Definition
A baseline is the initial conditions data collected at the start of a project to establish a reference point for measuring change. It documents the state of indicators before project activities begin, providing the "before" measurement needed to assess whether and how much change has occurred by the end of the project.
A baseline value must be collected prior to the start of project activities to serve as a true starting point. Once determined, the baseline value and date collected are recorded in the Indicator Performance Tracking Table (IPTT) or donor equivalent. Every indicator that requires change measurement needs a baseline, and each target needs a corresponding baseline.
Why It Matters
Without a baseline, you cannot credibly claim that observed changes resulted from your intervention. A baseline enables the fundamental M&E practice of comparing "before" and "after" conditions to measure program impact. It also serves a practical purpose: design teams often lack adequate information to confidently propose specific targets during proposal writing. Baseline data collected early in implementation allows teams to set realistic, evidence-based targets informed by actual starting conditions rather than assumptions.
Donors including USAID, CRS, and FCDO require documentation of baseline values as part of their monitoring requirements. Projects must include baseline values or plans for baseline for indicators needing it, and these must be reflected in the Indicator Plan.
In Practice
For projects 18+ months in duration, conduct a baseline in the first 6 months; for shorter projects, conduct baseline prior to the start or no later than 3 months into implementation. Baseline information must be measured and reported prior to the start of project activities to establish true initial conditions.
Once the baseline value for an indicator has been determined, record the value and date collected in the 'baseline value' column of the Indicator Plan. Projects should document the baseline values in the Indicator Performance Tracking Table, or IPTT, or donor equivalent.
Upon completion of a project baseline assessment, project decision makers set indicator targets. These targets should be informed by baseline results, the project timeline, human and financial resources dedicated to the project, and the permissiveness or difficulty of the context, including levels of uncertainty.
Proposal Context
Baseline commitments are a de-facto requirement in most donor proposals. Every indicator with a target implies a baseline, and donor reviewers check that baselines are either measured or credibly planned. Common proposal pitfalls: (a) targets committed without a baseline plan (donor awards the contract, baseline later shows the target was unrealistic), (b) retroactive baseline construction from administrative records that were not designed for the indicator, (c) baseline timing that misses seasonal or contextual variation (one-shot baseline in post-harvest when the program also operates in pre-harvest), (d) baseline budget treated as part of program operations rather than a distinct M&E cost, (e) baselines for indicators that cannot be collected at baseline (post-program outcomes, post-intervention changes). A proposal that specifies baseline timing, method, and budget for every outcome indicator signals MEL discipline. Pair with the mel-plans and indicator-reference-sheet details.
Related Topics
- Baseline Design: Comprehensive approach to collecting initial conditions data
- Target Setting: Setting targets based on baseline results
- Endline: Final measurement for comparison with baseline
- Midline: Intermediate measurement during project implementation
- Indicator Selection: Choosing indicators that need baseline measurement