Summary of Terminal Evaluation
1. Outline of the ProjectCountry : The Republic of the Philippines
Issue/Sector : Disaster Management
Division in Charge : Global Environment
Department
Period of Cooperation : Jul. 2005 –Jun. 2010

Project title : Project for Strengthening the Flood Management
Function of DPWH
Cooperation Scheme : Technical Cooperation Project
Total cost（As of May. 2010）
Total: about 375Million JPY
Partner Country’s Implementing Organization：
Department of Public Works and Highways (DPWH)
Flood Control and Sabo Engineering Center (FCSEC)
Supporting Organization in Japan：Ministry of Economy, Trade andIndustry (METI)
Related Cooperation：

1-1 Background of the Project
The Government of the Philippines requested the Government of Japan to undertake a technical cooperation project inorder to develop the capacities of flood control and sabo engineers by means of establishing the Flood Control and Sabo
Engineering Center (FCSEC) within Department of Public Works and Highways (DPWH). In response to the request, Japan
International Cooperation Agency (JICA) launched the project for Enhancement of Capabilities (ENCA) in flood control andsabo engineering of DPWH with its aim to enhance the capacities of the engineers of DPWH regional offices. The ENCA
project operated for the period of three years from January 10, 2000 to January 9, 2003, and following the recommendations
made by the terminal evaluation in July 2002, DPWH and JICA agreed to extend the project as ENCA Stage Two until June30, 2005.
Based on the recommendation made by the terminal evaluation for ENCA Stage Two, JICA dispatched the Preparatory
Study Team to the Philippines in May 2005. As a result of the Preparatory Study, the project for Strengthening the FloodManagement Function of DPWH (hereinafter referred to as “the project”) was proposed and the Record of Discussions (R/D)
was signed on June 2, 2005. The project was launched on July 1, 2005, and will be completed on 30 June 2010.
1-2 Project Overview(1) Overall Goal: More effective and appropriately designed flood control and sabo structures/facilities are implemented by
DPWH in accordance with the technical standards, guidelines and manuals.
(2) Project Purpose: The flood management function of DPWH is strengthened through research and development, training,
information management, implementation of pilot projects and creation of the internal support
mechanism.
(3) Output :Output 1
Pilot projects are implemented using the technical standards, guidelines and manuals.
Output 2
Research is conducted for developing/updating technical standards, guidelines and manuals; and assessing
efficient countermeasures for flood control and sabo.
Output 3
Improve knowledge and skills of DPWH engineers on flood control and sabo through training programs.
Output 4
Information Management System is established for a more effective flood management function of DPWH.
Output 5
The internal support mechanism is created to sustain the development of technology and organization in the fieldof flood control and sabo engineering.
1-3 Inputs (As of Feb. 2010)＜Japanese side＞
Long-term expert
6
Short-term expert 12
Acceptance of trainees in Japan＜Philippines side＞
Counterparts
Provision of facilities
Operational cost

Provision of equipment
Operational cost

App. JY10,557 thousandApp. JY13,245 thousand

8
27 (including those who were replaced during the project)
Administrative and dormitory buildings
For local operation
App. JY 95,013
For pilot projectApp. JY 102,175

2. Evaluation Team
1. Mr. Shiro Nakasone (Leader) Director, Disaster Management Division1, Water Resource and Disaster
Members
Management Group, Global Environment Department, JICA
of
Evaluation 2. Mr. Daisuke Kuribayashi (Technical Advisor for Flood Control) Senior Researcher, Public Works ResearchInstitute, International Centre for Water Hazard and Risk ManagementTeami3. Mr. Masaru Tohei (Technical Advisor for Sabo) Inspector, Minister's Secretariat, Ministry ofland ,Infrastructure, Transport and Tourism
4. Mr. Wataru Ono (Evaluation Planning) Deputy Assistant Director, Disaster Management Division1, Water
Resource and Disaster Management Group, Global Environment Department, JICA
5. Mr. Hideyuki Kubo (Evaluation Analysis) Global Link Management Co., Ltd.
6. Mr. Domingo C. Rosario, Engineer III, the Development Planning Division, Planning Service Department,
DPWH
7. Ms. Madelyn B. Loyola, Engineer III, the Development Planning Division, Planning Service Department,
DPWH
9 Feb. 2010 – 25 Feb. 2010
Type of Evaluation: Terminal evaluation

Period of
Evaluation
3. Results of Evaluation
3-1 Summary of Project Accomplishment
Output 1:
Three pilot projects have been implemented for the purpose of capacity building of engineers at FCSEC and DEO by
applying TSG/Manual. Two of pilot projects have been already completed, and the other is under construction (It will becompleted by the end of this project) In the course of the project implementation, FCSEC engineers have been fully involvedin a series of professional work such as; planning (M/P and F/S), designing and construction supervision. According to theengineers involved, eight TSG/Manual were frequently referred to during the implementation of the pilot project.
It should be noted that the case of Kinanliman river is the very first experience of DPWH/FCSEC to develop M/P and F/S
for flood control through the direct involvement of their engineers (the Santa Fe case is the first hands-on experience for sabo
dam construction). With the technical guidance provided by Japanese experts, the engineers involved in the work have largely
improved their understanding and skills on the M/P and F/S development and acquired knowledge and skills on a new type ofcountermeasures.
Output 2:
Since October 2008, the revision process of the TSG/Manuals that were produced during the first phase JICA project (i.e.
ENCA) has been undertaken. Weekly technical meetings have been organized in which staff from FCSEC, BOD, BOC, PS,
BORS and BOM participate. In the meetings, participants examine sentence by sentence in each of TSG/Manual and revise
them so as to make them more comprehensive in content and user friendly in expression. Then four kind of technical report
regarding TSG/Manual have been made by FCSEC so far. Moreover, based on request from district office, Soil Cement
Method has been introduced as economical method and implemented technical transfer to district officers.
A range of research experiments have been conducted at the Hydraulic Laboratory in order to assess the appropriateness ofcountermeasures for flood control and to experiment proposed low-cost structures. In total, 16 experiments were conductedduring the project period in which 6 were for the former purpose and 4 were for the latter including the assessment of soil
cement techniques. The results of the experiments for the assessment of proposed countermeasures at three pilot sites werereflected to the actual operations of the pilot projects. It should be noted that planning, designing, development and datacollection of the research experiments can now be managed by FCSEC engineers unless experiments are too complicated.
Output 3:
So far 22 training courses have been organized for four major topic areas and the number of total participants is 558. The
result of the ex-post evaluation that was conducted by DPWH one year after the training implementation for 6 training courses
includes (the total number of training participants is 140 for the 6 courses and interviewees of the ex-post evaluation were 103;
i.e. 74% of the total participants): (a) 36% of participants say they apply knowledge in their current work much/very muchwhich they learned during the course and 59% say they apply skills; and (b) 85% of participants’ supervisors say the training
has improved overall performance of the trainees by a large extent.
Output 4:
For gathering data on flood control inventory throughout the country, the project/FCSEC distributed a jurisdiction map to
138 DEOs nationwide in 2006 and requested them to provide with location and concerned data of existing flood control
structures within their coverage area. The response rate was 100% for the first inventory. The second round of data collection(i.e. data updating) was conducted in 2009. The rate was 62% for the second time. These data are incorporated into the electric
file in the excel format and drawings and photographs are stored as a hard copy. It is expected that data updating operation
will be conducted every 2-3 years.
The library at the FCSEC building was upgraded. Books and materials concerning flood control have been stored
pertinently, the list of these books and materials was elaborated and a computer retrieving system was developed.
Output 5:
Internal mechanisms of supporting and elaborating effective functioning of FCSEC for flood control with the support ofconcerned branches of DPWH have been created through the establishment of JCC and TWG. JCC has been convened for 6
times as of February 2010. Overall monitoring of the project activities and their progress is the main topic of discussion. TWG
has been organized for 8 times and addressed issues on pilot project implementation.
DPWH launched the preparation process of M/P and F/S for 12 river basins nationwide and created a steering committee
and technical working group for the conduct of M/P and F/S. In the steering committee, Head of FCSEC serves as
vice-chairperson. In the technical working group, project manager of FCSEC serves as chairperson and one engineer is aiigroup member.
The status of FCSEC is “Project Management Office”, which implies that the Office might be closed upon the projecttermination. FCSEC/JICA/Embassy of Japan have repeatedly expressed the requirement of the FCSEC permanency at JCC
meetings in order to utilize quality knowledge and skills of FCSEC for addressing flood control issues of the country.
However, the permanency has not been realized yet.
Project Purpose:
The interviews to the C/P by the evaluation team revealed that some C/P who have been involved in the pilot project andresearch teams have substantially enhanced their professional capacity through the project implementation. The former
acquired knowledge and skills in formulating M/P and F/S on flood control on which he could not address before the project
started, and the latter can now manage the planning, designing and execution of research experimentation at the hydrauliclaboratory even without external technical advice. When the laboratory was constructed in 2002, he could not manage thework at all. Aside from these C/P, the Japanese experts confirmed that most of C/P gradually improved their knowledge andskills related to flood control in various fields such as planning, designing, construction supervision, research and information
management.
A survey result regarding the use of TSG/Manual by DEO indicates that there are at least several cases in which DEO
refers to TSG/Manual for planning, designing and construction of flood control structures.
Overall Goal:
The Quezon 1st DEO, that was in charge of the pilot project implementation at the Kinanliman, has extended flood control
work at the Kinanliman river with their own initiative beyond the pilot project. DEO engineers, who used to construct flood
control structures without planning and due designing, are now applying new knowledge and skills which they have learned
through the pilot project and able to construct more effective and appropriately designed flood control structures in accordancewith TSG/Manual.
FCSEC presented the outline and concept of National Flood Management Framework Plan at the NDCC cabinet meetingon Feb.28, 2006, which is the highest coordination body for disaster preparedness, disaster operations and rehabilitation fromdisaster. However, the Plan has not yet been taken into considerations officially.
On the other hand, FCSEC is still tentative Project Office. It is necessary that FCSEC becomes permanent organization sothat the role of FCSEC will be functioned appropriately in Government of Philippines.
3-2 Evaluation Results(1) Relevance
Relevance of the project is very high based on the following reasons. First, floods, slope failure and debris flow havecaused loss of more than 700 lives and 8 billion pesos annually in the Philippines so that flood control activities are criticallyimportant to address the issue. Second, flood control is relevant in the context of national policies in the Philippines including
the Medium-Term Public Investment Program (2005-2010) and the Strategic Plan of DPWH (2004-2010).
Third, theidentification of project target group is highly appropriate. Principal target group of the project is DPWH staff at the level of
RO/DEO as well as FCSEC engineers. Since the project purpose is to strengthen technical and administrative capacity of
DPWH, it is appropriate that their staff at field level are the main target group. Fourth, an approach adopted in the project ishighly pertinent for the achievement of project purpose. The project was designed in such a way that Japanese experts build up
the technical capacity of FCSEC engineers with hands-on experiences and FCSEC engineers then enhance knowledge andskills of local DPWH staff at the RO/DEO level. This approach is pertinent in relation to the project purpose as it leads tostrengthening the capacity of DPWH staff. Fifth, the project is highly relevant to aid policy of the Japanese government. The
country assistant program for the Philippines stipulates environmental protection and disaster prevention as one of fourpriority areas of cooperation.
(2) Effectiveness
Effectiveness of the project is high based on the following reasons. First, the project purpose is achieved at the certain
level in a sense that (1) knowledge and skills of FCSEC engineers have been enhanced to a large extent in terms of planning(i.e. MS and F/S), designing and construction supervision of flood control projects (relatively small-scale); research; training;
and information management compared with their capacity five years ago; and (2) eight out of ten RO/DEO which responded
to a questionnaire already utilize TSG/Manual that were produced by FCSEC/ENCA. Second, the causal relationship of five
outputs and project purpose is strong and they contributed toward the achievement of project purpose. Among others, one of
the most important aspects in the project implementation is the direct involvement of FCSEC engineers in the entire process ofplanning, designing and construction supervision (and maintenance that will be followed in coming months) .This has
successfully enabled to strengthen the capacity of FCSEC.
(3) Efficiency
Efficiency of the project is high based on the following reasons. First, four outputs are produced at the satisfactory leveland one (output 5) at the moderate level at the time of the terminal evaluation. Second, in producing output 1, the strategy ofthe pilot project implementation is very appropriate. Japanese experts (both long-term and short-term) provided technical andmanagement guidance and suggestions to FCSEC engineers and the engineers then provided the same to DEO engineers andcontractors in the field. This strategy has efficiently functioned for FCSEC engineers to digest technical knowledge andenhance their skills. Third, shortage of C/P and slow disbursement of local budget negatively affected the effective
implementation of project activities and the achievement of outputs. In addition, the PMO status of FCSEC also negatively

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affected the project implementation because the employment of FCSEC engineers is on the temporal basis so that they need toworry about a new employment opportunity toward the end of the project. It is likely that the technical capacity of FCSEC
engineers could have been further strengthened if these obstacles were removed. Despite these difficulties regarding theprovision of inputs (from the Philippines side), activities have been conducted and outputs are being produced. This is largely
thanks to strenuous efforts by FCSEC engineers and Japanese experts. It should be noted, however, that the shortage of inputs
cannot be justified even though activities are conducted and outputs are produced.
(4) Impact
Impact of the project is high based on the following reasons. First, during the survey by the evaluation team, no negative
effects are identified or reported that are brought about by the project. Second, the following positive effects are identified: (A)some RO/DEO are reportedly using TSG/Manuals produced by FCSEC/ENCA for designing and constructing flood control
structures within their jurisdiction area; (B) FCSEC plays a crucial role in developing M/P and F/S for 12 river basinthroughout the country, which is the major study of DPWH at the moment; and (C) the following positive effects are observedat respective pilot project sites: a) In the Kinanliman river pilot project, engineers at the DEO have acquired new knowledge
and skills regarding flood control through the 1st and 2nd phases of the Kinanliman flood control project (which are the pilot
project supported by the JICA project). They have then applied such knowledge and skills at the 3rd phase of the Kinanliman
flood control project (which is the DEO’s own work beyond the JICA project). In addition, residents nearby the site highly
appreciate the construction of the flood control structure as has removed the risk of flood at the site. This was alreadydemonstrated on September 26, 2009 when large typhoon hit the area. Residents were no longer required to evacuate but could
just stay at home. B) In the Santa Fe pilot project, engineers at the DEO have learned cost-effective and low-emission soil
cement techniques and they now plan to use the technique for the construction of flood control structures. An idea of applying
the soil cement technique at other DEOs is also emerging.
(5) Sustainability
Sustainability of the project is ambiguous at the time of the terminal evaluation because the organizational support to
FCSEC by the government is not clear as of mid-February 2010. If the rationalization plan is endorsed by the government and
FCSEC holds permanent status, human resource and finance are secured even after the termination of the project. Hence,
FCSEC could function toward overall goal and sustainability can be considered as high. If the FCSEC permanency is notrealized, provision of human resource and finance would continue over the next couple of years thanks to the study on 12 river
basin but the shortage of staff and slow disbursement of budget would prevail as the case of now. Furthermore, the role of the
FCSEC and its expertise will not be sustained after the termination of the M/P and F/S development unless the permanency isrealized. There is a serious risk that the enhanced capacity of FCSEC might fade away if the engineers are moved to otherpositions inside or outside DPWH upon the termination of M/P and F/S development process. Sustainability is considered as
low in such a case.
3-3 The factors that promoted the realization of effects(1) Factors that concerning to PlanningNone(2) Factors that concerning to the Implementation Process
Project management and monitoring have functioned appropriately. Communication among Japanese experts and C/P has
been smooth and status and progress of project activities are effectively shared through formal monthly meetings as well as
informal discussions. All the Japanese experts and C/P mention that project decision making process has been satisfactory
within FCSEC/the project. FCSEC compiled a project progress report every three months and submitted it to NEDA as aformal monitoring report.
C/P engineers have been seriously and actively involved in the project activities. This perception is supported by all theJapanese experts. Questionnaire survey and individual interviews to C/P clearly indicate that the method of technology
transfer by Japanese experts is very appropriate and all of the C/P, including FCSEC director, appreciate the work and effortof the Japanese experts.
One critical issue is the decision making by DPWH regarding budget disbursement and C/P assignment. With repeatedrequests from FCSEC/the project, these issues are to some extent improved at early 2010.
3-4 The factors that impeded the realization of effects(1) Factors that concerning to PlanningNone(2) Factors that concerning to the Implementation Process
Due to shortage of C/P and slow disbursement of local budget, the implementation of project activities has been delayedcompared with the original plan. In particular, the implementation of pilot project activities was affected. The lack of C/P
assignment also caused the existing C/P to address many different jobs in parallel. Despite such difficulties, all the planned
activities will be completed by the end of the project. There is one concern, however, that the construction of sabo dam at
Santa Fe river, one of the pilot project sites, might not be completed by the end of the project if the release of remaining
budget (5 million pesos) is delayed.

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3-5

Conclusion
We conclude the project is very positive overall, at the time of the terminal evaluation, and the five evaluation criteria
results are favorable, except that sustainability is dependent on the policy choice by the government of the Philippines.
Furthermore, we find that the enhanced knowledge and skills of FCSEC engineers, which were materialized through theiractual experiences of the project implementation, are truly precious assets in addressing flood control issues in the Philippines
as there is no such quality expertise within the country other than in FCSEC. If permanency of FCSEC is realized,
sustainability would be improved and overall goal would be achieved.
3-5 Recommendations

Policy aspect: DPWH and other concerned agencies are strongly requested to make their best efforts to realize the
FCSEC permanency in order to address flood control issues in the Philippines through the utilization of quality
knowledge and skills of FCSEC, which are the best capacity in the country. Furthermore, DPWH is requested to pay
more attention to the importance of addressing flood control and allocate more budget to its activities at the RO/DEO
level.
Technical aspect: FCSEC and DPWH are requested to adopt human resource policy at FCSEC that its engineers acquirea range of knowledge and skills regarding flood control from planning to designing, construction supervision andmaintenance. This has to be materialized through their direct involvement in the actual experiences in the project
implementation in the field, as the current pilot project is doing. Furthermore, DPWH is strongly advised to effectively
utilize knowledge and skills that are stored at FCSEC in addressing flood control issues throughout the country.

Organizational aspect: In order to ensure capacity building of FCSEC engineers as mentioned above, DPWH andFCSEC are requested to allocate a number of positions at FCSEC and secure the budget for its operation. It is alsosuggested that skilled, mid-level and young engineers are working together in order to share quality knowledge andskills for future generation in the country.

M/P and F/S: In the process of M/P and F/S of the 12 river basin, DPWH is requested to assign FCSEC to be in chargeof the implementation of M/P and F/S and also to provide fund for modeling and testing proposed countermeasures atthe Hydraulic Laboratory.
Technical advice by a Japanese expert: JICA is requested to support the provision of technical advice by a Japaneseexpert to FCSEC engineers when it is required since the scale of M/P and F/S of the 12 river basin is rather large
compared with that of the three pilot projects. The expert should hold due capacity in terms of both technical expertiseand communication skills for the establishment of respectful interpersonal relationships with FCSEC engineers.
3-6 Lessons LearnedCapacity building of local engineers in flood control can be more effective if local engineers have direct involvement ofin the entire process of flood control activities such as planning, designing and construction supervision with technicaladvices by Japanese experts.

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