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.
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
Further Reading
- USAID Performance Monitoring and Evaluation Policy — Donor requirements for baseline documentation
- The Baseline Handbook — UNDP practical guidance for baseline design and implementation
- Baseline and Endline Studies: A Practical Guide — BetterEvaluation comprehensive guide
MEAL Rule Citations:
Best Practices:
- EX57_R005: Baseline data should be collected at the very beginning of a project or as soon after the beginning as possible
- EX136_R025: You must include baseline values or plans for baseline for indicators needing it
- EX085_P010: Indicator targets should be set upon completion of a project baseline study and included in the program's Indicator Plan
- EX09_R029: Baseline information for all indicators must be measured and reported prior to the start of project activities
Common Mistakes:
- EX112_S010: A baseline study is an analysis describing the initial conditions before the start of a project/programme, against which progress can be assessed
- EX090_R039: Design teams will often not have adequate information to confidently propose specific targets
- EX10_D003: Projects should document the baseline values in the Indicator Performance Tracking Table, or IPTT, or donor equivalent