiveness;
        The corporate nature of the CDPF;



4
 The country program will determine whether headquarters staff or officials posted in the field will lead
preparation of the CDPF.


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   The consistency of the CDPF with the Government of Canada’s relationship with the
     partner country;
      Being the conduit for input from their respective branches or functions into the
       preparation process of the development programming framework;
      Taking account in their development of the CDPF, the learning from: previous
       programming in the country, other donor experience, the nature of risk to the
       program, lessons learned from performance reviews of the program (internal audits,
       evaluations, joint donor assessments, joint monitoring of program investments, etc.)
       and where relevant, of significant investments in the program portfolio (e.g.
       budgetary support) and applying them to the choice of programming and the
       management approach to the new CDPF;
   Contributing to the drafting of the concept paper, CPDF and related documents or
     products for approval, and to briefings and presentations on these;
   Monitoring results against the stated objectives, and recommending adjustments to
     the CDPF or its implementation as required, in order to continuously enhance
     performance; and
   Providing inputs into reporting on the program and into program-level performance
     assessments (e.g. internal audit, evaluation, etc.) for program learning and corporate
     learning.
A more complete list of proposed roles and responsibilities of the CDPF Team should be
consulted in the very early stages of planning a CDPF; it is available as a CDPF Net topic,
―Roles and Responsibilities in the Preparation of the Country Development Program
Framework (CDPF)‖. As the program implementation evolves, the degree and nature of
involvement of the Team members will vary, though at key planning, monitoring and
reporting milestones in the CDPF lifecycle, the Team leader should ensure that relevant
members continue to play appropriate roles.

For more information, refer to the relevant CDPF Net topics in ANNEX A: References in the
Guidelines.




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5.2     Step 2: Strategic analysis




The starting point of a new or updated CDPF is CIDA's review of the partner's development
challenges including its PRS/NDP. In the case where there is no PRS, NDP or equivalent, or
the existing one is deemed to be not representative, reliable or legitimate, CIDA will engage
in preparing its own brief analysis and poverty profile – based on existing sources of country
information wherever possible - of the country's development problématique.
Analytical and policy research components will be completed by CIDA staff, building on
existing analytical work from the country itself, through joint analytical work with other
donors, and/or from other reliable sources. Such analysis needs to include an assessment of
issues of strategic interest to Canada, such as democratic governance and key risks to the
program as well as cross-cutting issues5 of environment and equality between women and
men.6 For more information, refer to ―Integrating the Environment into the Country
Development Program Framework (CDPF)‖ and ―Preparing a Gender Equality Strategy for
a CDPF” (link to be provided).

This review of the development context and strategic analysis provides: opportunities for
harmonization through joint analysis, joint programming, joint missions, and possibly joint
reporting and evaluation; as well as a basis to promote local ownership and alignment in
CIDA programming with a corporate perspective and ideally consistent with a whole of
government approach. Below are the expected elements of such analysis.

1. Development context:
     national poverty profile, an analysis of the nature and causes of poverty (e.g. a range
       of environmental, socio-economic and governance factors);
     presentation and assessment of the country’s PRS/NDP, with focus on national
       priorities, possible weaknesses/dilemmas in the strategy, and an assessment of the
       financing of the strategy and support from other donors (i.e. external revenue and

5
 Environment in CDPFs can be considered in two ways: as a cross-cutting issue supported by the mandatory
compliance to the Cabinet Directive on the Environment Assessment of Policy, Program and Plan Proposals
(Strategic Environmental Assessment - SEA), and as a programming option. Equality between women and
men will also be applied as a cross-cutting issue, and may also be a specific programming option.




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       borrowing requirements as detailed in the Medium Term Expenditure Framework,
       where it exists);
      analysis of the expected impacts of the strategy, in particular its impacts on the poor
       (women and men);
      assessment of the institutional capacity to implement the PRS, and actions identified
       to strengthen capacity, particularly in government systems, in order to manage for
       development results;
      a discussion of the external environment (such as trade, potential for conflict, natural
       hazards, climate change impacts, shared natural and physical resources, infrastructure
       links, etc.), underlining any relevant issues and/or regional integration, and their
       effects on the country’s expected performance.

2. Strategic analysis:
     an overview of CIDA’s corporate support through past and planned investments -
        bilateral (including the extent of funding of program-based approaches such as
        general budgetary support or pooled funding); multilateral, Canadian partnership, and
        governance programming, and any relevant regional programming in the partner
        country, with a specific focus on the following:
        o democratic governance, including human rights;
        o its Strategic Environmental Assessment and Gender Equality Assessment;
     significant other Canadian government departments’ (OGDs) programming with the
        partner country;
     the donor environment, including:
        o other donors’ programming in the country and CIDA’s position relative to them,
            in terms of nature and size of investments, sectors and/or other priorities; and
        o an indication of the priorities the partner country would like CIDA to address;
     changes in the partner country's context since the last programming framework;
     a risk profile indicating existing risks that have been identified, and measures being
        taken by the program to mitigate them; and
     lessons learned that influence the choice and type of programming envisaged, and are
        drawn from earlier iterations of the program, as well as from other CIDA
        programming and other donors’ experience; and internal audits and/or evaluations of
        the program, of similar corporate programming, or of investments within the country
        program portfolio (e.g. a sectoral evaluation representing a significant proportion of
        the program’s budget).

Risks recorded by this point of the process should be those associated with delivery of the
country’s PRS/ NDP, the contribution of donors and regional influence. Those risks
associated with CIDA’s capacity to manage the program within this context must be taken
into account in the country program risk profile and these considerations will contribute to
the country program risk management strategy.

The analysis stage will also provide the Team with an opportunity to assess whether external
public consultation should be undertaken on the proposed CDPF – in addition to the ongoing
dialogue CIDA has had with partner country and other stakeholders during the course of its
working relationship. Factors to take into consideration could be the nature of CIDA’s


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engagement with the partner country, CIDA’s role as a donor (especially in the case of a
JAS), the expected materiality of the program, and the identified risks to achievement. The
justification for the approach to communication and consultations will be required in the
concept paper.

For more information, refer to the relevant CDPF Net topics in ANNEX A: References in the
Guidelines.

5.3    Step 3: Approval of the concept paper




Following the analysis undertaken in Step 2, a number of strategic programming options for
CIDA and assumptions will be explored, based on the country partner's plans and priorities
and Canada’s value added in this context. The objective is to propose a country program that
is based on CIDA’s previous experience, on opportunities for Canadian value-added with the
partner country and within the donor country, and in a manner that promotes stronger
corporate coherence and complementarity of programming with other Canadian government
departments (ODGs). It is not meant to provide extensive analysis.

By definition, the concept paper is flexible and meant to organise ideas about a new program
or a significant update. Such ideas may change after further analysis and any feedback from
stakeholders.

The strategic choices will be defined as proposed objectives and priorities (sectoral and
thematic, etc.) for CIDA programming in the partner country, in a manner that will
encourage corporate coherence/alignment with other CIDA and Government of Canada
programming wherever feasible. The strategic choices will take into account the anticipated
stakeholders and beneficiaries of the program; and preliminary opportunities for
governance as a programming sector or as a significant component of programming in other
sectors, and for the cross-cutting issues of environment and equality between women and
men.
The above elements must be reflected in a preliminary logic model for the desired program,
describing program results that should be informed by and contribute to CIDA’s PAA and
the country partner results of the PRS/NDP.



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To permit an informed assessment of the proposed approach, it is essential for all CDPFs to
identify the anticipated human and financial resources and the risks in relation to the
proposed program results. Human resource information would include the number of full-
time employees and related technical and administrative resources (in headquarters and
assigned as field staff, locally engaged staff and consultants, etc.) that are needed in order to
implement the proposed program. Budget information would reflect operational and
management costs, as well as both the proposed aid budget for bilateral programming and a
notional corporate budget reflecting anticipated non-bilateral programming. The
programming options will subsequently be assessed in terms of prevailing and emerging risks
and expected results, and will include information on the roles and responsibilities of CIDA
branches in the implementation and monitoring of the CDPF, as well as reporting on
performance.

The recommended table of contents and proposed length of the concept paper are standard
for all countries of concentration and fragile states, but for other types of country or regional
partner, the concept paper would be tailored to the context.

                                                                                   Approx.
Concept Paper: Table of Contents                                                   number of
                                                                                   pages

1. Development Context (Step 2)                                                    1-2 pages

Brief analysis, based on existing available data, of:
     the context and content of the partner country’s PRS/ NDP or
         equivalent.
OR: if this is not available, a brief poverty analysis


2. Strategic Analysis (Step 2)                                                     2-3 pages

Brief analysis, of the country in terms of:
     an overview of CIDA’s corporate support through past and planned
        investments - bilateral and all other programming, with a specific focus
        on governance, environment, and equality between women and men;
     significant other Canadian government department (OGD)
        programming
     the donor environment;
     changes in the partner country’s context since the last programming
        framework; and
     key risks to the program and existing mitigation measures


3. Suggested Strategic CIDA Choices                                                1-2 pages

A brief description of:
        proposed program objectives and priorities in the partner country;



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       expected coherence/alignment with other corporate CIDA
        programming and with OGD programming;
       anticipated stakeholders and beneficiaries of the program;
       preliminary opportunities for proposed sectoral/thematic
        programming, including governance as a programming sector or as a
        significant component of programming in other sectors; and for
        integrating the cross-cutting themes of environment and equality
        between women and men;
       how the program supports the implementation of the four-part CIDA
        agenda on aid effectiveness and the Paris Declaration on Aid
        Effectiveness; and
       lessons learned that influence the choice and type of programming
        envisaged


4. Proposed Program Results                                                      1–2 pages
The proposed program results are articulated with a preliminary logic model
that explains the program’s proposed results, including how they contribute to
CIDA’s PAA and reflect the country partner results of the PRS/NDP or
equivalent.


5. Management of the Program                                                     2–3 pages
This requires preliminary details of how the program is expected to be
managed for results in relation to identified risks.
       the human and financial resources that would be required to implement
        the proposed program;
       lessons learned that have influenced the proposed management
        approach and resource requirements for implementation of the proposed
        program; and
       the proposed approach to monitoring, evaluating and reporting on the
        program.



6. Communication/Consultation                                                    ½ page
Brief information on the proposed approach to communication and consultation
on the proposed program.


Required Annexes for the Program:

     The preliminary logic model
     The preliminary country program risk profile


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       The country program governance assessment
       The country program Strategic Environmental Assessment applicability
         form and if needed, the SEA report
       The country program Gender Equality Assessment


Consultation with the Program Committee7:
For all countries of concentration, fragile states, and selected countries and regions with
annual budgets exceeding $10 M., the responsible Vice-President submits the concept paper
to the Policy and Performance Committee for consideration and approval by the President.
Concept papers for other country programs are approved by the responsible Vice-President
and only directed to this Committee at his/her discretion.

For more information, refer to the relevant CDPF Net topics in ANNEX A: References in the
Guidelines.

5.4      Step 4: Engaging the Minister




For all countries of concentration, fragile states, and selected countries and regions with
annual budgets exceeding $10 M, the Program Committee must first endorse the proposed
concept. Then the Team will submit – via the President - a decision Memorandum for the
Minister, along with a summary of the concept paper that is suitable for public consumption
and a communications plan that is based on the approach articulated in the concept paper.

The decision memo will provide the Minister with some background on the partner country
and its poverty context including the PRS/NDP, the rationale for the proposed program and
its expected results, while identifying potential risks to their achievement. Since the planning
and consultation stage is an integral part of an ongoing dialogue within the CIDA Team and
between CIDA and the partner country and many key stakeholders, the Minister will need to
know what the program intends to communicate to the public about the proposed program,
and the scope and nature of any consultations that may be recommended, in order to test out


7
 Strategic Policy and Performance Branch's Corporate Planning Division (YDP) will provide analytical support
to the Committee in its review of the content of CDPFs and their coherence with these Guidelines


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the proposed approach for the new CDPF and at the same time manage the expectations of
stakeholders.

The types of stakeholders who would usually be involved in and contribute to this planning
stage are: partner country government representatives including their diplomats based in
Ottawa; representatives from other donor agencies; and major overseas development partners
and stakeholders (e.g. civil society, private sector, academics) in Canada, the partner country
and internationally; and federal government departments whose programming is relevant to
the CIDA program, especially for key development partner countries, fragile states, and for
selected countries or regions of major geographical significance to Canada. Where formal
consultations are conducted, many will serve to confirm and/or enhance the proposed CIDA
program; nonetheless, the Team should be prepared that in some instances, new information
may be received that could lead to some changes to the intent of the concept paper.

The required summary of the concept paper should be a short document (about 5 pages)
that is largely based on the concept paper but intended for an external audience, to ensure
openness and transparency in communicating on the proposed program. It must contextualize
the program to the point of informing the public of key details of the proposed CDPF,
without delving into internal processes such as risk management, budget allocations, etc.

The minimum requirement for consultation is for the summary of the concept paper to be
posted on CIDA’s internet site. This ensures that the public has the opportunity to provide
comments on-line for CIDA’s considerations in the development of any CDPF and that
consistent information is available on all approved country programs and on programs under
development.

The communications plan serves to alert the Minister and CIDA program staff to what to
expect in terms of communications products and approvals. A branch communications
advisor, therefore, should be involved in the CDPF Team from its early stages. The
communications plan will clearly define the message that CIDA wishes to convey regarding
the proposed program, and the objectives of any expected consultations; it will be guided by
the principles of "CIDA's Policy on Consultation (1991)". The use of electronic media for
communication and/or consultations (e.g. posting the discussion paper on CIDA's website,
teleconferencing, etc.) should be considered.

For all countries of concentration, fragile states, and selected countries and regions with
annual budgets exceeding $10 M., the responsible Vice-President will submit the decision
Memorandum, the summary of the concept paper and the communications plan for
Ministerial approval. The concept paper will be included for the President’s approval. Where
consultations may not be recommended, the Minister’s views on the proposed program
approach will be sought through this Memorandum.

For all other country or regional programs, the approval authority is the responsible Vice-
President, who may, at his/her discretion, refer the document to the President or Minister.
Consultations and a communications plan will be optional, depending upon the nature of the
program. Nonetheless, the summary of the concept paper must be posted on CIDA’s website.


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For more information on the content of the decision memorandum and the summary of the
concept paper, refer to the CDPF Net topic ―Country Development Program Framework
(CDPF) – Mapping from the Concept Paper‖. A sample table of contents for this document is
entitled ―Preparing the Summary of a Concept Paper‖ and guidance for the communications
plan is ―Preparing the Communications Plan‖, both as CDPF Net topics. All relevant CDPF
Net topics are available in ANNEX A: References in the Guidelines.


5.5     Step 5: Planning and consultation




Following approval of the concept paper and the communications plan, the Team - both at
headquarters and in the field - has the oppportunity to validate and likely refine the proposed
approach to programming. Results of any consultations should benefit all partners, thus
helping to shape a common vision of the country program in general, and support the Team
in the preparation of the CDPF and related documents. Wherever appropriate, consultations
and/or communication on the proposed program should be conducted simultaneously in
Canada and abroad. If the CDPF is being developed during the elaboration of a joint donor
agreement with the country, e.g. JAS, it is essential to articulate how the CDPF will represent
the implementation of CIDA’s contribution to the partner country along with other donors.
This stage of preparing the CDPF represents a critical opportunity for the Team to revisit the
preliminary logic model, consider the validity and availability of suitable data on country
partner results, deepen the Team’s assessment of partner country capacity in this respect, and
build its PMF8 and its proposed program management approach, including how it will
monitor, report on and evaluate the program during the lifecycle of the CDPF and who will
be responsible for these tasks. The performance assessments anticipated for the program
should provide evidence for mid-course corrections and a program evaluation should be
conducted near the end of the CDPF lifecycle to feed lessons into the preparation of a
subsequent CDPF.
The country program’s risk management strategy should now be completed. The program
risks that were identified in its risk profile at the concept paper stage should be

8
  CIDA's Corporate Performance Measurement Framework 2007_2008 may provide useful indicators according
to the Program Activity to which the country program belongs.


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communicated during the planning and consultation activities, and risks that are residual after
mitigation measures have been taken should be the focus of discussions. This process helps
define the risk tolerance of a program; for example, if the key stakeholders think that they
can live with and manage high levels of risk, this is taken into account through mitigation
measures outlined in the risk management strategy.
The program gender equality strategy and environment strategy (where appropriate – and
building on the program’s SEA findings) will be developed during this period as well.
For more information, refer to the relevant CDPF Net topics in ANNEX A: References in the
Guidelines.

5.6    Step 6: Approval of the CDPF




The Team should ensure that the CDPF, its logic model, PMF, risk profile and risk
management strategy and related documents (e.g. gender equality strategy and environment
strategy) respect the principles and procedures outlined in these guidelines. The PMF will be
the key tool for the program; it identifies when and how the performance information will be
monitored, and who will be responsible for monitoring and reporting. Program-specific
indicators will reflect CIDA’s contribution to the partner country’s capacity to reach its
development goals.
CDPFs for all countries of concentration, fragile states and selected countries or regions with
annual budgets exceeding $10 M. should be submitted to the Minister for approval. The
authority for approval of CDPFs for all other programs rests with the responsible Vice-
President, who may, at his/her discretion, refer the document to the President or Minister.




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    Country Development Program Framework (CDPF): Table of Contents                                               Approx.
                                                                                                                  number
                                                                                                                  of pages 9
    Executive Summary                                                                                              1 page

    1. Development Context
                                                                                                                  3-5 pages
    Brief analysis, based on existing available data and with any updates since the
    consultations/planning stage, of:
         the context and content of the partner country’s PRS/NDP or equivalent.
    OR: if this is not available, a brief poverty analysis

    2. Strategic Analysis
                                                                                                                  2-3 pages
    Brief analysis, based on existing available data and with any updates since the
    consultations/planning stage, of the country in terms of:
         an overview of CIDA’s corporate support through past and planned investments -
            bilateral and all other programming, with a specific focus on governance,
            environment, and equality between women and men;
         donor environment;
         significant other Canadian government department (OGD) programming;
         changes in the partner country’s context since the last programming framework; and
         key risks to the program and existing mitigation measures

    3. Strategic CIDA Choices
    A description of:                                                                                             3–4
                                                                                                                  pages
           the proposed program objectives and sectoral/thematic priorities, including
            governance and the cross-cutting issues of environment and equality between women
            and men;
           expected stakeholders and beneficiaries;
           the proposed approach to support coherence/alignment with other corporate CIDA
            programming;
           how the program supports the implementation of the four-part CIDA agenda on aid
            effectiveness and the Paris Declaration on Aid Effectiveness; and
           lessons learned that have influenced the choice and type of programming proposed




9
  The approximate number of pages suggests a possible length for a CDPF for a country of concentration,
fragile state or selected country or region of sufficient materiality. All others will be tailored to the context of
their program.


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 4. Program Results
 A description of:
        desired program results, with a narrative text explaining the program logic model,     2 - 3 pages
         linking the program’s proposed results to CIDA’s Logic Model and Program Activity
         Architecture (PAA), as well as country partner results of the PRS/NDP or equivalent
         to which the CIDA program intends to contribute;
        the performance measurement framework (PMF) for the program, including roles
         and responsibilities assigned to CIDA branches and development partners including
         the partner country; and
        the country program risk profile of identified program risks and assessment of risks
         including the country partner assessment, and a description of the risk management
         strategy to support management of the program
     The logic model, PMF, risk profile and risk mitigation strategy will be required as
     annexes to the CDPF.



 5. Management of the Program
 A description of the management approach for implementation of the program, taking into        3-4
 account lessons learned from earlier iterations of the program. This includes:                 pages

        the human and financial resources required to implement the proposed program
         during its lifecycle, including a notional corporate budget that takes non-bilateral
         programming into consideration; and

        the approach to performance management of the program, i.e. monitoring, evaluating
         and reporting on the program

     Required Annexes for the Program:

        Its logic model
        Its performance measurement framework
        Its program risk profile and risk management strategy
        Its strategy for equality between women and men
        Its environment strategy


For more information, refer to the relevant CDPF Net topics in ANNEX A: References in the
Guidelines.




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5.7     Step 7: Dissemination of information on the new CDPF

Consistent with growing emphasis on transparency, partnership and shared accountability,
the public must be informed of the new or updated CPDF. In accordance with CIDA's
commitment to Government-on-Line, a summary of an approved CDPF will be posted in
both official languages on CIDA's website and intranet (Entre Nous) sites. Communications
Branch will provide guidance on the appropriate format of this document so that there is
consistent information on all country programs on these sites. The CDPF summary may also
be posted on the World Bank's Country Analytic Work website.


5.8     Step 8: Implementation - manage the program for results!

The PMF for a CDPF is the management tool to be used for planning, monitoring, reporting,
and learning, as it:
       allows for ―ever-greening‖ of the country framework;
       allows for adjusting the results approach through ongoing assessment of its actual
        performance in comparison with the expectations in the original framework; and
       provides linkages among the country program, CIDA’s corporate results and the
        partner country’s results.
A CDPF should form the basis of a country program’s annual planning and reporting
exercises. In other words, country programs will use their CDPF and its PMF to prepare their
annual business plan, to implement their program portfolio and monitor performance, and to
prepare annual country program performance reports, which will examine the extent to which
expected results have been achieved, and how human and financial resources have been
utilized. In terms of managing performance and risk, a performance review of the CDPF
annually will determine whether the assumptions made in the previous year have changed,
and if so, what modifications are required to the strategic orientation and/or management
approach of the program, including revising the risk mitigation measures of the risk
management strategy.

Further guidance on the other elements of the CDPF management cycle – for example,
planning, monitoring and reporting - will be made available, and this version of the CDPF
guidelines updated as required.




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ANNEX A: References in the Guidelines


Section 2. Coverage and Mandatory Requirements

 Relevant CDPF Net topics:
     “Approval Levels for CDPF Documents”.


Section 3. The CDPF and Aid Effectiveness

 Relevant CDPF Net topics:

     “CIDA’s Corporate Logic Model”;
     CIDA's Corporate Performance Measurement Framework 2007_2008
     “CIDA’s Four Part Agenda for Aid Effectiveness”;
     “CIDA’s Program Activity Architecture”;
     “CIDA's Integrated Risk Management Framework”
     “The Paris Declaration”; and
     “Treasury Board: Management, Resources and Results Structure (MRRS) Policy
        (2005)”.


Section 5. Mandatory Steps in the Preparation of a Country Development Program
           Framework (CDPF)

Section 5.1: Step 1 – Decision to renew or to prepare a CDPF

 Relevant CDPF Net topics:
     “Country Development Programming Framework (CDPF) Process CHECKLIST;
     “List of CIDA Contacts to Assist in the Preparation of CDPFs”; and
     “Roles and Responsibilities in the Preparation of the Country Development Program
        Framework (CDPF)”.




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Section 5.2: Step 2 – Strategic analysis


 Relevant CDPF Net topics:

      “CIDA Governance Assessment Tool” (to be added when available);
      “CIDA's Corporate Performance Measurement Framework 2007_2008”;
      “CIDA's Integrated Risk Management Framework” (preliminary documents);
      “Country Development Program Framework (CDPF): Mapping the Concept Paper";
      "Country Program Risk Tools";
      "Definitions of Integrated Risk Management";
      “Federal Cabinet Directive on the Strategic Environmental Assessment (SEA)”;
      "An Internal Guide for Effective Development Cooperation in Fragile States";
      “Preparing a Corporate CDPF: The Role of Sectors and Global Partnerships Branch
       in the CDPF Management Cycle” (to be added when available);
      “Preparing a Strategy for Equality Between Women and Men” (to be added when
       available);
      ―Integrating the Environment into the Country Development Program Framework
       (CDPF)”; and
      “World Bank, Public Expenditure and Financial Accountability (PEFA) Assessment ”.



Section 5.3: Step 3 – Approval of the concept paper


 Relevant CDPF Net topics:
      “Approval Levels for CDPF Documents”;
      "How to Develop a Country Program Logic Model” ; and
      “Sample Table for Country Program Human and Financial Resources” (to be added
         when available).




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Section 5.4: Step 4 – Engaging the Minister

   Relevant CDPF Net topics:
        “Approval Levels for CDPF Documents”;
        "CIDA’s Policy on Consultation (1991)";
        “Country Development Programming Framework (CDPF) - Mapping the Concept
         Paper”;

        Government of Canada Communications Policy (2006);
        “Government of Canada Policy on Communications (2002)”;
        “"Preparing the Summary of the Concept Paper"; and
        “Preparing the Communications Plan”.



Section 5.5: Step 5 – Planning and Consultation

       Relevant CDPF Net topics:
        “CIDA's Corporate Performance Measurement Framework 2007_2008”;
        “CIDA's Corporate Risk Profile”;
        "Definitions of Integrated Risk Management";
        "How to Develop a Country Program Logic Model";
        ―How to Develop a Country Program Performance Measurement Framework” (to be
         added when available);
        “Preparing a Strategy for Equality between Women and Men” (to be added when
         available);
        "Integrating the Environment into the Country Development Programming
         Framework (CDPF)"; and
        “Results and Risk Management and Accountability Framework (RRMAF) Guide
         (2004)”, especially sections 4 and 5.




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Section 5.6: Step 6 – Approval of the CDPF

       Relevant CDPF Net topics:
        "CIDA Evaluation Guide (2004)";
        “CIDA's Corporate Risk Profile”;
        “Results and Risk Management and Accountability Framework (RRMAF) Guide
         (2004)”, especially sections 4 and 5;
        "Definitions of Integrated Risk Management"; and
        “Sample Table for Country Program Human and Financial Resources” (to be added
           when available).




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