終了時評価調査結果要約表（英文）I. Outline of the ProjectCountry: Cambodia

Project title: The Project of Strengthening of
CMAC’s Function for Human Security Realization

Issue/Sector: Peace-building/

Cooperation scheme: Technical Cooperation

Planning-Government
Division in charge: JICA Cambodia OfficeTotal cost: 260 million yen (as of the terminal
evaluation)

Period of

4 April 2008 - 30 September 2010

Partner Country’s Implementing Organization:

Cooperation

R/D: 27 December 2007

Cambodian Mine Action Centre (CMAC)

1-1

Background of the ProjectLandmines and Explosive Remnants of War (ERW) remain in Cambodia as a lethal legacy of the three
decades of the war and civil conflict lasting until as late as 1998. More than 40% of all Cambodian
villages are said to be affected by landmines and Unexploded Ordinance (UXO) and more than 5
million people are said to face threat of them today. This has had a severe socio-economic impact on
Cambodia.
Demining Activities in Cambodia is mainly handled by Cambodian Mine Action Centre (CMAC)
which is a governmental organization as well as Royal Cambodian Army Force (RCAF) and NGOs andaround 15 % of mine contaminated areas are said to have been cleared to date.
Japan has been supporting CMAC since 1998 through provision of equipment (mine detectors,
demining machines and vehicles etc.), financial support to demining activities through internationalorganization or grass-roots grant aid scheme, dispatching of JICA experts in maintenance of equipment
and information management etc. All these supports had been implemented separately which made itdifficult to see how these assistances contributed for streamlining of management ability of CMAC,
promotion of demining activities with safety.
In order to see more visible and tangible effect, JICA and CMAC started a Technical Cooperation
Project, “The Project of Strengthening CMAC’s Function for Human Security Realization” in April
2008, aiming at realization of CMAC Five-Year Strategic Plan2010-2014. This project focuses on threemain components, namely 1) establishment of Information System, 2) Maintenance of Machinery andEquipment, and 3) Training Management.
1-2

Project Overview(1) Overall Goal
To realize the target of “CMAC Five-Year Strategic Plan 2010-2014”(2) Project Purpose
Strengthening the function of CMAC and technical transfer system for demining operation(3) Outputs
Output1: Data management and communication within/between HQ and branch offices becomes
effective and efficient through improvement of information systems.

xii

Output 2: Maintenance and management systems of machinery and equipment are improved.
Output 3: Function and capability of Training Centre are improved.
(4) Inputs
Japanese side:
Dispatch of Experts: 2 Long-term experts (Chief Advisor/Cooperation Management and Training
Management Advisor/Project Coordinator) and 2 short-term experts (Information System Advisorand Workshop Management Advisor).
Equipment: network devices, computers, machines and tools for maintenance, AV devices etc.
Training in Japan: 3 C/Ps (February-March 2010) participated and the same training planned inAugust 2010
Third Country Training: 4 C/Ps participated in Kenya (HPSS) and 3 C/Ps participated in Colombia(PAICMA)
Cambodian side:
Appointment of Counterparts: A total of 24 persons
Project Office and Facilities: office space and facilities provided (HQs, Central Workshop, Training
Centre)II. Evaluation Team
Member(1) Leader: Mr. Yukiharu KOBAYASHI (Senior Representative, JICA Cambodia Office)(2) Peacebuilding: Ms. Eri KOMUKAI (JICA Senior Advisor)(3) Cooperation Planning: Ms. Naoko KAMEI (Representative, JICA Cambodia Office)(4) Evaluation Analysis: Ms. Yuko OGINO (KRI International Corp.)

Period of
Evaluation

27 June to 9 July 2010

Type of
Evaluation

Terminal Evaluation

III. Results of Evaluation
3-1

Performance of the Project(1) Achievement of Outputs
1) Output-1 (Information Management System):
All the 3 systems (Operation Database System, Fixed Asset Trucking System, and Human Resource
System) have been developed/improved and now in operation almost properly in HQs, DUs, andTraining Centre, Central Warehouse and Central Workshop where appropriate, except for just 1 module(Land Release) which came up as a new additional to Operation Database System.
Double data entry and double data management have been considerably improved between DUs andHQs, and within HQs as well. With the Project inputs, almost all the DUs and HQs are now using
database system instead of EXCEL, and using electronic data of export files instead of paper-based data
either by e-mail or using USB. As a result, accuracy and security of data have been enormously
improved, leading greater efficiency in information management in CMAC.
System down time has been reduced through upgraded server-based network system which has madethe system technically more solid. In addition, deployment of full-time MIS staff at each and every DUxiii

to respond to problems timely, setting up UPSs for stabilizing electric supply and developing technicalcapacity of concerned staff through various trainings have benefited the system management a lot tobecome more efficient and has contributed to the reduction of system down time.
2) Output-2 (Maintenance Management System):
Knowledge and skills of all the mechanics in Central Workshop are estimated to be improved
considerably through constant and responsive advice, OJT and a set of trainings both in-country (7subjects for theoretical foundation) and in Japan. The Project also introduced an important practice touse manuals, to refer to guidelines and catalogues to ensure the quality standard of maintenance. It isalso noted that the accident rates at Central Workshop have been zero during the Project period while
there were some cases before the Project. Overall, C/Ps and the Japanese expert share the same opinion
that Central Workshop technical level is estimated to be improved to a great extent.
The time (days) required for maintenance is estimated to be reduced and consequently increased
availability rates of machineries and equipment. The Project has introduced the system of recoding data
constantly and precisely on maintenance time for each item, but at the time of Terminal Evaluation, it is
too premature to compile the data and analyze them. Instead, through looking at the process of technicalinputs by the Project as well as the interviews/questionnaires from Central Workshop and UNDP, it canbe assumed that Central Workshop has demonstrated better situation in reducing the required time forrepairing and increasing the availability rates. In addition, a List of CMAC Main Equipment 2008, 2009
and 2010 shows that most of the items are in-service. For those un-service/broken (eg. Brush Cutters,
Metal Detectors, Radios) are mainly due to life-time expiry, and retired and/or replaced by new models.
It should be noted that the Project was originally supposed to cover Central Workshop, HQs and DUs.
However, through initial situation analysis, it was decided to concentrate on the capacity developmentof Central Workshop as a priority and assistance to HQs and DUs is therefore limited.
3) Output-3 (Training Management System):Training Management Cycle has been introduced to Training Centre of CMAC for the first time in asystematic manner by the Project. The achievements in this regard include 1) Training Management
Committee and Training Support Unit organized, 2) Training Needs Assessment conducted, 3) A totalof forty-six (46) Standard Training Course Curriculum organized and documented, and 4) Training
Management Manual prepared. For training materials, in addition to the above curriculums, there arefor example handouts, an exhibition room (decorating by panels of various types of landmines andmodels) and training tools for EOD.
Training Centre has been upgraded with supplies of various AV training equipment and computers
necessary for conducting effective trainings. Instructors’ presentation skills have also been improved
through trainings on AV teaching aids and teaching methods, which the instructors highly appreciate.
Lessons using AV materials (pictures, photos, figures, video films etc.) are assumed to greatly enhance
training efficacy compared to the paper-based trainings previously done, for all the training participantsin general and for non-literate participants of many deminers in particular.
Regarding networking, rather than building wider partnerships with similar organizations as many as

xivpossible, the Project envisaged Kenya and Colombia as most feasible countries for South-South
cooperation and focused on strengthening relationship with them. As part of the third country training,
C/Ps and Training Management Advisor visited the two countries. CMAC also hosted training
programme for PAICMA, Colombia June 2010, and planned to have another 2 programmes (October
2010, June 2011). The experience of such has helped CMAC to prepare training resources and to gain
know-how and experiences that made CMAC become more confident for moving forward to work forSouth- South Cooperation.
(2) Achievement of Project Purpose
The Project Purpose has been and is likely to be achieved in light with the objectively verifiableindicators (indictor 1-3 corresponding with each Output).
1) Indicator 1 (Output 1) : High
Database systems (Operation Database System, Fixed Asset Trucking System, and Human Resource
System) have been developed and used almost properly at HQs, DUs and so forth. In addition,
upgrading network and computer-related devices, posting full-time MIS staff in all DUs, and training of
MIS staff have made CMAC information management capacity more systemized and efficient. CMAC
has reorganized to upgrade database section to database branch where all the operation data iscentralized. More accurate and efficient data management on demining together with databases forequipment and human resources has made CMAC work more effectively and efficiently. It is also notedthat CMAC is responsible for a largest portion of Baseline Survey currently conducted under the
CMAA’s coordination and therefore has an important role to provide accurate BLS data for estimating
the demining needs of Cambodia as a whole.
2) Indicator 2 (Output 2) : High
Maintaining the current availability rate of machineries during the Project period is assumed to be quitepossible through upgrading mechanics’ skills and knowledge, and providing necessary machineries andequipment to Central Workshop. It is envisaged that many of the CMAC demining machineries andequipment are expected to reach a stage of life-expiry in a few years time. Such problem facing CMAC
has become clearer as a result of the Project efforts in developing maintenance management capacity.
3) Indicator 3 (Output 3) : Relatively HighAll the 46 Standard Training Course Curriculum, Training Management Manual and equipment
installed are used and expected to be used properly as they are all well perceived by C/Ps as essential
resources to Training Centre. In addition, instructors’ skills have been improved through using AV
materials, such improvements benefitted the participants (including non-literates) for better learning andunderstanding. It should be noted that the Project does not cover the development/improvement ofcurriculums or training courses. Also, the manual is in the process of finalization and practicing of it isplanned to be after the Project period.

xv4) Overall
The Project Purpose has been and is likely to be achieved by each indicator (Output). However, theattainment of “strengthening the function of CMAC and technical transfer system” at an integrated levelof the 3 Outputs effects is not fully confirmed. The Indicators to measure it are not set in the PDM, butsuch viewpoint may have to be included in assessing the attainment of the overall Project Purpose.
(3) Achievement of Overall Goal
The effect of the Project on Overall Goal is positive by looking at the trends by indicator with mostemphasis on Indicator 2 (operational clearance size by CMAC).
1) Indicator 1:
The number of landmine/ERW casualties in Cambodia is constantly showing downward trends since its
peak in 1996. The recent drop by almost 50% in the number of casualties in 2006 (to 450 cases)
followed by a continued decline every year until 2009 (244 cases) is indicating a positive sign forachieving zero victims in the future. As CMAC shares a largest responsibility of demining operation in
Cambodia, strengthening CMAC capacity is imperative and the Project is contributing toward therealization of CMAC Strategic Plan. (Note: Overall reduction of casualties has other determinantfactors beside from clearance.)
2) Indicator 2:
The recent trends of operational clearance size by CMAC are also positively increasing. Until 2004, thefigures stayed 10 km² per year, but they doubled since 2005 and steadily increased to 27.7 km² (2008)
and 35.5 km² (2009). (Note: An emphasis is placed on Indicator 2 since clearance size is

directly

related to CMAC’s function.)3) Indicator 3 (For Information):
The recent figures of number of Anti-personnel landmines and UXOs found and destroyed show mixed
trends. In 2005, CMAC has destroyed 74,165 landmines as its peak in its history and the numbers aregradually declining. The number of UXOs yearly destroyed is more or less slightly increasing. (Note:
Indicator 3 is not necessarily used for evaluating the productivity of mine action recently and therefore
is referred here just for information.)(4) Contributing Factors
Major contributing factors for enhancing the effects of the Project are as follows:-

Very strong commitment and support as well as sincerely hardworking efforts from CMAC, all the
C/Ps as well as Japanese Experts.

-

A good relationship already established through a long history of Japan-CMAC cooperation.

-

The synergy effects with other Japanese assistances to CMAC in general, and Japan’s General
Grant Aid (machinery and equipment supply) in particular.

xvi

(5) Inhibiting Factors
The factors that may have inhibited for enhancing the effects of the Project are as follows:-

Delay in dispatching the Japanese Experts by about 3-6 months, except for Chief Advisor, andsubsequently delayed the start of the Project in actual terms in the latter half of the JFY2008.

-

Change of Chief Advisor in the middle of the Project affecting on the coherent project management
as well as efficiency of the Project implementation.

-

Six months delay in appointment as well as having two responsibilities as Training Management
Advisor and Project Coordinator, together with the absence of Chief of Training as a C/P at HQlevel until July 2009 affecting the smooth implementation of the Output 3 activities.

-

Chronic shortage of manpower and personnel in Training and R& D department causing manyvacancies and increasing more pressure on the completion of planned activities.

3-2

Summary of Evaluation Results(1) Relevance: Very High
From the viewpoint of necessity, strengthening the function of CMAC is very much needed to achieve
the demining goals of the government. Despite the positive progress in decline of the landmine/ERW
casualties, the number remains still very high, and Cambodia is still ranked among most landmine
affected countries worldwide. Considering experiences and past performances together with manpower,
knowledge and skills, CMAC is expected to continue to perform as a core, governmental demining
organization.
In terms of priority, mine action is one of such sectors of the Cambodian government as reflected in
the Cambodian MDGs, National Strategic Development Plan (NSDP) 2006-2010, National Mine Action
Strategy (NMAS) 2010-2019 and approved extension request of Ottawa Convention until January 2020.
Japanese ODA policies and strategies as well as JICA’s country policy and strategies for Cambodia also
include peacebuilding and mine action as one of the priority areas.
As for the appropriateness of means, 3 areas of information, maintenance and training are all essential
and thus appropriate approach to CMAC’s organizational capacity development. In addition, the Projectis consistent and complementary with other Japan’s assistances (particularly equipment supply throughGrant Aid) as well as with other development partners’ support to CMAC. The Project has utilized
Japanese technical advantages and experiences as well.
(2) Effectiveness: Very High at Output Level
The Project Purpose has been and is likely to be met in terms of 3 objectively verifiable indicators
which basically correspond with each Output. The development of database systems, upgrading networkand computer-related devices, posting full-time MIS staff in all DUs, and training of MIS staff haveallowed CMAC information management capacity more systemized and efficient. Maintaining thecurrent availability rate of machineries is to be met through upgrading mechanics’ skills andknowledge, and providing necessary machineries and equipment to the Central Workshop. All theStandard Training Course Curriculum, Training Management Manual and equipment installed are usedand expected to be used properly. Instructors’ skills have also been improved through various trainingsxviiand using equipments provided.
However, the attainment of “strengthening the function of CMAC and technical transfer system” at an
integrated level of all the 3 Outputs effects is not confirmed. Since the indicators to measure it are not
set in the PDM, it may not be appropriate to evaluate such aspect. Still, more attention may have to be
paid in assessing the overall Project Purpose as the Project aims to enhance the organizational capacity
as a whole. Beyond the attainment of each Output and by integrating all, comprehensive management
capacity of CMAC is expected to grow after the Project period and to prepare more concrete anddetailed action plans including status of equipment, staffing and budgetary requirements.
(3) Efficiency: High with Some Attentions
Nearly all the Outputs have been produced as planned, and activities have been almost sufficient toproduce Outputs with sufficient level of quantity and quality of inputs provided on mostly appropriate
timing. Use of locally available resources, such as local consultants for programming and training aswell as materials for repairing increased efficiency.
Factors that may have affected in efficiency are 1) delay in fielding Japanese Experts and consequently
shortening the Project period, 2) delay in appointment of Chief of Training as a C/P personnel, 3)change of Chief Advisor during relatively short Project Period of 2.5 years. In spite of such factors, theProject has been implemented very efficiently when looking at the achievement of each Output.
However, the Project actually has adjusted its scope by amending PDM and PO, and was made slightly
difficult to carry out as one team for a technical cooperation project in a coherent manner. In addition,
pursuing higher efficiency in such situation may have given over pressure on C/Ps. In sum, efficiency is
judged to be high but there are some attentions.
(4) Impacts: Conditionally High subject to Funding and Further Management Capacity
Development
Operational clearance size by CMAC (an indicator directly related to CMAC function) is steadily
increasing and the number of landmine/ERW casualties shows declining trends. The Project has been
contributing positively as the 3 areas of the project components are all directly related to strengthening
CMAC’s function as a core demining organization in Cambodia.
However, impact is subject to availability of funds. CMAC has been receiving funds from various
development partners which share more than 90 % of the total budget. It is expected that CMAC willprobably be assisted by development partners until 2020 for the extension period of Ottawa Convention,
but the funding projection is not clear.
In addition, it is envisaged that mid to large scale maintenance work for equipment is expected tooccur frequently due to life-time expiry of many of them. To resolve such problems, further
strengthened maintenance management capacity is required as well as provision of necessary funding.
Training management system introduced by the Project also needs to be developed further andnecessary personnel to be appointed to fill out vacancies, which also relates to funding issues.

xviii

(5) Sustainability: Conditionally Potential
The sustainability of the Project is here discussed for the extended period of Ottawa Convention until
2020 as CMAC is a demining operator which is time-bound mission. Policy settings surrounding
CMAC appear to be almost firm. First, mine action is a priority in the Cambodian government policies.
Next, demining has to be accelerated for the next 10 years as Ottawa Convention extended. In suchsituation, CMAC will continue to be a core, governmental demining organization regarded in the
country’s policy and strategies as the largest in humanitarian demining governmental operator.
Human resources of CMAC including the ones developed by the Project are basically sufficientconsidering the experiences and past performances as well as size of employed personnel. CMAC has astrong ownership as well. For technical aspect, technical expertise enhanced by the Project is expected
to mostly stay in CMAC.
The equipment provided by the Project will be properly maintained. However, many of the equipmentthat CMAC possesses will be obsolete and need to be replaced. CMAC will face the problem including
procurement of spare parts for maintenance, which is an urgent issue for CMAC to take care.
As for a mechanism for disseminating the skills and knowledge, it is working within CMAC. For
overseas, it has just started and has to continue to develop further.
The most serious and fundamental problem that may affect the Project effects is funding. For the next
10 years, the funding level is uncertain. Since CMAC is heavily dependent on external funding (morethan 90 % of total budget) , sustainability is basically subject to funding prospects.
3-3 Conclusion
The implementation status of the activities and achievements by each Output is judged to besatisfactory. The evaluation based on the Five Evaluation Criteria shows that the results are high interms of Relevance and Effectiveness and Efficiency, and conditionally positive and potential in termsof Impact and Sustainability. It is also noted that whether the effects continue/grow/sustain heavily
depends on CMAC’s financial sustainability as well as further efforts to develop managerial capacity
based on the Project effects.
3-4 Recommendations(1) Actions to be Taken by the End of the Project Period-

Output 1: CMAC, in consultation with the Project, needs to plan ahead to continue development ofLand Release module of the Operation Data System and put it in place for proper operation both at
HQ and DU levels after the end of the Project, which includes budgetary support to the technicalpersonnel (programmer) presently hired by the Project.

-Output 2: In order to reinforce the knowledge and skills, refresher trainings are necessary to beprovided before the Project ends. The recording practice of maintenance work and required days
needs to continue and accumulate data for further effective maintenance management. It is also
highly recommended to provide technical advice to HQ C/Ps to get them involved as much as
possible for the remaining Project period.

-

Output 3: For the training management cycle to be implemented, Training Management Manualxixhas to be finalized and completed.
(2) Actions to be Taken after the End of the Project and onward-

Output 1: CMAC is required not only to sustain the database systems developed by the Project but
also to improve them as information needs change over the time. It is also recommended for
CMAC to utilize information for developing more detailed plans (eg. Procurement and budgetaryplans for equipment).

-

Output 2: Since HQs is responsible for whole management of equipment in the organization
including DUs, CMAC needs to expand its attention to the development of HQ and DU levels as
well.

-

Output 3: Training management cycle introduced by the Project needs to be actually implemented.
The resources like curriculums and the Manual should be translated into Khmer for the benefit ofusers. CMAC is expected to update the resources according to the actual situation as well.

(3) Actions to be Taken by CMAC for more comprehensive Planning
By integrating the results of all the 3 Outputs, it is suggested that CMAC operational plan should be
prepared including more concrete and detailed status of equipment, staffing, budgetary requirements. In
order to do so, continuing efforts to further enhance the organizational capability is needed. Until 2020,
need as well as the government’s commitment for continuing demining is confirmed. The results ofBaseline Survey Data will provide the basis for more accurate estimates. It should be noted that despite
the fact that landmine/ERW casualties have been showing a declining trend, casualties may increase.
This is due to economic development resulting in more needs arising for agricultural and otherdevelopment purposes in the course of time. Demining will continue to be of importance in Cambodia
for such reasons. In view of the above, it is suggested that CMAC is required to prepare thecomprehensive plan for the next 10 years as the largest, humanitarian demining organization.
3-5

Lessons Learned(1) Project Management-

Recruitment of all the Japanese Experts needs to be in time for Project commencement.

-

It is desirable for one Chief Advisor to oversee the entire project period. If not possible, the role ofChief Advisor as well as approaches of the Project has to be confirmed more clearly at the time ofchange among JICA and a team of Japanese Experts first, and CMAC as well.

-In order to maximize the effects of the technical cooperation project, the Japanese Experts need towork more closely by sharing and exchanging information and opinions not only on formal
meetings but informally and on daily basis.

(2) PDM and Quantitative Data-

PDM has been modified for the convenience of better Project implementation 2 times, but somepoints are logically not appropriate to use as framework for Terminal Evaluation. Since PDM is
guiding the Project implementation and evaluation, it is recommended that PDM needs to bexxamended properly.
-

Availability of quantitative data is limited and the evaluation had to be done in many cases basedon process indicators and/or other information. Necessary quantitative data need to be collected
and analyzed from the earlier stage of the Project, where possible.

(3) Positioning of Project in A Wider Context-

Since the mine action sector in Cambodia as well as CMAC are all guided by sector policies/
strategies and closely related to other development partners' policies/strategies and supports, it isimportant that the Project confirms its position in the mine action sector in a wider context.

-

It is recommended to collect sector information, and to communicate with other partners at Project
implementation level. Sharing such information among the Project members is also desirable
considering the nature of the Project.

xxi