Summary of Joint Terminal Evaluation
I. Outline of the ProjectCountry:
Kyrgyz Republic

Project Title:
Project for Capacity Development for MaintenanceManagement of Bridges and Tunnels

Issue/Sector:
Transport

Cooperation Scheme:
Technical Cooperation

Division In-Charge:
Infrastructure and Peace Building
Department, JICA

Total Cost (estimated at completion of the Project):
Approximately 214 million Japanese Yen

Period of
Cooperation

Partner Country’s Implementing Organizations:
Ministry of Transport and Communication (MOTC)(R/D):
June 2013 –January 2016

Supporting Organization in Japan:
None

1. Background of the Terminal Evaluation
Kyrgyz Republic (hereinafter referred as “Kyrgyz”) has the road network of about 34,000 km,
accounting up to 95% of passengers and freight traffic. Ministry of Transport and Communication(MOTC) is responsible for the operation and management of international, national and load roads of
18,803 km, including around 3,000 bridges and five (5) tunnels located nearby to each other on the
Bishkek-Osh international road.
Most of the road network in Kyrgyz was constructed during the Soviet era and after the independence
on 25 December 1991, road maintenance activities have not been carried out adequately, due to the factthat many Russian technicians left Kyrgyz and funds provided for road sector were also not adequate forroutine maintenance of the road network. The low level of financing for road repair and maintenancehas led to an annual loss of approximately 200 km of road surface and the worsening road conditions
are hindering smooth trade with neighboring counties as well as the passenger and freight traffic.
In addition, no plan exists for the maintenance management of bridges and tunnels, and there is also noplan established with respect to periodical inspection system of bridges and tunnels. In response to thissituation, Japan International Cooperation Agency (JICA) and other development partners have been
supporting the road sector of Kyrgyz with a focus on road maintenance. Through these supports, thecapacity of MOTC for road maintenance has significantly improved.
In order to further improve maintenance management of road network, Government of Kyrgyz
requested a technical cooperation with the Government of Japan. Upon receipt of the request, JICA has
implemented “The Project for the Capacity Building of Road Maintenance in the Kyrgyz Republic”(hereinafter referred to as “prior project”) from March 2008 to March 2010 (3 years) as a TechnicalCooperation Project.
After the successful implementation of the prior project, the Government of Kyrgyz requested anothertechnical cooperation project entitled “The Project for Capacity Development for Maintenanceix

Management of Bridges and Tunnels” (hereinafter referred to as the “Project”) to the Government ofJapan. Upon receipt of this request, JICA dispatched the Detailed Planning Survey Team from 7 to 24
October 2012 for preparing the Project and the Record of Discussion (R/D) for the Project was signed
between MOTC and JICA on 14 February 2013. The Project was launched in June 2013 to be
implemented for two and a half years.
2. Project Overview(1) Overall Goal
Maintenance status of bridges and tunnels is improved in Kyrgyz.
(2) Project Purpose
MOTC’s capacity is improved for maintenance cost estimation of bridges and tunnels on the basis ofinspection results.
(3) Outputs
1) Demarcation of MOTC HQ, RMD, PLUADs/UADs and DEPs is clearly identified with necessary
staffing for the maintenance management of bridges and tunnels.
2) A database system to record information on bridges and tunnels is developed and ready for
maintenance planning.
3) Capacity of DEPs for routine maintenance and capacity of PLUADs/UADs for inspection andcondition rating of bridges and tunnels are enhanced.
4) Capacity of MOTC’s HQ, RMD, PLUADs/UADs and DEPs for preparing maintenancemanagement plans on bridges and tunnels is enhanced.
(4) Inputs
Japanese Side:
1. Japanese Experts
2. Machinery, Equipment and Materials
Kyrgyz Side:
1. Counterpart Personnel
2. Facilities for the Implementation of the Project
II. Evaluation Team
Membersof
Evaluation TeamJapanese Side
1) Team Leader: Dr. Nobuyuki TSUNEOKA, Senior Advisor, Infrastructure andPeace Building Department, JICA
2) Cooperation Planning: Mr. Yasuhiro WATANABE, Planning Coordinator,
Transport and ICT Group, Team 1, Infrastructure and Peace Building
Department, JICA
3) Evaluation Analysis Expert: Dr. Mahmood Ul Zaman KHAN, President,xJapan Soft Tech Consultants (JUST Consultants), Japan
Period of
Evaluation

From 10 to 21 August 2015

Type of Evaluation:
Terminal Evaluation

III. Results of Evaluation
1. Achievement
The JICA Expert Team reviewed the staffing structure of the RMD under the MOTC and proposed theamendments in the staffing structure of the RMD and helped in the establishment of the Road AssetManagement System (RAMS) under the RMD. The main function of RAMS is road asset managementand development programming for strategic development of highways. Government Resolution No. 188(Positions in the Department of Roads of MOTC of the Kyrgyz Republic, September 3, 2010) stipulates
the main functions of RMD and PLUAD/UAD as well as DEP. The JICA Expert Team reviewed thefunctions of RMD, PLUAD/UAD and DEP and identified issues in the existing functions regulated in
the Government Resolution and proposed the demarcation of responsibilities on maintenancemanagement of bridges and tunnels in MOTC HQ, RMD, PLUAD/UAD and DEP. The demarcation of
responsibilities on maintenance management of bridges and tunnels in MOTC HQ, RMD,
PLUAD/UAD and DEP are expected to be approved by MOTC in September or October 2015.
The staff of RMD with the assistance of Japanese Experts developed the database system with necessary
information (e.g. inspection record, damage record, etc.) for maintenance management of bridges andtunnels. The purpose of the database development is to understand the condition of bridges and tunnels
and to make use of information for the preparation of short-term/long-term maintenance and budget
plans for bridges and tunnels. A Manual for the Input and Operation of the Database System for Bridges
and Tunnels was developed. The manual contains manual for the input of data in the data system andmanual for database system operation. 30 master trainers were trained in bridge data collection andinput. 11 workshops on data collection and input were held by six master trainers for their responsible
sections.
The Bridge Maintenance Manual was prepared and expected to be approved by RMD in October 2015.
The manual contains manual for routine maintenance of road, manual for inspection, manual for
condition rating, manual for repair method, manual for short-term maintenance management, andmanual for long-term maintenance management of bridges. The Tunnel Maintenance Manual was
prepared and expected to be approved by RMD in October 2015. The manual contains routine
maintenance manual for tunnel, manual for inspection and condition rating, manual for repair method,and manual for short-term maintenance management of tunnels. 30 master trainers were selected from
RMD and PLUADs/UADs and divided into two categories of MT-S and MT-B in accordance with theirknowledge and experience for inspection and condition rating of bridges. Master trainers of MT-S
category conducted training for master trainers in MT-B category for inspection and condition rating ofbridges. The training was focused on (i) Techniques to conduct primary inspection, (ii) Techniques tomake inspection sketches, (iii) Input of inspection data into Excel formats, and (iv) Techniques about
three types of detailed inspections using equipments, such as infrared camera, Schmidt hammer andportable drills. Trainings (i) to (iii) are about Planned Inspection A (Visual Inspection) and training (iv)
is about Planned Inspection B (Detailed Inspection). Four staff members of BO UAD were trained on
inspection and condition rating of five tunnels. 11 workshops on Planned Inspection A (VisualxiInspection) and condition rating and nine workshops on Planned Inspection B (Detailed Inspection) andcondition rating were carried out by master trainers.
The nationwide management criteria for bridges is developed and incorporated in short-term/long-term
maintenance management plans of bridges. A short-term maintenance management plan (2015-2017)with cost estimation for bridges was prepared in accordance with the nationwide management criteria
for bridges for three (3) years in November 2014 and was certified by RMD in July 2015. Next
short-term plan for three (3) years will be prepared by October 2015 and will be certified by RMD. A
long-term maintenance management plan (2015-2024) with cost estimation of bridges was prepared inaccordance with the nationwide management criteria of bridges for ten (10) years in November 2014
and expected to be certified by RMD in September or October 2015. A short-term maintenancemanagement plan (2014-2016) with cost estimation for tunnels was prepared in accordance with thenationwide management criteria for tunnels for three (3) years in September 2013.
2. Summary of Evaluation Results(1) Relevance1) Consistency with the National Road Sector Policy and Development Policy of Kyrgyz
The Project purpose “MOTC’s capacity is improved for maintenance cost estimation of bridges andtunnels on the basis of inspection results” and Overall Goal of the Project “Maintenance status ofbridges and tunnels is improved in Kyrgyz” remained relevant with the Road Sector Development
Strategy 2015 – 2025 of the Government of Kyrgyz which aims to promote economic developmentby providing access to markets for goods, labor and social services and sustainability of the road
sector. The strategy specifically aims at rehabilitation of international, national and local roads,
improvement of the road management system and involvement of private sector in road maintenance.
The strategy is expected to be approved in October 2015.
The Project purpose and Overall Goal of the Project are still in consistency with the National
Sustainable Development Strategy for the Kyrgyz Republic (2013 – 2017) which described transport
sector as very important sector for the sustainable economic growth of the country and placed highpriority on the enhancement of economic potential through the construction and rehabilitation ofroads.
2) Consistency with the Japanese Policy“Maintenance Management of Transport Infrastructure and Correction of Regional Disparities” and“Restructuring of Social Infrastructure” are the two priority areas of the Japan’s Country Assistance
Policy for Kyrgyz prepared in December 2012. The overall aim of the Japan’s ODA Policy for
Kyrgyz is to support the sustainable and balanced economic growth driving the democratic
consolidation. Japan’s Country Assistance Policy for Kyrgyz focusing on the development oftransport infrastructure for achieving the overall goal of poverty reduction through economic
development based on the transition to a market economy.
The Project has been implementing as one of “Program for Promotion of Physical Distribution forStrengthening Export Competitiveness” under Development Issues of “Development of Transport
Infrastructure” under Priority Areas “Maintenance Management of Transport Infrastructure andxii

Correction of Regional Disparities” in Rolling Plan for Kyrgyz prepared in May 2014.
3) Appropriateness of Selection of Target Groups and Consistency with the Needs of theTarget Groups
The main target groups of the Project are the staff members of MOTC HQ, RMD, PLUADs/UADs
and DEPs. The maintenance management of bridges and tunnels is the main responsibility of thetarget groups. Furthermore, the capacity building for the staff of the target groups for the effective
and efficient maintenance management of bridges and tunnels is an urgent need. Therefore, theselection of the target groups is appropriate and the Project is still in consistency with the needs ofthe target groups.
4) Comparative Advantage of Technical Assistance Provided by the Japanese Side
JICA has implemented numerous projects in transport sector throughout the world, and has necessary
technical competence and experience. The Project aims to achieve its Project purpose “MOTC’s
capacity is improved for maintenance cost estimation of bridges and tunnels on the basis ofinspection results” by using advanced technical expertise and extensive experience of the JapaneseExperts, organizing trainings/workshops for the Counterpart personnel, and provision of necessary
equipment and materials. Thus the cooperation by Japan is very relevant to support the capacity
development of Counterparts for the effective and efficient maintenance management of bridges andtunnels.
(2) EffectivenessThe logical relationship of Outputs and the Project purpose is relevant. The Project has been on track
and the Project purpose is very likely to be achieved at the completion of the Project through the
combination of activities of Outputs.
The main contributing factors towards the achievement of all Outputs and Project purpose are the closeworking relationship between the JICA Experts Team and the Counterparts, Establishment of RAMS
under the RMD, and high enthusiasm for the Counterpart personnel for the Project activities.
The main hampering factors are frequent transfers or resignations of Counterpart personnel, particularly
the resignation of Project Director and Deputy Director during the implementation of the Project; low
experience of Counterparts in maintenance management technologies of bridges and tunnels; andlimited human, financial, physical, and material resources of Counterparts.
(3) Efficiency
The inputs are appropriately provided from both Japanese side and Kyrgyz side as planned and all
inputs are fully utilized to generate the intended Outputs. The quality, quantity, and timing of inputs arealso appropriate.
Project activities are well received by the Counterpart personnel. Several kinds of trainings/seminars
workshops for Counterpart personnel during the implementation of the Project are appreciated by theparticipants. However, the Counterpart personnel faced difficulties in attending all proposed Project
activities due to their engagement in their assignments in their respective organizations.

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(4) Impact
Through the various Project activities, it can be said that the impact on the Overall Goal of the Project ispositive.
The important assumptions for the Outputs and Project purpose in the PDM did not affect the positive
impacts of the Project. The proper allocation of human, financial, and physical resources will be
required to sustain the positive impacts of the Project after the completion of the Project. Several otherdevelopment partners, particularly World Bank and Asian Development Bank (ADB) are also involvedin strengthening of road sector in Kyrgyz and it is expected that the other development partners willcontinue to provide required resources, particularly financial resources, for the strengthening of road
sector in Kyrgyz.
No negative/indirect/unexpected impact has been reported.
(5) Sustainability
1) Policy Aspects
The rehabilitation of international, national and local roads and improvement of the road management
system is one of the major priorities guided by the Road Sector Development Strategy 2015 – 2025 of
the Government of Kyrgyz. The National Sustainable Development Strategy for the Kyrgyz Republic(2013 – 2017) described transport sector as very important sector for the sustainable economic
growth of the country and high priority has been placed on the enhancement of economic potential
through the construction and rehabilitation of roads. It is expected that the strategies and policies intransport sector of the Government of Kyrgyz will remain favorable for the Project effects to besustained after the completion of the Project.
2) Organizational Aspects
The roles and responsibilities of Counterparts (MOTC HQ, RMD, PLUADs/UADs and DEPs) for the
Project implementation were clearly defined and shared among the Counterparts. The staff ofCounterparts reported that their capacity for the maintenance management of bridges and tunnels has
been strengthened by the Project activities. The Project also fostered the capacity and relationshipbetween relevant stakeholders for future backstopping of managerial and administrative capacity
building. It is expected that the Counterparts could pursue relevant activities to keep Project effects
after the completion of the Project.
3) Financial Aspects
It is noted that the financial resources of the Counterparts are not very sound. In order to keep
continuing the Project activities after the completion of the Project, the Counterparts have to makeserious efforts to secure proper funding from the concerned authorities. Therefore, financial aspects
are a matter of concerns for the sustainability of Project effects after the completion of the Project.
4) Technical Aspects
To ensure the technical sustainability of the Project, it would be necessary to continue the technicalassistance by the RMD, particularly organization of different kinds of trainings and periodical

xivupdating of different products, such as database system for maintenance management of bridges andtunnels, nationwide management criteria for bridges and tunnels, short-term/long terms maintenancemanagement plans for bridges and tunnels, several kind of manuals for maintenance management ofbridges and tunnels, etc. prepared by the Project.
The Counterparts have deepened their understanding for the Project purpose and Overall Goal
through various Project activities. Most of staff of the Counterparts expressed that the technicaltransfer has been conducted very effectively and efficiently through various Project activities.
3. Conclusion
Based on review of relevant documents of the Project, such as Minutes of Meetings (M/M), Detailed
Design (D/D) Report, R/D, PDM, PO, Project Progress Reports, etc.; questionnaire to the JICA Experts
Team, Counterparts and the development partners; a series of meetings and discussions withCounterparts, other development partners, and Japanese Experts; site visits as well as results ofdiscussion among members of the Evaluation Team, the Evaluation Team concluded that the Project
performance is satisfactory.
4. Recommendations and Lessons Learned(1) Recommendations
In order to achieve the Overall Goal of “Maintenance status of bridges and tunnels is improved in
Kyrgyz” and to further improve the sustainability of the positive impacts of the Project after thecompletion of the Project, the Evaluation Team prepared the following recommendations for the JICA
Expert Team and for the Counterparts.
Recommendations for the JICA Expert Team
1) Finalization of Products Prepared by the Project Before the Completion of the Project
The JICA Expert Team should finalize and get approval for all products, such as database system for
maintenance management of bridges and tunnels, nationwide management criteria for bridges andtunnels, short-term/long terms maintenance management plans for bridges and tunnels, several kind of
manuals for maintenance management of bridges and tunnels, etc. prepared by the Project before thecompletion of the Project.
2) Sharing Products of the Project with Other Development Partners for Further Improvement
The JICA Expert Team should share various products prepared by the Project with other development
partners to get their opinions and cooperation for further improvement.
3) Improvement of Communication with the new established RAMSThe JICA Expert Team should further improve the communication with the RAMS which wasestablished on 11th March 2015 and important section for the sustainability, because it will be one of thesections which take responsibilities for maintenance management of bridges and tunnels. The newly
established RAMS hasn’t have enough time to be trained compared with other Counterparts, therefore,
the JICA Expert Team need to train and communicate with RAMS by the period of the Project.

xv4) Supporting internal technical transfer plan by Counterparts
The JICA Expert Team should propose the internal technical transfer plan from master trainers to otherstaff. The seminars or workshops are recommended to be implemented by master trainers some times ayear.
5) Considering the indicators of Overall goal for clearer evaluation in the future
The indicator of Overall goal is “A bridge and a tunnel chosen by maintenance management plan basedon the nationwide management criteria which is prepared in the project are repaired / replaced.” Other
indicators should be considered to add so as to monitor and evaluate more clearly the Overall goal. For
example, the continuously updated data of routine maintenance could be the indicator to evaluate themaintenance status of bridges and tunnels.
6) Prompt Actions for the Realization of Recommendation, Monitoring and Follow-Up Activities
The JICA Expert Team should help the Counterparts to take prompt actions for the realization of each
recommendation, monitor the progress for each recommendation, and conduct necessary follow-up
activities for the realization of each recommendation.
Recommendations for the Counterparts
1) Formulation of Monitoring and Evaluation System for the Maintenance Management of Bridges andTunnels
The Project has transferred the knowledge and skills for the maintenance management of bridges andtunnels. However, it is strongly recommend that the MOTC should formulate an effective and efficientmonitoring and evaluation system for the maintenance management of bridges and tunnels.
2) Strong Commitment to the Maintenance Management of Bridges and Tunnels
Methodology and knowledge on maintenance management for bridges and tunnels was transferredthrough various Project activities. It is strongly recommended that the MOTC should show a strong
commitment to the maintenance management of bridges and tunnels according to the short-term andlong-term maintenance management plans of bridges and tunnels prepared by the Project. Particularly,
the MOTC should give top priority for the implementation of short-term maintenance management planof bridges which is focusing on replacement of very dangerous bridges to ensure traffic safety.
The Routine Maintenance Manual for Tunnels prepared by the Project has not been fully utilized for theroutine maintenance of all five tunnels because of the frequent replacement of concerned staff in DEPs
responsible for the routine maintenance management of five tunnels. It is strongly recommended thatconcerned staff of DEPs should conduct routine maintenance of all five tunnels in accordance with the
Routine Maintenance Manual for Tunnels prepared by the Project.
3) Improvement of Products Prepared by the Project
The Project has prepared several products and these products should be utilized and improved time totime in accordance with the collected data for the effective and efficient maintenance management ofbridges and tunnels.

xvi4) Institutional Strengthening and Networking of the Counterparts
The MOTC HQ, RMD, PLUADs/UADs and DEPs should continue to enhance their technical andorganizational capabilities in order to ensure the effective and efficient maintenance management ofbridges and tunnels. It is recommended that the master trainers should be distributed in appropriate
sections for smooth implementation of technical transfer to other staffs. It is also recommend that the
MOTC HQ, RMD, PLUADs/UADs and DEPs should establish an effective and efficient network toshare the information in time for smooth implementation of maintenance management of bridges andtunnels.
5) Enhancement of Partnership with other Development Partners
MOTC should share various products prepared by the Project with other development partners andfurther enhance the partnership with other development partners for effective and efficient maintenancemanagement of bridges and tunnels.
6) Secure Necessary Resources to Keep Positive Impacts of the Project After Completion of the
Project
It is strongly recommended that the Counterparts should secure required financial and human resources
to sustain the positive impacts of the Project.
7) Prompt Actions for the Realization of Recommendation, Monitoring and Follow-Up Activities
It is strongly recommended that the Counterparts shall take prompt actions for the realization of each
recommendation, monitor the progress for each recommendation, and conduct necessary follow-up
activities for the realization of each recommendation.
(2) Lessons Learned

The Evaluation Team has drawn the following lessons learned. JICA should consider Project
achievements and lessons learned into future formulation and implementation of similar technicalcooperation projects.
1) Multi-Faceted Coordination Approach
A successful project must have its own clear scope. Focusing on such a scope and achieving its purpose
are utmost important. At the same time, the Project should have any flexibility of inviting and using
outside resources such as the road administration advisor and equipment provided by other Japan grant
aid projects as well as local and donors’ contributions. Since maintenance and management of bridges
and tunnels is a multi-component and multi-player activity, one of the factors of the Project’s success isthat the Project has taken this kind of multi-faceted coordination approach. This approach has been
producing collaborated spillover effects and more fruitful results.
2) Introduction of Bridge and Tunnel Data Inventory Systems and their Manuals/Guidelines versus
Assignment of Clear Authorities
The Project has introduced bridge and tunnel data inventory systems together with theirmanuals/guidelines. MOTC has been employing those systems and manuals for a better provision ofmaintenance and management of bridges and tunnels. Introduction of those systems and manuals has
also helped initiate reviewing their way of work and daily business. Efforts in effective use of thosexvii

systems and manuals also lead to assignment of clear authorities among RMD and
PLUADs/UADs/DEPs with a necessary restructuring of its current organizational function and viceversa.
3) Formulation of Quality Control System for the Maintenance Management of Bridges and Tunnels
Small initial defects will have a large impact on the durability of a bridge or tunnel that will cause anincrease of maintenance management cost. In this Project, initial defects are one of the causes of thedamage of bridges and tunnels. Therefore, it is strongly recommended that the formulation of theeffective and efficient quality control system for the maintenance management of bridges and tunnels.
The following steps are recommended for formulating the quality control system for the maintenancemanagement of bridges and tunnels.
· Periodically review the maintenance management criteria for bridges and tunnels to improve anddecrease initial defects in bridges or tunnels.
· Develop the quality control standards prior to the repair, reconstruction or construction of bridges ortunnels.
4) Provision of Systems and Manuals for Variety of Counterparts’ Needs
It is important to provide systems and manuals in accordance with needs and technical level of thecounterparts. It is also important how to improve the current situation. The multi-faceted coordination
is useful for covering a variety of counterparts’ needs and improving their way of work and daily
business as well as an appropriate provision of maintenance and management of bridges and tunnels.
5) Motivation and Ownership Enhanced by the Adaptation of Japanese Technologies
The training in Japan and introduction of Japanese technology helped C/P to raise the motivation andownership. BO UAD made some facilities by themselves for traffic safety in tunnels after the
introduction of Japanese technology. Such a locally adapted technology might be an incentive of C/P
since it matches their need.

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