Summary of the Terminal Evaluation Results
1. Project Summary
Country: Republic of Philippines

Project Name: The Project for Capacity Development
on Transportation Planning and Database Management in
the Republic of the Philippines (MUCEP)

Issue/Sector: Transportation

Type of Cooperation: Technical Cooperation

Department in charge: Infrastructure andTotal cost (as of June 2015): Approx. 322 million yen

Peacebuilding Department
01 September 2011～31 March

Partner Country’s Implementing Organization:2015 (R/D):29 July 2011

DepartmentofTransportation

Project(DOTC)

PeriodSupporting Organizations in Japan:

andCommunication

ALMEC Corporation and Oriental Consultants Co., Ltd.
Other Related Cooperation: Non
1-1 Background of the Project
The acceleration of economic activities and the concentration of population in Metropolitan
Manila and other cities in the Philippines have caused severe social problems such as traffic
congestion, traffic accidents, and deterioration of the living environment. In particular, the increasein private vehicle numbers has generated traffic congestion. In 2009, the number of registeredvehicles in Metro Manila reached 1.77 million, or an increase of 11% from 2007 levels. In the same
year, the number of traffic accidents was reported to have reached 64,747 cases. The development of
the public transportation (PT) network is therefore crucial in tackling not only these problems, but
global warming issues as well which have recently captured the attention of leaders and policy
makers. In addition, investment in infrastructure development is essential in realizing a sustainableeconomic growth. With these considerations, it is important to create a favorable environment for
private investment by developing and integrating transportation networks and strengthening linkages
between and among transportation modes for land, sea, and air.
The development of transportation infrastructure should be planned comprehensively and should
include all transportation modes. In the Philippines, the Department of Transportation andCommunications (DOTC), the overall entity responsible for national transportation policies, hasmanaged air, rail, road, and sea transportation separately and the relevant databases, which arerequired for solid national transportation planning, have also been managed independently of eachother. To illustrate, the database related to transportation planning is managed not only by the DOTC
but other agencies as well, such as the Light Rail Transit Authority, Philippine National Railway, andothers. Compounding the situation is the lack of coordination between and among these agencies
regarding such database aspects as data storage, sharing, and updating. Therefore, being the agency
responsible for comprehensive transportation planning, the DOTC’s capacity to develop and manage
a transportation planning database and to formulate transportation policies should be strengthened. Axtransportation policy to facilitate a modal shift from private cars to public transportation is highly
needed, especially in Metro Manila, to alleviate traffic congestion and the various environmental
problems it has spawned. Toward this end, the capacity for developing the transportation database
based on that developed in the “Metro Manila Urban Transportation Integration Study” (1999, Japan
International Cooperation Agency) and the capacity for utilizing such database in planning the
public transportation network have to be strengthened.
In light of the above, the Government of the Philippines requested the Government of Japan toprovide technical assistance to develop a policy framework on national transportation planning,
comprehensive national transportation data building, and decision-making support system based on
geographical information through this project entitled “Project for Capacity Development on
Transportation Planning and Database Management in the Republic of the Philippines” or MMUTIS
Update and Capacity Enhancement Project for short (MUCEP).
For this project, the plan was for the DOTC to serve as the counterpart (CP) agency. However, in
the Detailed Planning Survey for the project which JICA conducted from February to March 2011, it
was found that the DOTC itself needs to develop its capacity in policy making. In that survey too,
the target project area was changed from nationwide to Metro Manila, particularly Manila city only.
In addition, the objective of the project was revised: From developing a policy framework onnational transportation planning, comprehensive national transportation data building, anddecision-making support system to strengthening the capacity on transportation databasemanagement and public transportation network planning. Following the results of the survey, aRecord of Discussion (R/D) was exchanged on 29 July 2011 between JICA and the DOTC.
1-2 Project Overview(1)

Overall Goal:

Public transportation plan for Metro Manila is prepared by the
DOTC.6
To improve public transportation planning for Metro Manila,(2)

Project Purpose:including coordination among relevant agencies, spearheaded by
the DOTC.

(3)

Outputs:

1)

Improved capacity to manage the Metro Manila transportation database.

2)

Improved capacity to plan the public transportation network of Metro Manila.

3)

Improved capacity to coordinate and formulate policies on public transportation network
development in Metro Manila.

(4)

Inputs (as of the end of June 2015):
Japanese Side6

The overall goal was clarified by the DOTC and JPT during the terminal evaluation. The “public transportation plan for Metro Manila”
stated in the overall goal refers to a public transportation plan (targeting 2–3 years after MUCEP completion) for strategic corridors in
Metro Manila that have important transportation issues. As a result, the Terminal Evaluation Team recommended to the JICA Project
Team (i.e., MUCEP experts) to modify Project Design Matrix (PDM) version 3 based on the actual situation. The Project would thus beevaluated based on PDM-version 4, while the preparation of a comprehensive public transportation planning for Metro Manila willcontinue to be a long-term goal for the DOTC (targeting 5–10 years after MUCEP completion).

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a)

Personnel:

11 short-term expertsb)

Equipment

8.7 million yen

c)Local Cost

16,028 thousand yen

d)Person Trip Study

20,590 thousand yene)Training in Japan

25 persons

Philippine Sidea)

Assignment of Counterparts

31 persons including alternate representativesb)

DOTC funded HISApproximately PHP 34,000 thousandc)

Office Space Rental

Approximately PHP 2,160 thousandd)Personnel

7

Approximately PHP 1,890 thousande)Equipment, Supplies and Furniture

Approximately PHP 500 thousand

2. Evaluation Team
Leader/Evaluation

Tomoki KANENAWA

Planning
Evaluation Analysis

Transportation and ICT Group, Infrastructure andPeacebuilding Department, JICA

Mimi SHEIKH

Evaluation Department, International Development
Center of Japan Incorporated

Schedule of the

5 July 2015～18 July 2015

Evaluation

Type ofTerminal Evaluation

Evaluation

3. Results of Evaluation
3-1 Achievement of Outputs
Output 1 (Improved Capacity to Manage the Metro Manila Transportation Database): Mostly
Achieved
Indicator 1-1 “Updated MMUTIS transportation database” and Indicator 2-2 “Proposed planon public transportation network for Metro Manila” are mostly achieved.

The transportation

database of MMUTIS was updated along with the development of the MUCEP database by the
project team, and related manuals on traffic survey were prepared by the Project. The Database
Management Manual will also be prepared before the project completes.
Output 2 (Improved Capacity to Plan the Public Transportation Network of Metro Manila): Mostly
Achieved
Indicator 2-1 “Prepared manual on public transportation planning” has been mostly achieved
when the first draft of the “Manual on Urban Transportation Planning” was completed. The
manual will be finalized after the CPT members have submitted their respective inputs.
Indicator 2-2 “Proposed plan on public transportation network for Metro Manila” is in progress.
The plan for the public transportation network for Metro Manila will assumed as achieved when
the pilot studies have been completed and recommendations were considered by the CPT basedon the results of the pilot studies. Both Indicators 2-1 and 2-2 are expected to be achieved by
the time MUCEP ends.
7

This is only for personnel expenses for DOTC. Actual amount is larger than the stated amount.

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Output 3 (Improved Capacity to Coordinate and Formulate Policies on Public Transportation
Network Development in Metro Manila): Partially Achieved
The achievement level of Indicators 3-1 “Effective agreements among stakeholders made in
relevant meetings” and 3-2 “Agreed recommendations on transportation policy issues’’are in
progress at the time of the Joint Terminal Evaluation.

Two outcome indicators will beachieved when project outputs, such as the results of pilot studies8 and recommendations for
future steps to develop a public transportation plan for Metro Manila, are presented at theupcoming two seminars (July 2015 and October 2015). Therefore, both indicators are expected
to be achieved by the end of the Project.
3-2 Achievement of Project Purpose
Project Purpose, “To improve public transportation planning for Metro Manila, including
coordination among relevant agencies, spearheaded by the DOTC”: Mostly Achieved
As regard the indicator “The management system9 for the new transportation database isestablished by 2014”,
A transportation database, MUCEP database, was newly created and the transportation
database of MMUTIS was updated. A request form for MUCEP database was also created in the
Project. The management system for the MUCEP database will be completed once the Database
Management Manual is completed and the system for utilizing MUCEP data is announced to
public transportation-related agencies and institutions at a seminar. All of the remaining tasks
will be conducted by the end of the Project. Thus, the Project is likely to achieve its purpose by
its end.
3-3 Evaluation Results by Five Criteria(1) Relevance: HighThe Project is I line with development policy of Philippines because Philippine Development Plan
(PDP) pointed out that one of the critical elements in the realization of the PDP is the developmentof an efficient, integrated, and coordinated transportation system. Further, the Project is in line withthe principal mandate of the DOTC, which is to formulate and recommend national policies andguidelines for the preparation and implementation of integrated transportation systems.
The Project is consistent with Japan’s official development assistance (ODA) policy for thePhilippines, as well. “Improvement of Traffic and Transportation Network of the Greater Capital
Region” as one of the priority development areas to overcome these challenges, and this Project is
one of the measures included on the project list in the rolling plan.

8

1. CNG Bus Introduction Study 2.Study on the Bus Exclusive Lane on Ortigas Avenue, and 3.Bonifacio Global City Public
Transportation Improvement Project were selected as pilot studies to apply skills and knowledge on Cube software transferred by
MUCEP,
9
It refers to a situation that a system to lend MUCEP database is established and the database are ready to be shared with other public
transportation planning related agencies.

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(2) Effectiveness: High
Most important achievement of the Project is creation of MUCEP database and update of
MMUTIS database.

The transportation database of Metro Manila which was last updated in 1990s

by JICA was finally updated by the Project after a long wait.

Not only the DOTC, but other related

agencies as well, will be able to use the new database in making effective plans that respond to thepresent conditions in Metro Manila.

Not only the DOTC, but other related agencies as well, will

be able to use the new database in making effective plans that respond to the present conditions in
Metro Manila.
On the other hand, 1) a system for sharing the new database outside of the DOTC is still underpreparation and 2) the development of the CPT’s transportation planning skills and techniques is stillin progress while the remaining activities will be completed within the project period.
As for capacity development of public transportation network planning based on the averagescores based on self-examination taken by C/P, the level of knowledge and skills for each output
have clearly improved compared from the early phase of the Project to the time of the terminal
evaluation.
Is concluded that outcome has reached to satisfactory level, thus, the Project purpose, “To
improve public transportation planning for Metro Manila, including coordination among relevant
agencies, spearheaded by the DOTC.” is mostly achieved.
(3)

Efficiency: Fair
Inputs from both the Japanese and Philippine side have been mostly completed as planned interms of quantity and quality, and all of the inputs have been contributed to achieve the project
purpose. As regards the timing of inputs, while Japanese inputs were provided as scheduled, some ofPhilippine inputs were delayed.

The formation and mobilization of the CPT were delayed for six

months as against the original plan, while the DOTC-funded HIS was delayed by 15 months due toproblems in sourcing the funds and procuring the services of the local survey firm. These delays
caused the extension of the project period for 15 months.
(4) Impact: Expected to be High
There are two indicators to measure the achievement of the Project’s overall goal “Public
transportation plan for Metro Manila is prepared by the DOTC10”. As regards the first indicator, i.e.,“Prepared public transportation plan for Metro Manila based on an analysis of the new transportation
database,” using skills and knowledge learned through three pilot studies prepared in the Project, it
is expected that continuous efforts will be made by the DOTC and other counterpart agencies andthat further reports/ presentation materials on public transportation plans for strategic corridors in
Metro Manila in relation to important transportation issues will be produced even after the Projectends. As regards the second indicator, i.e., “Utilization of the new transportation database,” a request
form for accessing the new transportation database has already been prepared. According to the10

Public transportation plan for Metro Manila denotes for example public transportation plan for strategic corridors in relation toimportant transportation issues in Metro Manila (target 2-3 years).

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DOTC, the new database was already shared with two DOTC offices. For agencies outside the
DOTC, the MUCEP database and MMUTIS database will be officially introduced in the final
seminar scheduled in October 2015. According to interviews with the CPT and their supervisors, allare eager to access the new database. Thus, there is no doubt as the utilization of the new database
after the Project ends.
As regards unexpected impacts, 1) Dissemination of skills and knowledge in transportation
planning transferred by the JICA Project Team (JPT) through project participants, 2) building acollaborative relationship among public transportation related agencies were confirmed.
(5) Sustainability: Fair
<Policy and institutional aspects>
The development of an efficient, integrated, and coordinated transportation system is considered
to be one of critical challenges in the transportation sector of the Philippines. The principal mandateof the DOTC is to formulate and recommend national policies and guidelines on the preparation andimplementation of integrated transportation systems at the national, regional, and local levels. The
DOTC will continue working to meet this mandate even after the Project ends. Thus, theenhancement of the transportation planning capacity of the DOTC, as well as related agencies, isgoing to be continuously supported by the Government of the Philippines. The sustainability of the
Project in the aspects of policy making and institutional support is considered to be very high.
< Organizational aspect>
Major project activities including transportation database management and public transportation
network planning on important transportation issues for strategic Metro Manila corridors have been
undertaken by Transport Planning Unit (TPU) in the Project and these activities will remain to be
TPU’s tasks even after the Project ends. The DOTC has confirmed that the TPU will be maintained
under the DOTC’s Road Transportation Planning Division (RTPD). The RTPD personnel is
expected to be augmented soon by four new staffs. However details on TPU’s tasks andresponsibilities after the Project ends have not yet been clarified. Thus, the organizationalsustainability of the Project is considered to be “fair.”< Financial aspect>
Whereas information on budget allocation and expenditure is not publicly available, the budgetof the DOTC’s RTPD has been stable since 2011 and is going to be the same after the Project ends,
according to DOTC management. The necessary budget to continue the Project outcomes will beapproximately PHP 700,000 per year including costs for upgrading software and outsourcing
various transportation studies to support planning activities. DOTC management confirmed that thestated budget will be ensured after the Project. Thus, the financial sustainability of the Project isconsidered to be “high.”xv

< Technical aspect>
Regarding the technical skills of TPU members, their knowledge and skills to developtransportation plans using the new database have improved, as discussed in Section 5.2 on
effectiveness. Also, various manuals were produced in the Project to assist them. However, the JPT
believes that the TPU members must continuously use and apply the skills they learned in the
Project by preparing public transportation plans for strategic Metro Manila corridors after the
Project ends. The skills and knowledge will be easily forgotten if they don’t apply them on a daily
basis, according to one of the lecturers in the Project.
The TPU members who are currently assigned fulltime for the Project is going back to DOTC
office once the Project ends. They will continuously analyze public transportation plans forstrategic Metro Manila corridors by using MUCEP database, however at the same time they are
expected to undertake regular daily tasks of DOTC as well. A concern is that they might not haveenough time to analyze strategic Metro Manila corridors because their majority of time would beoccupied by their regular workloads. Because of this, the technical sustainability of the Project isconsidered to be “fair.”< Other Aspects Affecting the Sustainability of Project Outcomes>
The next Philippine presidential election is scheduled in May 2016. This may affect thesustainability of project outcomes.
3-4 Factors that promoted realization of effects(1) Planning
Flexible response of JICA Project Team to needs of Counterpart Team
Whereas the Project needs to follow a plan of operation in principle, the JICA Project Team
flexibly changed the schedule and project approach in response to the needs of Counterpart Team as
long as the changes did not negatively affect the ultimate objective of the Project. This approach
was effective to improve capacity of Counterpart.
(2) Implementation Process
Strong needs for the creation of a new transportation database
The latest transportation database for Metro Manila before the Project was that developed in
MMUTIS which was based on the HIS conducted in 1996. Since then, the transportation databasehas not been updated. The dynamic of Metro Manila has changed significantly in the last 20 years.
The DOTC and other related agencies strongly need an updated database to make transportationplans for Metro Manila which are in accordance with the actual situation. Since all the public
transportation planning-related institutions want to have access to an updated transportation
database, all of the stakeholders have willingly cooperated in implementing MUCEP.
Strong ownership of the DOTCThe DOTC as the coordinating body for the Philippine stakeholders has showed a strongxviownership of the Project throughout its implementation. Some of the examples which show this are
the following: 1) the DOTC staff have attended MUCEP trainings and JCC meetings more often
than other institutions; 2) they have actively participated in trainings and meetings—changing thetraining style from lectures to question-and-answer sessions was proposed by the DOTC members;3) they sometimes accompanied the HIS Team to learn more about actual site situations; and 4) the
DOTC assigned four full-time staff for the TPU. These reflect the DOTC’s strong commitment as aleading institution to successfully complete MUCEP.
Good relationship among MUCEP members
The stable partnership and communication among the DOTC, Department of Public Works andHighways, Metro Manila Department Authority, University of the Philippines National Center forTransportation Studies, Light Rail Transit Authority, Land Transportation Franchising andRegulatory Board, Bases Conversion Department Authority, North Luzon, BCDA, North Luzon
Railways Corporation, Philippine National Railway, local staff, and JICA experts have graduallydeveloped in the process of project implementation, especially the weekly trainings every Thursday,
and the training in Japan, contributing much to fostering a good relationship among them. The
implementation situation of various activities under the Project has been also promoted as a resultof their joint work on their tasks with diligence and commitment.
3-5 Factors that constrained realization of effects(1) Planning
So far, the Project has experienced only one major challenge, and that was the difficulty of
conducting the pilot studies without the full-time commitment of the TPU staff. “Establish a
Transportation Database Management” was the first activity to be conducted in the Project. Initially,
the Transportation Database Management Unit (TDMU) was supposed to be established uponproject commencement. This, however, did not materialize. The Counterpart Project Team (CPT), in
particular, could only devote a little time for MUCEP much less than the Project expected because
they have official duties in the DOTC. On 5 February 2014, the DOTC issued Special Order No.
2014-040, creating the Transport Planning Unit (TPU) within the Road Transportation Planning
Division and three full-time staffers were assigned to the TPU accordingly. While the project
activities, especially pilot studies, have been conducted smoothly after the establishment of the
TPU, the Project could have proceeded more effectively had this been created much earlier in the
project period.
(2) Implementation Process
An issue related to implementation process was not identified.
3-6 Conclusion
Based on the findings of the Joint Terminal Evaluation, the Evaluation Team concludes that withthe concerted effort of both the Philippine and Japanese side, the Project has been successfully

xviiimplemented, has achieved sufficient effects, and is expected to end by November 2015 as planned.
Moreover, the Project is expected to achieve its purpose within the project period and is mostly on
the right track to achieving its Overall Goal in the post project period. Based on the five evaluation
criteria, the Project has generated mostly good and positive results despite some concerns about its
efficiency and sustainability. In light of the above, this project is evaluated to be satisfactory.
3-7 Recommendation(1) For the Remaining Project Period
Establish a management system for the new transportation database
The Project Purpose has not been fully achieved. It will be so only when the system to access the
MUCEP database is announced to public transportation-related agencies and institutions in aforthcoming seminar. Any concerns about database management should be explained in thatseminar. For example: 1) Who will manage the database?; 2) Can the MUCEP data be used with norestrictions?; 3) Can users change or modify the data?; and 4) Who will be responsible for updating
the database?
Clarify the TPU’s responsibilities and expected tasks after the Project
The DOTC management has confirmed that the TPU will remain with the department’s Road
Transportation Planning Division, but its responsibilities and expected tasks have not yet been
discussed in the Project. The JPT and the DOTC should thus clarify this issue before the Projectends and the outcomes of discussions should be incorporated in the Project’s final report.
Modify PDM3 based on the actual situation
The JPT and the DOTC clarified that the “Public transportation plan for Metro Manila” statedin the Overall Goal refers, for example, to the public transportation plans for strategic Metro
Manila corridors with important transportation issues. The means of verification should be
reviewed and modified, if necessary.
(2) For the Post Project Period
Continue applying the transportation planning skills and techniques learned
TPU members should continuously apply the skills they learned in the Project through the
preparation of public transportation plans for strategic Metro Manila corridors even after the
Project ends. Most importantly, it has not been sure that the present TPU members will beassigned continuously after the Project. The DOTC should undertake appropriate measures
regarding these concerns.
3-8 Lessons Learned(1) Specify the achievement time of the Overall Goal in the PDM
The Overall Goal was not discussed well between the Japanese and Philippine side in the
Project. The Japanese experts and Philippine counterparts should regularly confirm thexviii

relevance of the Overall Goal to the level of Project Purpose and important assumptions after
the Project ends.

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