Program Management
Terms of Reference
Two template approaches for procuring project management services — from delegated authority to advisory support — adaptable to any Compact.
Every MCC Compact requires project management expertise, but the level of authority granted to the consultant varies depending on MCA capacity, Compact complexity, and country context. IPM has developed two template TORs that represent opposite ends of a spectrum.
Program Manager
The consultant is hired as the Program Manager, functioning under delegated powers with decision-making authority at both Program and Project level. PM staff operate semi-autonomously with MCA and MCC oversight.
Most Compacts benefit from a position between these two poles. Adjust the verbs in each work package to assign direct authority for some functions while keeping an advisory role for others. The Roles and Responsibilities table is the primary calibration tool.
Project Management Consultant
The consultant provides non-directional support to the MCA, which retains all decision-making authority. The PMC has no independent authority — all actions require MCA approval.
How the Models Compare
| Dimension | Program Manager (PM) | Project Management Consultant (PMC) |
|---|---|---|
| Authority | Delegated decision-making authority within mandate at Program and Project level. | No independent authority. Reports to and requires approval from MCA for all decisions. |
| Employer Role (FIDIC) | Acts as Employer’s Delegated Representative on infrastructure contracts. | MCA acts directly as Employer. PMC supports but does not assume this role. |
| Relationship to MCA | Operates semi-autonomously with MCA and MCC oversight. | Works under the guidance and direction of MCA. MCA team remains the primary point of contact. |
| Project Plans | PM develops and owns project management plans. | MCA Project Leads develop plans in collaboration with the PMC. PMP remains an MCA document. |
| Contract Management | PM manages and monitors implementation of each contract and reviews deliverables directly. | PMC supports MCA in managing contracts. MCA is the only entity that provides feedback to service providers. |
| Key Experts (Min.) | 5 Key Experts: Team Leader, Deputy TL, Program Controls Manager, H&S Manager, Environmental Manager. | 2 Key Experts: Team Leader, Deputy TL. Controls, H&S, and Environmental Managers are non-key experts. |
| Team Leader Experience | Managed at least one program of works valued over US$250 million with multiple components. | Managed at least one project valued over US$100 million with multiple components. |
How Both Models Are Paid
Both TOR templates use the same payment architecture, structured around deliverables and quarterly reporting cycles. The payment mechanism ties compensation directly to demonstrated performance.
Begins with a Base Period of 12 months, followed by multiple Option Periods of 12 months each. The final Option Period includes 3 months after Compact End Date for administrative closure.
The consultant invoices quarterly, triggered by MCA approval of the Quarterly Progress Report. Each invoice must include financial progress detail, an S-curve, and written MCA approval of the QPR.
Approval of the QPR and deliverables due in the reporting period is the trigger for payment. If MCA does not provide comments within 5 working days of receiving the draft QPR, the report is deemed approved.
Scope — Both Models
Both TOR templates share the same work package structure across two phases. The scope is identical — what changes is the level of authority and the action verbs describing the consultant’s role in each package.
Five Steps to Your TOR
Evaluate the MCA’s existing project management expertise, staffing levels, and experience with Compact implementation. MCAs with strong in-house teams may benefit from the advisory PMC model, while those building capacity may need the delegated PM approach.
Choose either the PM (delegated authority) or PMC (advisory support) template as your starting point. Download both to compare the verb structures and Roles and Responsibilities tables.
For each work package, decide whether the consultant should “manage,” “support,” “advise,” or “assist.” Adjust the verbs in the scope of work and update the Roles and Responsibilities table accordingly. This is where the hybrid model is created.
Replace all placeholder fields (XXXX) with Compact-specific information: country name, project descriptions, MCA structure, implementation entities, key dates, and staffing requirements.
Match the number and seniority of Key Experts to the authority level selected. Greater delegated authority generally requires more Key Experts with higher experience thresholds.
Both templates are provided as editable Word documents. Placeholder fields are marked with “XXXX” for easy find-and-replace customization. Guidance notes in italics indicate where Compact-specific information should be inserted.
The consultant operates under delegated powers as the Program Manager with decision-making authority.
Download PM Template (.docx)The consultant provides support and recommendations while the MCA retains all decision-making authority.
Download PMC Template (.docx)
IPM 