Summary of Terminal Evaluation
I.

Outline of the ProjectCountry: Royal Government of Cambodia

Project Title: Strengthening of Construction Quality
Control Project

Issue/Sector: Transport

Cooperation Scheme: Technical Cooperation Project

Division in Charge: JICA Cambodia OfficeTotal Cost： 430 million yen (as of Terminal Evaluation)

Period ofMay 2009 – October 2012

Partner Country’s Implementing Organization:

Cooperation（42 months）

Ministry of Public Works and Transport （MPWT）
Cooperation Organization (Japanese side):
Ministry of Land, Infrastructure, Transport and Tourism

1-1 Background of the Project
In order to ensure the efficiency and sustainability of social and economic development and poverty
reduction, the Ministry of Public Works and Transport (MPWT) has worked intensively on the rehabilitation
and reconstruction of infrastructures such as roads and bridges with financial and technical support fromdevelopment partners and/or national budgets. Regarding the construction projects from the development
partners, international consultants have assured quality control by accommodating to the international
standard. On the other hand, the national budget construction projects that were implemented by thegovernmental organizations under MPWT such as the Road Infrastructure Department (RID), Heavy
Equipment Center (HEC), and each provincial Department of Public Works and Transport (DPWT) havebeen inadequate and less effective in terms of quality control of construction. In those national budget
projects, material testing and adequate construction procedure seem to be neglected in the development ofnational road network.
Based on the above-mentioned backgrounds, The Royal Government of Cambodia (RGC) requested
the implementation of the Technical Cooperation Project (TCP) to the Government of Japan in order toestablish an adequate Quality Control and Quality Assurance (QC/QA) system for roads and bridgesconstruction. In response to the request, the government of Japan decided to implement the project forStrengthening of Construction Quality Control (SCQC).
1-2 Project Overview(1) Overall Goal
Quality and cycle of road and bridge construction and maintenance are improved.
(2) Project Purpose
Capacity of MPWT engineers in the quality control for road and bridge construction and maintenanceundertaken by force account is improved through application of the Quality Control and Quality Assurance(QC/QA) system (Standards Guideline, Regulation, Trainings, Standard Drawings).
(3) Output
Output 1）

Standard Guideline and Regulation for quality control of road and bridge construction andmaintenance are established.

Output 2）

Centralized and integrated management system of completion documents such as drawing
and reports of construction is established.

Output 3）

Technical trainings are implemented by MPWT lecturers.

(4) Inputs
Japanese sidea) Personnel:

Long-term Experts: 2 （75.78MM）b) Equipment: US$ 180,373

Short-Term Experts: 9 areas （72.63MM）c) Training in Japan: 11 CPsid) Local Cost: US$ 285,000

Cambodia sidea) Personnel: 16 CPsII.

b) Office space: Expert office in MPWTc) Local Cost: US$ 2.96 million

Evaluation TeamMembers

Leader: Mr. Hitoshi HIRATA (Senior Representative, JICA Cambodia Office)Construction Quality Control: Mr. Hozumi KATSUTA (Senior Advisor, JICA)
Evaluation Analysis: Dr. Keiko WATANABE (Senior Researcher, FASID)
Evaluation Planning 1: Mr. Masahiko EGAMI (Representative, JICA Cambodia Office)Evaluation Planning 2: Mr. Say BORA (Staff, JICA Cambodia Office)

Period of Evaluation

20-30 August 2012

Type of Evaluation

Terminal Evaluation

III. Results of Evaluation
3-1 Achievement of Outputs
3-1-1Output 1: Standard Guideline and Regulations for quality control of road and bridge
construction and maintenance are established.
The Evaluation Team confirmed the level of achievement of Output 1 was high despite some delays

in conducting pilot projects. But these delays did not undermine the achievement of Output 1.
Objectively Verifiable Indicators (OVI)

Achievement

By the end of the Project, the second
edition of SG and RG are produced afterincorporation of the lessons learned fromthe pilot projects.

・ 5 pilot projects which applied SG/RG have been
conducted. One of them (NR71 in Kampong Cham) has
experienced all the process of SG and the necessary
documents have been compiled as a completion
document. Other pilot projects will be completed by theend of December 2012.
・First edition of SG/RG (both English and Khmer) wasformulated in August 2010 and revised 2nd edition wasformulated in August 2012 after incorporated lessons
learned from the pilot projects. Khmer version of SG/RG
was translated by the CPs.
・Equipment for various kinds of test for construction has
been procured and installed in the laboratory.

3-1-2

Output 2: Centralized and integrated management system of completion documents suchas drawing and reports of construction is established.
The Team confirmed that Output 2 has been achieved with utmost efforts both from Japanese andCambodia sides. However, further commitment needs to be ensured for sustainable use of databasesystem and library management.
Objectively Verifiable Indicators

Achievements

Database system is completed and・A simple database management system was developed

information of Database is utilized byfor as-build drawings, standard drawings and books at theMPWT staff by the end of the Projectlibrary. The database was accessible to MPWT officials
through MPWT intranet.
・ As-build drawings were collected as many as possible
and converted into electronic format for database use.
・Standard drawings which were developed and compiledin the Output 3 were also installed into the database.

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・Library was renovated twice and completed in April 2012.
All necessary books and documents were sorted out withlabeling.
・Operation and User manuals were developed in July
2012.
3-1-3

Output 3: Technical trainings are implemented by MPWT lecturers.
The team confirmed that the activities under Output 3 were implemented almost as scheduled andthe level of achievement of Output 3 was high.
Objectively Verifiable Indicators

Achievements

Technical training developed by the・The training plan was prepared in February 2010 afterProjectis

conventional

incorporated
training

intotheassessing MPWT capacity needs and current training

programbyprogram.

Department of Personnel & Human

・Two Trainings of Trainers (TOTs) were conducted inResources.

2010 and 2012 for 13 MPWT officials.
・QC/QA training subjects were incorporated into theMPWT conventional training course. Trainings have been
conducted since November 2011 by MPWT trainers.
・As of August 2012, 6 training workshops for provincial
DPWT staff have been conducted by trained MPWT
trainers other than above conventional trainings.
・Altogether 200 DPWT engineers in total have been
trained on QC/QA system by the project.

3-1-4

Other Activities to Contribute to the Outputs
The Project conducted several additional activities contributed to strengthen the above three Outputs.

Those activities included Technical workshops held by Japanese experts, Joint seminar organized by
Japan Society of Civil Engineering and Institute of Technology of Cambodia, Site observation to theon-going Japan’s infrastructure project (“Rehabilitation of National Road 1” and “Construction of Neak
Loeung Bridge”), and Annual Technical Report and Seminar. These activities stimulated counterparts
intellectually.
3-1-5

Achievement of Project Purpose“Capacity of MPWT engineers in the quality control for road and bridge construction andmaintenance undertaken by force account is improved through application of the Quality Controland Quality Assurance (QC/QA) system (Standard Guideline, Regulation, Trainings, StandardDrawings)”
Achievement of the project purpose is promising. Throughout the project activities such as
formulation of SG/RG, teaching QC/QA system as trainers, and actual implementation of force accountprojects, the capabilities of MPWT counterparts as well as DPWT engineers especially in the provinces
where pilot projects were conducted, have improved in the quality control in road management. In addition,easier access to as-build drawings and standard drawings through database enhanced the QC/QA system
in designing and maintenance. In order to make full use of the achievement of the project, it is strongly
recommended that MPWT should establish measures to spread the effect to all DPWTs across the country
in sustainable manner before the project ends in cooperation with the Japanese experts.

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Objectively Verifiable Indicator

Achievement(1) By the end of the project, the revised

・At the time of the terminal evaluation, the projects which

SG and RG are applied to at least three

apply SG/RG has not been identified yet. However, theforce account projects of roads andteam confirmed MPWT’s plan to conduct at least one

bridges starting in 2013 (new construction

force account project per each DPWT applying SG/RGor major rehabilitation under periodical

and its strong will to implement.

maintenance) in three provinces except in
the two pilot provinces.
(2) Trainers received TOT are assessed ・Through the preparation of teaching materials and actualand trainees who participate the annual

teaching experiences, the MPWT trainers upgraded theirtechnical training in year 2012 improveknowledge and skills on SG/RG as well as teaching

the knowledge level of quality control andmethod, although continuous improvement needs to bescore 70 at the post test.

made.
・The results from the comparison between pre- andpost-test showed the positive improvement of theparticipants. However, the average score has not reachedto the target point yet, ranged from 54 to 68 depending on
the training sessions.

3-2 Implementation Process
Due to late procurement process of Japanese short-term experts and assignment of CPs, the project
structure was established only in January 2010, which made some delays in the activities especially in thest

initial stage of the project. The commencement of the pilot projects in the 1 phase also affected by thistogether with the long dialogues with MEF and flood. However, it was noted that active involvements in theproject activities from CPs especially after the mid-term review made possible to achieve the project
purpose despite their heavy workload from other duties. As a result, the Cambodian side increased theownership of QC/QA system and gained the knowledge and skills for road and bridges.
The communication between CPs and Japanese experts has been made smoothly and informationon the Project such as progress and issues was shared at regular meetings and through e-mails.
3-3 Evaluation Results by Five Criteria(1) Relevance (High)The relevance of the project is highly relevant with following points.
The Project was well aligned with Cambodian overall development strategy of “Rectangular Strategy
II (RSII: 2008) and the national five-year development plan (NSDP 2006-2010). The physical infrastructuredevelopment for transport is one of the Cambodia’s priority areas stated in both RSII and NSDP. As theincrease in the maintenance cost of roads and bridges pressed the national budget, improvement of thecapacity of MPWT on quality control was the urgent needs especially for force account projects which thequality control practices have not been made in an appropriate manner. In this regard, the Project met theneeds of MPWT. Furthermore, the Project was also in line with the Japan’s Assistance Policy for Cambodia(2004) and JICA’s Country-specific Implementation Plan (2007).
(2) Effectiveness (High)The achievement of project purpose is promising. In regard to actual application of SG/RG into force
account projects, the project made significant difference in QC/QA system. The changes were mainly seeniv

in three areas, i.e., improvement of pavement design by quality testing before the construction, formulationof the work execution plan, and preparation of record documents of quality control activities. Those
practices have not always been done before. In addition the clarification of division of duties among
Employer (Party A), Executor (Party B), Supervisor (Party C) and Inspector (Party D) in SG/RG clarified therelationship among them and increased transparency. Additionally, the Team also confirmed by theinterview with MPWT CPs that easy access to as-build drawings and standard drawings through databaseenhanced the effectiveness. Therefore, effectiveness of the project is high.
(3) Efficiency (Fair)Some factors that affected efficiency were observed, although they did not impair the realization ofstOutputs. It was regrettable that if the 1 phase of pilot projects could have started earlier, all pilot projects
would have been completed within the period of project. While sufficient information and lessons learnt
were obtained through the current status of pilot projects to revise SG/RG, if the project was implemented
as planned, more effectiveness could have realized through OJT at the whole process of all pilot projects.
Most of the inputs from Japanese side including dispatching the experts, procurement of equipment,
provision of training in Japan and local cost have been made as planned. However, the initial inputs ofshort-term experts could have made earlier to produce more fruitful outputs. From the Cambodian side,although main counterparts actively involved in the project, there were some turnover of counterparts
especially at the initial stage of the project, which reduced some efficiency.
Therefore, efficiency of the project is fair.
(4) Impact (Relatively High)It is expected that Overall Goal is likely to be achieved if the strong initiative from MPWT weredemonstrated in a sustainable manner even after the project terminates.
On the other hand, some positive impacts were observed. The activities such as technical seminars
and giving opportunities for presentation their papers upgraded the skills and knowledge of MPWT/DPWT
engineers in the areas other than quality control. Throughout this project, MPWT raised awareness on theroles of counterpart in the technical cooperation project (TCP) since they were used to receive assistancein the form of Grant Aid project and development study and TCP was the first experience for them. Inaddition, the project built a network among different departments of MPWT by involving various MPWT
offices in relation to force account projects. No negative impact has been observed.
(5) Sustainability (Relatively High, but some concerns remains in financial aspects)
Sustainability of the project effect is relatively high, however, some concerns in financial aspects havebeen observed in terms of library and database management.
The network established among different departments of MPWT by the project will become afoundation of implementation body of quality control. It was confirmed that most of knowledge and skills
transferred through the project activities have already been adopted in many CPs. If those trainedengineers under the project remained and served to expand the knowledge and skills for all provinces, thetechnical sustainability will be ensured.
Financial sustainability is ensured to a certain degree to conduct new force account projects applying
SG/RG. However, in terms of the management of library and database system, there is some concern insustainability. It was recommended that necessary budget should be secured for it.
Political aspects are formidable since upgrading physical infrastructure is still one of the high priority
areas of RGC.

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3-4 Conclusion
The achievement of the project purpose is promising with utmost efforts from both Cambodian sideand Japanese experts in good manner. The project is highly relevant with the policies and development
needs of RGC, as well as Japan’s development assistance policy to the country. Effectiveness and impactof the project are high through the introduction of significant changes in QC/QA system. The changes aremainly seen in three areas, i.e., improvement of pavement design, formulation of the work execution plan,and preparation of record documents of quality control activities. All three areas have not been conducted
appropriately before. The efficiency is fair from the timing of the assignment of Cambodian CPs andJapanese short-term experts, as well as delay in commencement of the pilot projects. Sustainability of theproject is relatively high with some concerns in financial aspects for library and database systemmanagement.
3-5 Recommendations
The following recommendations are made from the terminal evaluation team.
（1） Prakas (Ministerial ordinance) on SG/RG should be issued and a support mechanism on qualitycontrol should be established by the leadership of PWRC within the project period.
（2） Sustainable management of database system should be ensured.
（3） Technical training for MPWT/DPWT public work engineers should be enhanced.
（4） Public relations should be strengthened.
3-6 Lessons Learned（1） Efforts to secure sustainability from the viewpoint of finance should be made.
（2） Ensuring adequate budgetary allocation from Cambodia side（3） JICA should consider the timing of procurement of short-term experts and plan well in advance before
the project starts.

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