Summary Table of the Result of Evaluation
1. Outline of the ProjectCountry : Cambodia

Project Title : Project on Improvement of Local
Administration in Cambodia

Issue/Sector : Governance

Cooperation Scheme : Technical Cooperation Project

Division in charge : JICA Cambodia OfficeTotal Cost :Period of Cooperation : Feb. 2007 – Jan. 2010

Implementing Organization : GDLA, MOI
Supporting(R/D : signed on Dec. 14, 2006)

Organization

in

Japan

:

Local

Administration Bureau and Local Autonomy College of
Ministry of Internal Affairs and Communications, City ofHigashi Hiroshima, Hiroshima University
Related Cooperation :1-1. Background of the Project
Cambodia suffers from the lack of mid-career public officers that are the core of public administration, caused by
the prolonged civil war. Coupled with the insufficient comprehensive training system for public servants, humanresources development of public servants is still backward. Also, as there are still many things to do in the
reorganization of administration structures, public administration has many difficulties in functioning effectively andefficiently. With such background, the Royal Government of Cambodia developed Nation Program for Public
Administration Reform 1998 to promote public administration reform. The first local election (direct election,
proportional representation) was implemented in February 2002, and as a consequence, 1,621 Commune/Sangkat
councils were established. In the national development policy “Rectangular Strategy”, announced in July 2004, theimportance of promotion of decentralization for the improvement of public services was expressed. Following theStrategy, Decentralization and Deconcentration (D&D) Reform Strategy Framework for the promotion of D&D wasapproved by Council of Ministers in June 2005. In August 2006, National Committee for the Management ofDecentralization and Deconcentration Reform (NCDD) for the implementation of decentralization policy wasestablished. It is chaired by Minister of Interior.
General of Local Administration (GDLA), as an implementing organization and a core of D&D reformpromotion, is planning to promote the development and implementation of laws and regulations and systems about
local administration system, local finance and taxation system and the relation between the central government andlocal administration and so on. However, as GDLA faces the lack of human resources, it is difficult to implement
without support from cooperating partners. In July 2004, the Royal Government of Cambodia requested a technicalcooperation project “Project on Improvement of Local Administration in Cambodia” targeting human resources
development for capacity development of local administration, especially for officials of GDLA and Provincial
officials. The Government of Japan adopted the project, and on December 14th, 2006, Ministry of Interior of
Cambodia and JICA both agreed to start the 3 year project from January 2007.

1-2. Project Overview(1) Overall Goal
Human Resources involved in local administration will be developed through training.
(2) Project Purpose
1. Officials of GLDA will improve the capacity of training management.
2. Officials in charge of local administration at national level and provincial level will improve theknowledge of local administration.
(3) Output
1-1 GDLA has ability to conduct training management based on the progress of Decentralization andDeconcentration (D&D) and needs.
2-1 GDLA officials acquire the knowledge of the D&D Policy and local administration.
2-2 Provincial Governors and Vice Governors understand the D&D Policy and the roles of local
administration.
2-3 Officials of provincial offices understand the D&D Policy and the roles of local administration.
2-4 Provincial councilors and senior council personnel in capital and all provinces understand organic law,
related guidelines rules and regulations.
(4) Input (As of June 2009)
Japanese Side : Expert (under calculation), Trainings in Japan (Total 39 persons), Equipment (US$ 124,816),
Local Cost (under calculation)
Cambodia Side : Office Space, Facilities and Equipment
II. Evaluation Team
Members of Evaluation<Cambodia Side>Team H.E. Mr. Prum Sokha, Project Director, Secretary of State, Ministry of Interior (MoI) H.E. Mr. Sak Setha, Project Manager, Secretary of State, Ministry of Interior (MoI) H.E. Mr. Leng Vy, Director General, General Department of Local Administration(GDLA) (Counterpart)<Japanese Side> Team Leader : Yukiharu Kobayashi, Senior Representative, JICA Cambodia Office Local Administration : Hirofumi Kawakita, Senior Advisor on Local Administration,
JICA Headquarter Planning : Minori Terada, Project Formulation Advisor (Governance), JICA
Cambodia Office Evaluation Analysis : Chieko Matsubara, Consultant, C.D.C International
Cooperation

Period of Evaluation

20-26, June, 2009III. Results if Evaluation
3-1. Achievements
3-1-1 Achievements of Outputs

Type of Evaluation

Terminal Evaluation

Except on indicator described below, outputs are steadily being achieved.
Improvement of understanding level through training of GDLA officials (Indicator: Average score between pre-test and post-test of
GDLA officials improves by 30%) has not reached to the expected level. Analysis of reason and consideration of countermeasures whichshould be taken in the 4th training of GDLA officials are required.

3-1-2 Achievements of Project Purposes
Achievements of Project purposes are indicated in table 1.
Project purpose 1 “Officials of GDLA will improve the capacity of training management” is likely to be achieved without any impeding
factors, judging from the following facts; the capacity of GDLA T/F have already almost reached the level that they can manage trainings
by themselves without JICA experts’ support according to the self-evaluation sheet of GDLA T/F in the 3rd phase; Even after reducing
JICA experts’ support, trainings are managed without trouble and participants’ satisfaction level remains high.
Project Purpose 2 “Officials in charge of local administration at national level and provincial level will improve the knowledge of
local administration” is achieved in the light of relevant indicators.

Table 1 Achievement of Project Purposes
Project Purposes 1: Officials of GDLA will improve the capacity of training management.
2: Officials in charge of local administration at national level and provincial level will improve
the knowledge of local administration.
Indicators

Achievements

Sources

1-1 GDLA T/F is able manage theSelf-evaluation : P.1 0.9P.2 1.9P.3 2.8 (out of 3)

Self-evaluation bytraining by themselves.

*3.0 (full grade) is the stage that “is able to do by himself/herself

review sheet, experts

without support”.
Most Achieved.
1-2 Training management by GDLA

Average score during 2008 is 8.7.

Questionnaire

Average score during the 3rd phase is 8.6.

Questionnaire

The average improvement level between pre-test and post-test

Pre-post test,

T/F is evaluated at more than 8 out of 10(full grade) in the evaluation system.
2-1 The average grade of satisfaction oftrainees is more than 8 out of 10 (fullgrade) in the evaluation system.
2-2 Knowledge on local administrationrdof officials improves.

during the 3 phase is 31.6%.

Questionnaire

3-1-3 Achievement of Overall Goal
It is necessary to review the verifiable indicator considering the progress of D&D reform.
Table 2 Achievement of Overall Goal
Overall Goal: Human resources involved in local administration will be developed through training.
Indicator

Achievement

The number of provincial and district
officials

trained

under

the

newly

developed training system for local
administration

SourceGDLA

3-2. Summary of Evaluation Results
3-2-1 Evaluation by 5 Criteria(1) Relevance
Judging from the factor below, it is reasonable to conclude that the Project is relevant.
The Royal Government of Cambodia expressed the promotion of Decentralization and Deconcentration (D&D)
in the Rectangular Strategy announced in July 2004, approved Strategic Framework for D&D in June 2005, andenacted the Organic Laws in May 2008, which defines the establishment of council within 1 year in the
Capital/Province and Municipality/District. Based on the Organic Law, the 1st election of Capital/Provincial andMunicipal/District councilors was conducted in May, 2009, and the preparation of the 10 ear National Implementation
Program is now ongoing. Human resources development is expected to be one of the key issues in the Program. Also,
capacity development of local administration for the exercise of transferred functions is critical for the implementationof D&D reform. This project, targeting the capacity improvement of officials in training management for humanresources development in local administration and the improvement of knowledge of officials in charge of local
administration, is in line with the policies of the Government of Cambodia.
With regards to Japanese aid policy the importance of human resources development and the necessity of theenhancement of public administration to cope with serious lack of human resources caused by the prolonged civil war
are expressed since he stage of preparation of the Project, targeting the capacity improvement of officials in training
management for human resources development in local administration and the improvement of knowledge of officials
in charge of local administration, is in line with JICA’s mission 2 “reducing poverty through equitable growth” andmission 3 “improving governance”.
With regards to the relevance to the needs of target group, satisfaction level of participants of the trainings in the
Project has been always over 80%. Well elaborated training plans developed after training needs assessment have been
contributed to this result. This indicates that the Project has been successful in providing trainings which match theneeds of participants. Relevance is also supported by the following two facts; other development partners have notbeen supported the area of trainings of laws and regulations for local administration, which has been latent need;Trainings for councilors who have not had relevant experience nor opportunities of training on practical topics
necessary for starting and steering councils after the firsts Provincial/District election in a timely manner.
With regards to the relevance of the Country-focused Training Course 1 on Local administration, it was crucial forthe target group to have a future picture / road map of D&D policy through the observation of the other country’s
experience in local administration and decentralization because Cambodia unfortunately has lost their own experiences
and knowledge due to the prolonged civil war.
From this point of view, the Japanese experiences in local administration and decentralization, which can provide aplenty of cases and lessons learned through many different experiences in local administration from Meiji era to thepresent, have been useful and suggestive. Also the history of Japanese rapid economic growth including Hiroshima
rehabilitation from the war-torn country facilitated to understand the above experiences and lessons learned.

(2) Effectiveness
It is reasonable to conclude that the effectiveness of the project is assured, based on the understanding about theachievements mentioned below:
Project Purpose 1 “Officials of GDLA will improve the capacity of training management “and Project Purpose 2”
Officials in charge of local administration at national level and provincial level will improve the knowledge of local
administration” is achieved or likely to be achieved without any impending factors.
Although some inputs from outside of the Project are observed, still it is reasonable to take that the achievementsof the Project Purposes are mostly attributed to the activities of the Project.
(3) Efficiency
It is reasonable to conclude that the efficiency is largely assured, considering all the points below:
Input are done largely according to the annual implementation plans and utilized for the achievements of outputs.
Training of Sub-national level to councilors is conducted in quite a timely manner. Since training materials for
Provincial Councilors are used for District Councilors as well, it is expected that the curriculum was used in very
efficient manner.
Areas benefitted from the Project cover whole the nation and the number of beneficiaries reach to a certain level.
Achievements of the Project has broad utility, as human resources that are capable for reviewing training
curriculum and materials are developed and also necessary manuals for the review are prepared.
With regards to the Country-focused Training Course 1 on Local administration, the Supporting organization in
Japan smoothly implemented the course in Phase 1 to 3 based on the past similar experience of the training course
implementation for the Cambodia civil servants. However, if all stakeholders made more consistent effort of thearrangement of the course, the implementation would have been more efficient.
(4) Impact
The following several positive impacts have been observed.
First, it is pointed out as positive impact that the importance of development of system and organizations for thehuman resources development in local administration has been more recognized. Second, information collected andanalyzed through situation analysis on local administration are utilized in the process of the formulation of the NPSNDD and recommendations in the analysis reports are likely to be reflected to the National Program. Third, training
materials developed and trainers trained through activities of PILAC are utilized in trainings of MoI and the otherdevelopment partners. Thus it was possible to use a part of training materials for Provincial Councilors for District
Councilors are well. Fourth, Japanese local administration system is referred to as one of the information sources indrafting laws and developing system through investigating and considering the Cambodia system in comparison withsystems in other countries. In a process of D&D reform, Japanese system was referred to in many occasions. Lastly,
GDLA T/F members have growth up to core staffs of GDLA, playing important roles not only in trainings but various
tasks, including activities directly related to D&D reform process.
While, negative impact has not been observed.

Considering all the above mentioned factors, it is almost certain that activities are continued to achieve the overall
goal of the Project “Human resources involved in local administration will be developed through training” in various
occasions by various stakeholders. It is considered to be appropriate to set an adequate indicator of overall goal after
the whole vision of National Program is made clear.
(5) Sustainability
At individual level, various efforts to make the transferred techniques and knowledge firmly grounded can beobserved. As the consequence, human resources equipped with strong will to commitment have been developed which
will be the core in the process of mid to long term human resources development. It is considered that these corepersons will contribute to human resources development for local administration in their own offices.
While, turning to sustainability of institutional and system level, challenges are pointed out as mentioned below.
As GDLA T/F is composed of members from various departments under GDLA, activities of the Project are
additional to their original tasks. GDLA T/F will be dissolved along with the completion of the Project and threeorganizations related to training will succeed some of the trainings of PILAC, as organizational setting is now in thetransitional stage for the implementation of D&D reform in the direction of formulating one organization in charge ofhuman resources development. It means that the systematic utilization of the achievement of the Project will bepossible after the establishment of the system for human resources development for local administration. It is a positive
sign that a consensus is being formed that the establishment of human resources development system is necessary forthe promotion of D&D reform. Along with the progress of the National Program, GDLA T/F member will be supposed
to play important roles for human resources development. This will indicate the possibility of expression ofsustainability in the future.
3-2-2

Factors that promoted realization of effects

2 points are identified as factors contributing to the achievement of the project purpose and the outputs in theprocess of the implementation of the Project. One is continuous efforts of collecting information of changes ofsituation around the Project in order to check and change the direction of the Project strategically. The Change of PDM
to add activities of providing trainings to newly elected Provincial Councilors is a good example to explain about thiseffort. The order point is efforts and ingenious attempts made in training activities of the Project for the improvementof the quality.
The contributing factor incorporated in the project design is conducting situation survey on local administration.
This survey enabled the Project team to provide adequate training that better match the needs of the beneficiaries.
3-2-3

Factors that impeded realization of effects

A factor which was defined in the project planning stage and largely affected to the implementation of the Projectis institutional system for implementation of the Project. GDLA T/F members, who are counterparts of the Project, areselected from the various departments under GDLA. This has contributed to having highly-talented members in GDLA
T/F, bringing along experience from each department, and also building footholds in each department under GDLA forthe human resources development in the future. While, this also leads to the recognition of GDLA T/F members andeach departments under GDLA that activities of the Project are additional to T/F member’s original tasks. As theconsequence, the Project has faced several difficulties including coordination of the schedule of T/F members with
their original tasks, unclear command line, different level of contribution to the project activities by T/F members, andsubsequent difficulty of team building. Even with these difficulties, the Project has been successful in achieving
outputs and project purposes because of the will of senior officials of MoI, strong commitment of T/F members who
provided much contribution to the Project and adequate support by JICA experts.
It is inferred that one of the backgrounds of this implementation system is fluid situation amid the D&D reformthat creates uncertainty of full version and difficulty in establishing stable organization. The necessity of theestablishment of an organization in charge of human resources development for local administration is clearlyrecognized. Based on the framework of the National Program, the best system for human resources development for
local administration should be elaborated. It requires follow-up of the progress of D&D reform and the contents of the
National Program.
3-2-4

Conclusion

The Project has enough relevance and effectiveness and has been achieved considerably positive results indevelopment of impact. Also, the Project continues to be efficient in general. With these reasons, the Project is wellmanaged and has achieved its purposes. While, is assuring sustainability in terms of institution and system, the Project
was implemented before the establishment of the organization that sustains the continuation of the achievement of the
Project. As the consequence, the means to verify the achievement of the overall goal need to be reviewed.
3-3 Recommendations
Recommendations to the project management system based on the above mentioned achievements and evaluation
by five criteria are as stated below.
3-3-1 Recommendation on what should be done during the remaining project period(1) Review of the indicator of the overall goal
Along with the change of external condition, the indicator of overall goal in current PDM has come to beinadequate to verify the achievement. It is required to review and discuss agreeable and verifiable indicators before thecompletion of the Project, considering the future direction. (e.g., adoption of impact survey that is already utilized as apart of the project activities, tracking the extent of utilization of the achievements of the Project by each counterpart.)(2) Provision of Support to each counterpart
It will take some more time for the system to be developed in which the achievements of the Project is embedded
and succeeded after the completion of the Project. For the time being, each counterpart is expected to keep and spread
what he/she acquired through the activities of the Project. It is desirable to make further efforts to ensure the capacityand knowledge of each counterpart and to provide support for each counterpart to utilize and spread that he/she
acquired through the Project in his/her office, if any and if needed.

(3) Follow-up of the progress of D&D
It is desirable to check the progress and contents of the National Program and continue providing recommendationfrom the Project.
3-3-2

Recommendation on what can be implemented during the three years after the completion of the
Project(1) Enhancement of Sustainability
It is recommended that key members of the GDLA Task Force would be involved in training management at theoffice, department or institution with the function to manage training programs, including training of trainers, under
the D&D reform. Which office, department or institution would hold the function to manage training programs will bedecided under the review of functions and structure of the MoI which has been launched recently at the MoI in linewith the D&D reform.
(2) Crystallization of the overall goal
The Project has treated topics which urgently needed to be taught suitable for the current situation in Cambodia,
mainly focusing on the Organic Law, which were practical and indispensable topics for the operation of local
administration and were appreciated by the trainees as important contents for local administration.
After the completion of the Project, there will be topics which should be taught to the targeted groups in timely
manner as well, while the process to establish the human resources development system should be continued. The
Royal Government of Cambodia is considering the 6 program areas below in the framework of the National Program
so that it is recommendable to pay attention on training topics:
Program Area 1 : Institutionalize the Governance of Sub National Administration (SNAs) in Accordance with the
Principle of Unified Administration;
Program Area 2 : Establishment and Operation of Human Resource Management and Development Systems
Controlled by SNAs;
Program Area 3 : Comprehensive Program for the Transfer of Functions;
Program Area 4 : Establishment of Sub-National Budget, Financial, and Property Management System;
Program Area 5 : Strengthening of Democratic Principles through Clear Lines of Downward Accountability; and,
Program Area 6 : Establishment of Institutional Enabling Environment(3) It is desirable that a long-term human strategy to enhance D&D reform in Cambodia is to be formulated withpaying an attention on the progress of the above mentioned programme areas.
3-4 Lessons Learned

Lessons learned from the Project are stated below.
3-4-1 Consideration for assuring sustainability at the stage of Project planning
The system for project implementation by formulation project implementation unit which is called task force was
fixed before start of the Project. As the consequence, assurance of sustainability in terms of institution and system has
remained to be a challenge. This also caused several difficulties in the implementing process of the project activities. It
is necessary to consider the incorporation of mechanism to ensure the sustainability into project design at the
preparation stage of project.
In general, in case of a project which makes inputs to formulation of institution or reorganization of existingorganizations, implementation system of task force style might work very effectively. While, a project which need to
be anchored to stable organization in making inputs or transferring techniques.
3-4-2 Project design and Project implementation system under fluid condition
From the stage of project preparation, the fluid external situation surrounding the Project has been recognized, andit was pointed out that flexible review and modification of PDM is required when it is necessary. In practice, theProject has been implemented according to the principle, ranging from a major change of PDM to slight adjustment of
the contents of activities. It is notable that continuous to this flexible implementation of the Project.
In the future, supports in the transitional stage from reconstruction to development will be increased in many partsof the world. The fact that the Project has been successful in achieving outputs and project purpose by flexibly
changing project design and putting emphasis on information collection will present a useful lesson to projects under
the similar situation.
3-4-3 Technical assistance project evaluation under aid coordination
The Project was designed and implemented with the consideration to avoid overlapping with supports from otherdevelopment partners and keep coordination.
Recently, aid coordination is common in most countries and synergy effect with the other development partners
and the other projects is more pursued. Within this movement, it is getting difficult to extract and evaluate only theachievements of one project. Especially, in the case of projects that pursuit human resources development as a final
goal, which take long time to be achieved and realized, it is very difficult to exclude the impact from outside inevaluation. Further, the effort to extract only the contribution from the Project and measure the share of contribution
does not seem to have so significant meaning. It is worth considering reviewing that concept of project evaluation
based on a point of view of seeking fundamental value in a long timeframe.