NZAID Tools Strategic Management 

Developing a Programme Strategy

Overview

What is a Programme Strategy?

The Programme Strategy is the guiding document for each NZAID country, sectoral or thematic programme. These guidelines DO NOT apply specifically to higher-level overarching regional and sectoral strategies which span several programmes (e.g. the Multilateral Engagement Strategy, the Asia and Pacific Strategies and the Education Strategy).

The strategy outlines how NZAID’s engagement aligns with partner country or partner agency development priorities (as reflected in their own development strategies and plans) and how the NZAID programme will provide support based on NZAID’s guiding principles, policies, strategies and areas where New Zealand has a comparative advantage to offer. NZAID is strongly committed to the Paris Declaration on Aid Effectiveness (pdf 169k) which promotes ownership, alignment, harmonisation, results based management, and mutual accountability. With this in mind the primacy of our partners own development strategy (s) must always be considered. Where national development strategies (e.g. Poverty Reduction Strategy Programmes) are in place in a country context, NZAID programme strategies will aim to align with these. See Annex 7: Some Tips on Implementing the Paris Declaration through Programme Strategy Development.

The aim of a programme strategy is to give clear guidance and rationale for the objectives of the programme and the key areas of support as well as describing broadly how this will be achieved. Key drivers for NZAID are understanding the country context, ensuring aid effectiveness including a focus on development results, and ensuring the strategy is well focussed on fewer, deeper and longer activities. NZAID should be able to assess the results that a strategy achieves. This means that for each strategy there should also be a results framework developed either at the time of the strategy or within a year of its confirmation.

A Programme Strategy has the following main parts:

  1. a summary of the programme context (or operating environment), rationale and aims
  2. a ‘strategic plan’ which sets out overall priorities (sectoral, thematic and/or geographic), budget scenarios, modalities, intended results and a process for monitoring and measuring these.

The plan is based on interpretation of evidence and analysis, which is presented in the broader strategy document. The plan will also indicate how NZAID’s mainstreamed and cross-cutting themes (human rights, gender equality, environment, conflict and HIV/AIDS) are to be addressed in the programme.

The development of the strategy is part of a wider dialogue process NZAID has with partners and stakeholders. Country Programme Strategies are agreed with partner governments and so their active engagement in the strategy development process is essential.

All programme strategies should incorporate the whole of NZAID’s (and in some cases New Zealand’s) engagement with the relevant country, sector or theme. To the greatest extent possible, this should include links to multilateral, regional, thematic or sectoral and civil society programme activities.

In Asia and the Pacific, alignment of Country Programme Strategies with the overarching priorities set out within the respective regional strategies is an important consideration.

Why develop a Programme Strategy?

  • To prioritise and focus the NZAID programme on strategic priorities and needs in alignment with partner plans.
  • To operationalise NZAID’s policies and higher level strategies..
  • To have a basis for measuring results.
  • To explain to others the rationale for decisions.

What levels of partnership are appropriate in a strategy process?

The level of partnership in the development and implementation of a Programme Strategy varies according to a range of factors.

Generally a greater level of partnership is expected for country strategies where New Zealand is a major donor or an influential partner (e.g. Pacific relationships). If the strategy is sectoral or thematic or if New Zealand is a very small donor to a country, the expectations of partner engagement are more modest so as not to burden partners.

The range of approaches can vary from full partnership through to more limited consultation. This is a matter of judgement for the steering group overseeing the process and the programme team implementing the strategy within NZAID.

What themes cut across all Programme Strategies?

NZAID has committed to undertake certain analyses and to assess certain thematic areas within all programme strategies. The following are the areas that are expected to be appropriately addressed:

For a comprehensive outline of sections and information expected in a programme strategy, see Annex 1: Content of a Programme Strategy Document.

For further elaboration on the inclusion of mainstreamed and cross-cutting themes within a programme strategy, refer to NZAID Screening Guide for Mainstreamed and Other Cross-Cutting Issues.

What might impact on the timing of developing a strategy?

While NZAID has internal drivers for the timing around developing a strategy (such as budget expenditure) it is important to also consider the suitability of the timing for the partner government or agency. The strategy should align with our partners’ plans which sometimes may mean deferring our strategy development process until these are agreed.

How long does a Programme Strategy last and why?

The Programme Strategy should normally be designed with a ten year focus, with the partner’s agreement. There may be circumstances in which a five-year strategy would be more appropriate: e.g. insufficient security around the long term availability of funds or a high level of uncertainty on the ground in the country concerned due to conflict or other factors.

The strategy will be routinely reviewed after five years and adjusted to changing circumstances. If there is significant change in the context or environment in which the strategy is being implemented or in our partner’s plans, outside of these timeframes (e.g. due to conflict) then the strategy should be revised to reflect these changes. This process is called a Strategic Review.

What is the purpose of a Strategic Review?

A Strategic Review is a ‘lighter’ process that updates the strategy during the period of its implementation (e.g. at a mid-term point). These guidelines focus on the process and content for a full strategy. A strategic review differs from a full strategy process in that:

  • progress around impacts and outcomes of the strategy are assessed
  • the analysis is updated to reflect any changing context or changes in partner’s plans
  • the strategy is updated in line with any changed priorities reflected in the analysis
  • the consultation process is less comprehensive (unless major changes are proposed).

The governance and approval processes remain the same as for a full strategy.

What happens after a strategy is complete?

Prior to the development of a new Programme Strategy there should be an end-of-strategy evaluation which:

  • looks at impacts and outcomes
  • identifies lessons for the subsequent strategy.

This evaluation should draw on all the evaluative activity carried out under the auspices of the strategy since its inception, as well as relevant evaluative work carried out by the partner government, other donors and agencies, and local institutions and organisation (e.g. the Office of the Auditor General). Depending on the evaluative analysis already available, appropriate further evaluative activity should be planned at desk and field levels.

What if there is a gap between an old and a new strategy?

There will be circumstances where a strategy’s timeframe is complete and the time is not right to develop a new one (e.g. Due to partner Government instability, or a pending election). Under these circumstances either the existing strategy could be extended or a short-term interim strategy could be developed. An interim strategy would update any changes to the context including changes in partner’s plan and describe any subsequent changes to agreed priorities. This would usually require only an in-house and partner country consultation process.

What if we are phasing out of a bilateral aid relationship?

As traditional NZAID bilateral partners achieve the MDGs and move to middle income status, it may be appropriate to consider moving to a non bilateral relationship with former partners. Details of managing the strategy process when phasing out of a bilateral aid relationship can be found in Annex 5: When and How to Develop a Strategy to Phase Out a Bilateral Programme

Who has an interest in Programme Strategies?

  • partner governments and agencies, NGOs and civil society groups, and contractors (where they are likely to be involved in implementation)
  • NZAID staff - those likely to be involved in supporting the implementation of the strategy and in evaluating its effectiveness. This includes MFAT staff at post with responsibilities related to NZAID programmes
  • The Minister responsible for Official Development Assistance.
  • other donors or international agencies working with the same partners
  • other New Zealand Government agencies (including MFAT) which have activities or policy interests with the same partners or in the same sectors
  • New Zealand development NGOs and other relevant civil society groups (e.g. New Zealand based communities from the country concerned)
  • Maori where appropriate. Advice on appropriateness and approaches should be sought from the Director of the MFAT Maori Policy Division.

Tip

Those who have an interest in NZAID’s programme strategies have a range of motivations. In engaging with them it is important to understand the drivers for their interest and identify and manage any potential conflicts of interest.