I am working on a project where 8 municipalities have participated in a program, in which they received consultancy on how to restructure the social sector. As a part of the program the municipalities have been able to follow their development through seven different parameters. My job is to analyze the progression of each municipality but also make a comparison between the progression of the municipalities. However, the municipalities did not start in the program at the same time, and they did not have the same starting point (some municipalities had already been working on the restructuring, before they participated in the program).
My question is therefore: How do I compare the progression between the municipalities and also take their difference in starting points in to consideration? My own thoughts are that I need to establish a baseline of some sort, but how do I do this correctly?