Summary of Terminal Evaluation
1. Outline of the ProjectCountry：Republic of the Philippines

Project title：Philippine Coast Guard Education andHuman Resource management System Development
ProjectIssue：Transportation-International
Division in charge：Transportation and ICT
Division 1, Economic Infrastructure
Department
Period of(R/D)：9th November 2007
Cooperation 7th January 2008 – 6th January
2013

Cooperation scheme：Technical Cooperation
Total cost (At the Terminal Evaluation)：2.8 billion Yen

Partner Country’s Implementing Organization：
Department of Transportation and Communications(DOTC), Philippine Coast Guard (PCG)
Supporting Organization in Japan：Japan Coast Guard(JCG)
Related Cooperation： JICA long-term expert (CoastGuard Administration)

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Background of the Project
The Philippines are facing the issues such as natural and artificial disasters, increased marine
pollution, and piracy and smuggling cases though the marine transportation is main methods.
In order to tackle these issues, the Philippines Government has established Philippine Coast Guard(PCG) in the Navy in 1974, which is responsible for implementation and enforcement of maritime
transport safety policies and regulations. In 1998, PCG has been transferred to Department ofTransportation and Communications (DOTC). The educational and training works implemented bythe navy became the duties of PCG itself by this transfer and PCG has confronted insufficientfacilities and equipment, and a lack of curriculum and trainers.
Thus, based on the request from the Philippines government, JICA had carried out the technicalcooperation project named “The Project on Philippine Coast Guard Human Resource Development”
to improve the performance capability of PCG through the upgrade of educational and training
programs from July 2002 to June 2007. This project has implemented training and seminars on the 4areas, Search and Rescue (SAR), Marine Pollution (MARPOL) & Oil Spill Combating (OSC), Aidsto Navigation (ATON) and Maritime Law Enforcement (MARLEN), and integrated them intosyllabus and curriculum as well as expanded the basic education.
However, there were many issues left to enhance the level of ability for accomplishing duties, andit terminal evaluation in October 2006 had pointed the establishment of full-time faculty system andcontinuous expansion of educational training on MARLEN and basic education as the medium andlong term issues. Concerning the full-time faculty system, the development of comprehensive andcontinuous education and training strategy is necessary.
Based on the above background, JICA has started the Project “Philippine Coast Guard Educationand Human Resource Management System Development Project” since July 2007 with the durationof five years in cooperation with PCG.

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Project Overview
The aim of the Project is to improve the service of bus operation quantitatively and qualitatively
through strengthening the institutional capacity of PCG and officers(1) Overall Goal
The Capacity of PCG as a Law Enforcement Agency is improved(2) Project Purpose
PCG Education and Human Resource Management system is developed(3) Outputs
Output 1: Establishment of Concurrent Instructor System
Output 2: Training programs on MARLEN are developed and strengthened
Output 3: Training programs on ship operations are developed and strengthened(4) Inputs
Japanese side：Total cost JPY 2.8 billion
Number of Japanese experts dispatched：6 long-term and 9 short-term experts
Number of trainee dispatched in Japan：45
The amount of equipment provided：JPY 4,004,875
Philippines side
Number of Counterpart：14
Land and facility Provided：Office rooms for the Project in PCG headquarter

2. Outline of the Evaluation teamEvaluation
TeamPeriod ofEvaluation

Tatsuya MURASEExecutive Advisor to the Director General, Economic
Infrastructure Department, Japan International Cooperation
Agency (JICA)

Masanori HISAKI

Senior Liaison Officer, International Affairs & Crisis
Management Division, Administration Department, Japan
Coast Guard (JCG)

Masanori KAWANO

Deputy Assistant Director, Transportation and ICT Division 1,
Economic Infrastructure Department, Japan International
Cooperation Agency (JICA)

Chiaki YAMADA

Evaluation Analyst, Pegasus Engineering Corporationthth

15 July 2012 to 28 July 2012

Type of Evaluation

Terminal Evaluation

3. Results of Evaluation
3–1 Project Achievement(1) Achievement of the Project purpose
Project Purpose：PCG Education and Human Resource Management system is developed
As to Output1, “The establishment of Permanent Faculty System “has been modified to “Theestablishment of Concurrent Instructor System” during the Mid-term review after the consultation
among the Project. After that, the circular of the Concurrent Instructor System has been approvedxby the commandant on 28th May 2012.
As the first project activity, the database to select appropriate PCG officers for the concurrent
instructor system has been established. Moreover, activities for the formulation of the career
management plan and establishment of the promotion system and instructor eligibility systemhave been implemented in order to promote functioning the concurrent instructor system. As otheroutcomes for the achievements for the project purpose, training programs concerning MARLENand Ship Operations for officers and non-officers have been developed and strengthened, and theQualification Courses on Ship Operations have been developed for the enhancement of theinstitutional capacity of PCG. On the other hand, there are some challenges for fulfillment of theProject Purpose, but these challenges for the achievement of the Project Purpose are clear.
Therefore, the Project Purpose is likely to be achieved before the end of the Project.
(2) Achievement of Outputs
Output 1：Partly Achieved
The consultation and discussion on PDM during the Mid-term review has resulted in themodification from “The establishment of “Permanent Faculty System “to “The establishment ofConcurrent Instructor System”. The details of the Concurrent Instructor System have been shared
among the PCG. In order to promote the Concurrent Instructor System, the formulation of Career
Management Plan, the establishment of both Promotion System and Instructor Eligibility System
has been developed. However, there are a few indicators left which have not achieved at theterminal evaluation.
Challenges to be fulfilled by the end of the Project are clear and therefore, the likelihood of theachievement on Output 1 is considerably high. The circular of the concurrent system has been
approved by the commandant on 28th May 2012, therefore, the Concurrent Instructor System has
been established in PCG.
Output 2：Achieved
The curriculums of Coast Guard Officer’s Course（CGOC）and Coast Guard Man’s Course（CGMC）have been revised, and subjects to be strengthened in each course have been
determined for. Also, the necessary number of hours in each subject has been increased. Officers
and non-officers have increased knowledge and improved skills through training with learning
about MARLEN theoretically and practically. Moreover, the teaching syllabus and materials in
Coast guard Command Staff Course (CGSCC）and Maritime Security Course（MARSEC）have
been revised and new subjects have been added into courses mentioned above.
More than 6 instructors have been trained on MARLEN and additional seminars and workshop
will be conducted by the end of the Project, and it may be said that the capacity of the instructors
is strengthened.
Therefore, Output 2 has been achieved at the terminal evaluation.
Output 3：Partly Achieved
With the goal of improvement on the ability of ship operation, curriculums and teachingmaterials on training courses for officers and non-officers have been revised and also developed. 7
qualification courses have been developed and one is going. Moreover, the PCG Certificationxi

System for strengthening the institutional capacity of PCG has been established.
On the other hand, it is necessary to bring up instructors who are specialized in specificsubjects in order to conduct training for officers and non-officers. There is only 1 instructor course
developed and the development of instructor courses is expected to be increased. Moreover, theestablishment of Certification System for instructors is desirable. In terms of development ofStandard operation procedures for ship operation, Operation Readiness Evaluation (ORE) Manual,
Watch Officer’s Guide and Instruction for Shipboard Ratings will be completed by the end of theProject.
From the above, although there are some challenges for strengthening the courses developedby the end of the Project, Output 3 will be achieved.
3–2 Summary of Evaluation Results(1) Relevance：HighThe enhancement of maritime safety and security has been considered as one of the important
issues to be tackled in the medium-Term Philippines Development Plan (2004-2010 and2010-2016). The Government of Japan has adopted three prioritized issues for the Philippines inJune 2008 and determined Country Aid Policy in March 2012, continuous economic growththrough investment promotion is recognized as a prioritized issue in the medium-term aim, as wellas the promotion of maritime safety. PCG has carried a plan forward to increase the number of
PCG officers along with the alternation of the generations and reinforcement of the organization.
Accordingly, training and human resource development for newly-hired officers must be neededfor strengthening the institutional capacity of PCG.
In terms of consistency with the Philippine policy and Japan’s aid policy and needs of PCG,
the relevance of the Project is high. The needs of support for strengthening PCG’s capacity
through the Project high. The enhancement of the capacity development on PCG by theGovernment of Japan has resulted in the great contribution for PCG in terms of strengthening theReCAAP’s execution. From the above, the relevance of the Project is high.
(2) Effectiveness：HighOutput 1-3 are contributing to the achievement of the Project purpose. Output 1 aims toestablish the Concurrent Instructor System. Furthermore, Output 2 and 3 also aim to enrich thecontents of the Concurrent Instructor System in terms of Training programs on MARLEN andShip Operations. By the termination of the Project, the career management plan which encourages
the concurrent instructor system is expected to be functioned and the PCG education and humanresource management system will be able to be developed. Therefore, the logic/project approachhas been appropriate. Most of indicators have also been achieved at the terminal evaluation. PCG
recognizes activities to be implemented for the fulfillment of all indicators and the Project purpose
is likely to be highly achieved.
(3) Efficiency：Moderate
According to the achievement of Output, it takes more time to achieve all indicators but Output
1-3 is likely to be largely achieved by the termination of the Project.
Activities to be implemented for the achievement of Output1 are as below:xii

- Formulation of the plan on maritime education- Assignment of PCG officers for appropriate instructors- Revision of the curriculums on PCG courses
Activities to be implemented for the achievement of Output 3 are as below:- Establishment of the PCG certification system- Development and qualified of ORE manual
It is found that Output 2 has already been achieved at the terminal evaluation. Following
results have been found out through the interview, questionnaires to Japanese experts and C/Pofficers and the Project Report. The 1st one is that PCG has highly appreciated the training inJapan qualitatively and quantitatively-wise. 45 PCG officers have participated in academic andpractical training. 27 PCG officers designated as instructors have participated in the training andbecame more confident of their improved knowledge and skills. The 2nd is that the communication
between the experts and C/P officers was not smooth for the 1st and 2nd year. It sometimes
resulted in a miscommunication with each other and appeared to be a disturbing factor for theprogress of the Project during that early stage of project implementation. One more is thatfrequent changes of C/P officers happened. The transition and transfer of works between a C/Ppredecessor and successor was not smooth, it takes too much time for a successor to catch up andunderstand the overall Project.
(4) Impact：Relatively High
If PCG Education and Human Resource Management system is developed, training of PCG
will be effectively and efficiently implemented. Moreover, the establishment of the concurrent
instructor system will bring positive effects to PCG officers allocated 12 districts underjurisdiction in the Philippines. Namely, the institutional capacity of PCG, especially the number ofmissions on MARLEN and patrol vessel operations is expected to be increased. There are a few
unexpected positive impacts found through the interview. One of the ripple positive effects is thestart of collaboration with PMMA on maritime education, which the Project has promoted. The
other positive effect is that awareness of the existence of the Project has somehow led otherdonors, such as the United States of America, et. al., to also provide support to PCG. Through theinterview with C/P officers, some of C/P officers have started an in-house training, utilizing skills
acquired from training in Japan. Furthermore, unexpected negative impacts have not been found at
the terminal evaluation.
(5) Sustainability：Relatively High
Policy Aspects
The enhancement of maritime safety and security has been considered as one of the important
issues to be tackled in the medium-Term Philippines Development Plan (2004-2010 and2010-2016).The establishment of the “Regional Cooperation Agreement on Combating Piracy andArmed Robbery Against Ship in Asia” (ReCAAP) has been advocated by the Government ofJapan, therefore the Government of Japan will continue the support to the Philippines in thefuture.

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Organizational Aspects
C/P officers have taken the initiative in developing reference materials such as textbook since
the middle of the project period and it can be said that the commitment of PCG has been raised.
PCG has recognized the importance of the Project and is willing to continue the activities
positively in the future. On the other hand, as to whether PCG is capable of following up theconcurrent instructor system and human resource allocation based on the career management plan
formulated or not, and also its outcomes happened cannot yet be measured during the Project.
Financial Aspects
According the budget plan, the budget allocation for PCG has been increased and also will beincreased after the end of the Project. It can be said that the likelihood of securing financial
sustainability is high. The interview with C/P officers mentioned that PCG would receive its
budget directly from the Department of Budget and Management starting in 2013, therefore it
expects to secure higher budgets on the succeeding years. Consequently, the sustainability interms of the financial aspects is high.
Technical Aspects
It will be difficult for PCG to conduct training for instructors same as the training provided by
the Project. In order to maintain the capacity of instructors, the PCG has to secure the certain
budget for specific training for instructors. Moreover, the assignment plan proposed in concurrent
faculty system has to be functioned to maintain the level of instructors’ training capacity.
3–3 Factors that promoted realization of effects(1) Factors concerning to planning
The change of Output 1
After the consideration of the project progress and circumstances around the Project,“permanent faculty system” has been changed to “concurrent instructor system” at the terminalevaluation.
(2) Factors concerning to the Implementation Process
The enactment of the Philippine Coast Guard Law of 2009
It is found that the Philippine Coast Guard Law of 2009 which has been enacted in February2010 was a contributing factor based on the result of interviews with C/P. This new law has led
roles and responsibilities of PCG clear. Also, it is clear that instructors are so important as tofunction the education and human resource management effectively.
Productive training conducted in Japan
45 PCG officers in total have participated in training in Japan. There is a variety of training
conducted from theoretical seminars for learning knowledge to technical seminars to undergo
practical experiences. In particular, PCG officers designated as instructors have acquired a wide
range of knowledge and skills.

xiv3–4 Factors that impeded realization of effects(1) Factors concerning to planning
Factors have not been found.
(2) Factors concerning to the Implementation Process
Frequency of PCG’s personal changes
Frequent changes of C/P officers have happened during the Project. The transition and transferof works between a C/P predecessor and successor was not that smooth, it takes too much time fora successor to catch up and understand the overall Project.
Communication among the project team
There was a problem in verbal communication among the project team at the beginning of theProject. This has led to a miscommunication with each other. Although the mutual communication
has been better improved as the Project went forward, it initially appeared to be a disturbing factor
for the progress of the Project in the early part of its implementation.
3–5Conclusion
In conclusion, the Project purpose “PCG Education and Human Resource Management isdeveloped” is likely to be achieved before the termination of the Project.
Concerning 5 evaluation criteria, Relevance, Efficiency and Impact are considerably
acceptable results. On the other hand, Effectiveness is not a satisfactory result. Three challenges
such as the formulation of the plan on maritime education, the designation of appropriate
instructors and the establishment of PCG certification system are expected to be implemented.
Concerning the sustainability, PCG is sure to secure the budget for implementing activities
continuously, however, It is unsure that personal changes will be performed based on the career
management plan in terms of the organizational/institutional aspects.
If PCG maintains the project effects, secures budgets for training to enhance the capacity of
PCG officers and also secures the number of necessary officers and non-officers for MARLEN,
Overall goal is expected to be achieved.

3–6

Recommendations
Recommendations suggested to PCG and Project experts as bellow in connection with 3-1
output3.
- Development of instructor’s course for enhancing the training and education on shop
operations- Establishment of certification system for instructors for enhancing the PCG institutional
capability to operate PCG vessels

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