Summary of the Terminal Evaluation
I.

Outline of the ProjectCountry: Kyrgyz Republic

Project: Kyrgyz Republic-Japan Center for Human
Development Project

Sector: Support for the transition to amarket economy

Cooperation scheme: Technical cooperation
project

Division in charge: Japan Center Team,Social Development Department

Cooperation amount (at the time of evaluation):
About 730 million yen (up to the end of FY2006)
Partner country’s implementing organization:
Kyrgyz National University

Period ofcooperation(R/D): Apr. 1, 2003 to
Mar. 31, 2008

Supporting organization in Japan: The JapanFoundation
Other related cooperation: Grant Aid

1-1

Background to and outline of the cooperation

After the collapse of the USSR, the Kyrgyz Republic (hereinafter referred to as “Kyrgyz”)
proceeded with the transition to a market economy based on the idea that economic growththrough the activation of a market economy would greatly contribute to poverty reduction.
Kyrgyz immediately adopted radical measures, such as the issuance of its own currency andparticipation in the WTO, basically in order to develop trade, introduce foreign capital, andpromote priority domestic industries. However, because Kyrgyz is short of natural resources
and is in an extremely inconvenient location in terms of transport access, it could not produce
competitive export products and its investments became sluggish, with the result that Kyrgyz has
not been able to overcome an unstable economic situation. In this situation, it has become
essential for Kyrgyz to establish leading industries, strengthen its weak industrial foundations byattracting foreign capital, develop the supporting human resources, organizations, and systems,
and improve the economic infrastructure.
On the other hand, JICA began to develop practical human resources that support the transition of
Asian countries to a market economy and realize “aid with a Japanese flag”, and it has carried out
Japan Center projects since 2000. In Kyrgyz, the Kyrgyz-Japan Center was already inaugurated
in 1995 by the Kyrgyz Government and the Friends of the Global Fund, an internationalorganization. When the Friends of the Global Fund was discontinued in April 2003, JICA took
over the Kyrgyz-Japan Center project as one of JICA’s Japan Center projects.
Because of this, JICA and the Kyrgyz National University (hereinafter referred to as the “KNU”)
signed a Record of Discussions (R/D) in March 2003 to start the Kyrgyz-Japan Center for Human
Development (hereinafter referred to as “KRJC”) Project (from April 2003 to March 2008). The
KRJC has so far carried out activities to develop human resources for the transition to a market
economy, promote mutual understanding between Kyrgyz and Japan, and deepen friendshipbetween both countries, adopting the following as three main pillars: 1) provision of businesscourses to develop practical human resources for the transition to a market economy; 2) provisionof Japanese language education (Japanese language courses) suitable for various levels oflearners; and 3) mutual understanding programs.
1-2

Contents of the cooperationi

The KRJC provides business courses and Japanese language courses and carries out mutual
understanding programs and other activities to develop human resources for Kyrgyz’s transition
to a market economy and promote mutual understanding between Japan and Kyrgyz.
(1)Overall goal
1) The process of transition to a market economy in Kyrgyz will be enhanced.
2) Mutual understanding and friendly relations between the two countries will be
reinforced.

(2)

Project goal
1) The Japan Center will play a key role in human development of Kyrgyz toward amarket economy.
2) The Japan Center will promote mutual understanding between the peoples of the twocountries through information services and other programs.

(3)

Outputs
1) The Japan Center will be managed efficiently and effectively, and accessible for thegeneral public.
2) Business courses will be continuously offered to provide practical knowledge and skillson the market economy. The implementation of the courses will gradually belocalized.
3) Japanese language courses will be continuously offered to fulfill the needs of generalpublic, professionals in business and public sector, and Japanese language teachers.
The implementation of the courses will gradually be localized.
4) Publication and visual materials related to Japan in such fields as economy, society andculture will be provided. In addition, the Japan Center will be fully utilized for
activities for exchange programs between the two countries.

(4)

Inputs (at the time of evaluation)
Japanese side:
Dispatch of long-term experts: 7 experts Provision of equipment: about USD600,000
Dispatch of short-term experts: 40 experts Sharing of local costs: USD1,147,401
Acceptance of training participants: 26 participants
Kyrgyz side:
Placement of 1 counterpart
Provision of a site and facilities: the whole 2nd floor and a part of the 3rd floor of KNU
Building 7 (850 m2 in total)
Sharing of local costs: payment of utility costs

II.

Outline of the evaluation teamTeam
members

Leader: Mr. Shinji UMEMOTO (Team Director of the Japan Center Program
Team, First Group of the Social Development Department, JICA)
Evaluation Analysis for Japanese Language Course: Mr. Toru SAKAIDA (Expertof the Japanese-Language Institute, Kansai, The Japan Foundation)
Cooperation Planning for Japanese Language Course: Ms. Yuri TAKEDA,
Dispatch and Support Division, Japanese-Language Department, The Japanii

Foundation)
Evaluation Analysis: Mr. Nobuhisa IWASE (Partner, IMG Inc.)
Cooperation Planning: Mr. Hiroaki ADACHI(Japan Center Program Team, FirstGroup of the Social Development Department, JICA)
Period of theevaluation

September 17 to October 2, 2007

III.

Outline of the evaluation results

3-1

Confirmation of the achievements(1)

Status of achievement of the outputs

Type of evaluation: Terminal evaluation

Output 1
About 30 staff members and lecturers, including 10 full-time staff members, have been placed
appropriately and have improved their capabilities through technical transfer by OJT from experts
and other means, with the result that KRJC has been managed efficiently and effectively. On theother hand, many staff members have resigned from the KRJC in order to study abroad. In
addition, it has been pointed out that there is a gap between the capability level and the salarylevel.
With regard to the revenue-expenditure balance, although there has been a system for collecting
tuition and membership fees since September 2005, the ratio of revenues to the total expenditures
has remained at a level of 6 to 16%.
Output 2
The KRJC mainly provides the courses listed below. Because the participants are highly
satisfied with the courses, it can be said that the output, namely, the provision of practicalknowledge and skills for the transition to a market economy, has been achieved.
(1)

Course A (practical business management course: 3 months): 140 participants(2)

Course B (focus industry course: 3 weeks): 41 participants(3)

Course C (focus topic course: about 10 days): 267 participants(4)

Course D (various seminars: 1 day): 1,797 participants

In addition, the training of local lecturers has advanced and the local lecturers’ share of the lecture
hours greatly increased from 13.4% at the beginning of the Project to 51.3% in April to July 2007.
Thus, it can be said that localization has been gradually progressing.
Output 3
The KRJC mainly provides the courses listed below. Because the participants are highly
satisfied with the courses, it can be said that the Japanese language courses are of sufficiently
high quality to fulfill the needs.
(1)

Regular courses (4 courses: Elementary I, Elementary II, Intermediate I, Intermediate II):Of the 332 participants, 210 completed the courses.
iii

(2)

Advanced course (4 months): Of the 80 participants, 42 completed the course.

(3)

Video course (development of pro-Japanese sentiment through the learning of elementarylevel Japanese language): Of the 382 participants, 225 completed the course.

(4)Japanese language test preparation course, interpreter/translator course: 62 participants

On the other hand, because Kyrgyz is short of local lecturers with sufficient ability andexperience, technical transfer to local lecturers has become an issue.
Output 4
As described below, it can be said that the output, namely, use of the KRJC for activities for thepromotion of mutual understanding between both countries, has been achieved.
• Various events were held, including a Japanese film festival, Satsuki-matsuri (a May festival),Momiji-matsuri (an autumn festival), and a music festival. The number of events was 46 andthe total number of participants was more than 11,000.
• Events were held regularly by cultural clubs, involving such activities as Japanese drumming,
calligraphy, origami, and flower arrangement events. The number of participants was morethan 80.
(2)

Status of achievement of the project goals

It is highly likely that the project goals will be achieved by the end of the Project.
Many Kyrgyz citizens have applied for and participated in both a business course and a Japanese
language course. The total number of course participants was about 3,000 as of July 2007 and isestimated to be more than 4,000 by the end of the Project. According to the results ofquestionnaire and interview surveys concerning the terminal evaluation, the participants are
relatively highly satisfied with the courses, and the main business organizations in Bishkek have ahigh regard for the KRJC’s business courses and related activities.
Moreover, the KRJC has succeeded in providing various programs for the promotion of mutual
understanding between both countries. Because the KRJC is located near the busy center of
Bishkek City, it is easily accessible for the general public. As indicated by the number ofvisitors (5,128) and the number of members (260), many Kyrgyz people interested in theJapanese culture and language have frequently visited the KRJC.
3-2

Summary of the evaluation results(1)

Relevance

The Kyrgyz Government specifies in its Country Development Strategy for 2007-2010 that itgives priority to the goal of “sustainable economic development through industrial
diversification.” This Project is substantially in accordance with the Government’s development
needs.
Based on the needs surveys conducted before and during the Project, it has been assumed that themain target groups for the business courses would be owners of small and midsize companies, topivand mid-level executives of companies, and new entrepreneurs. With regard to both thebusiness courses and the Japanese language courses, the number of applicants was more than the
fixed number of participants, and the participants are highly satisfied with the courses.
Therefore, it can be said that the courses are in accordance with the needs of the beneficiaries.
Because Japan’s ODA policy for Kyrgyz specifies that the development of human resources forthe promotion of the transition to a market economy is one of the priority sectors for aid in the
improvement of the infrastructure for sustainable economic growth, the overall goals of thisProject are in accordance with Japan’s ODA policy.
(2)

Effectiveness

Given the achievements in the past four and a half years, this Project is highly likely to achieve
the project goals. The KRJC has succeeded in developing and managing various businesscourses and Japanese language courses. Most of the graduates from the business and Japanese
language courses are highly satisfied with the courses and are eager to put into practice theknowledge and skills acquired or improved through the courses. It is estimated that the total
number of course participants will exceed 4,000 by the end of the Project (a little less than 3,000
participants in the business courses and a little more than 1,000 participants in the Japanese
language courses). More than 11,000 Kyrgyz people have participated in various events for thepromotion of mutual understanding between both countries. The KRJC’s facilities are in aconvenient location and are open to the general public. The good reputation of the KRJC has
been gradually spreading among the general public in Bishkek City.
(3)

Efficiency

This Project is evaluated as being relatively highly efficient. In the past four and a half years,
seven long-term experts were dispatched from Japan. The number of opportunities for dispatching
short-term experts in business management was 40, and 18 short-term experts were dispatched.
Although the effectiveness and efficiency of the Project declined to some extent during a period
when no expert in the business sector was dispatched, it can be evaluated from the status ofachievement of the project goals and outputs, and the results of a questionnaire survey, that thequality, sector, and timing of the experts that were dispatched were appropriate. Although a C/P
was dispatched from KNU as the Kyrgyz Co-Director of the KRJC, smooth, effective, andefficient management of the KRJC was difficult when no Kyrgyz C/P was appointed in 2006.
The local staff members of the KRJC have been assigned appropriately, and all of them have ahigh level of capability and eagerness, and communicate sufficiently with the Japanese staff
members. The project team regularly holds monthly and weekly meetings, and the Joint
Coordinating Committee (JCC) has held three meetings in the past.
(4)

ImpactAlthough it is highly likely that the Project will have a greater impact in future, it is evaluated at
the time of the terminal evaluation that the Project has so far had a relatively limited impact.
Many graduates from the business courses have recognized that the KRJC courses have led to
improvements in their practical business knowledge and skills, improvements in performance, thestarting of new businesses, and career promotion. It can be considered that these impacts will
promote Kyrgyz’s smooth transition to a market economy from the long-term viewpoint.
Although the KRJC has succeeded in providing training courses to the owners of many small andmidsize companies and executives of major companies in Bishkek, the number of participants andgraduates is still so limited that a greater impact cannot be expected. With regard to exchangevactivities for the promotion of mutual understanding between both countries, although various
events were held with the participation of many Kyrgyz people, there is no indicator to clearlymeasure the amount of progress made in mutual understanding at the time of the terminal
evaluation. However, if the KRJC continues and further strengthens its various activities, it canbe fully expected that the impact of the Project will become greater.
(5)

Sustainability

Although the Project has a medium level of sustainability in terms of the technical aspects, theProject’s sustainability is evaluated as weak from the organizational and financial aspects.
1)

Institutional and organizational aspects

The NPO bylaws clearly define the KRJC’s legal status, vision, and position, and justifies theprovision by the KRJC of various training programs and services while collecting tuition fees as
an NPO corporation. Although the Kyrgyz Government has recognized the importance of the
Project, there are no concrete measures provided for supporting the KRJC. The KRJC hasestablished the foundation for daily management but still receives a lot of support from Japaneseexperts. Moreover, to prevent frequent resignations by local staff members, it is desirable tocreate an efficient organizational mechanism to ensure the continuation and stability of theeffective management of the KRJC. Improvement of the institutional and organizationalsustainability of the Project requires a higher level of ownership and commitment by Kyrgyz. In
addition, given the importance of the development of a cooperative relationship with relatedorganizations throughout the country, the private sector, potential customers, and the KRJC
graduates, it is necessary to further strengthen and organize the management of the KRJC withthe positive participation of the Kyrgyz side.
2)

Financial aspects

Although the Kyrgyz side has provided space in buildings and various facilities for the Project, allof the KRJC’s operating expenses are paid by the Japanese side, except for water and electricity
expenses. In this sense, while the Project has no problem that may cause a hindrance to thedaily operations in relation to the financial aspects, it is financially weak from the long-term
viewpoint. Although the KRJC began to collect tuition fees for the business and Japanese
language courses in September 2005, the KRJC’s own revenues account for only 6 to 16% of thetotal annual expenditures. Because the KRJC has still not established a basic policy for
expenditure planning, its own revenues have been accumulated as internal cash assets. In thissense, to overcome the financial weakness, the KRJC should establish a detailed basic policy forthe effective planning of revenues and expenditures.
3)

Technical aspects

All the lecturers and local staff members are highly motivated. Most of the staff members havehigh potential to efficiently carry out the planning and management of the KRJC activities.
Technical transfer to both the lecturers and the local staff members has been carried out
appropriately. However, the number of local lecturers who have latent ability in both businessand the Japanese language is not so high and the number of lecturers who have sufficient practicalexperience in business is low. With regard to the management of the KRJC, although there is atendency for able local staff members to resign from the KRJC, the project team members havebecome able to perform their roles and duties accurately, fully understanding the importance of
teamwork. Efforts should be continued to further strengthen the management capabilities of the
KRJC staff and to improve their capacity for effective planning under their own initiative.
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3-3

Factors for the emergence of the effects(1)

Contents of the planningBecause the three main activities have been carried out continuously since the Friends of the
Global Fund started the KRJC in 1995, know-how and experience have been accumulated
through the management of each activity, contributing to improvements in the effectiveness andefficiency of the Project. Another factor in its success is that the central local staff members (thechief manager and the managers) engaged in the Japanese language courses and the mutual
understanding programs are excellent graduates from the Japanese language courses (four-year
regular courses). That is, in addition to the accumulation of know-how since the Friends of the
Global Fund started the KRJC, the KRJC itself has begun to function as a training institution or
an incubator for human resources for effective organizational management and core humanresources for the promotion of mutual understanding between both countries. Therefore, it canbe considered that the KRJC is showing some sustainability.
(2)

Implementation process

With regard to the business courses and the Japanese language courses, in cooperation withrelated organizations, such as universities in Kyrgyz, the KRJC was able to provide appropriate
services to the “end users” of the KRJC services.
In addition, the management of the business courses has been outsourced to a consulting
company under a comprehensive contract since FY2005. On its own responsibility, theconsulting company has consistently designed and managed the courses in the business sector,
which is rapidly changing, and covers a wide range of fields. This seems to have contributed
greatly to the improvement of the effectiveness and efficiency of the Project through the flexible
design and management of the courses based on baseline surveys and various needs surveys, theselection and dispatch of appropriate short-term experts from among a wide range of humanresources, and the promotion of more effective and efficient management and monitoring ofoperations through the establishment of its own monitoring PDM that defines the PDM of the
Project more closely in terms of numerical targets.
3-4

Problems and the factors causing them(1)

Contents of the planning

Compared with JICA’s ordinary technical cooperation projects, the level of involvement of thepartner country and the implementing organization is lower in this Project. For example, thenumber of C/Ps appointed by the recipient country (Kyrgyz) is low (only one C/P), and there wasa period when no C/P existed due to political changes in Kyrgyz. Therefore, it cannot be denied
that the lack of ownership and commitment by the Kyrgyz side has hindered improvement in theeffectiveness and efficiency of the Project to some extent. There was also a lack of smoothcommunication due to the replacement of the Rector of the KNU and the Kyrgyz Co-Director of
the KRJC (Vice-Rector of the KNU) and the KNU’s lack of understanding about the difference
between the position in the R/D before April 2003 and the framework of aid under the current
cooperation from JICA. In this sense, it can be also considered that one of the reasons for the
failure to raise the level of ownership and commitment from the Kyrgyz side is that cooperation
with related departments and centers in the fields of business administration and Japanese
language education that suit KNU’s needs were not incorporated into the Project at the stage of
project design.
vii

(2)

Implementation process

It can be said that the tendency for local staff members who have improved their capabilities tothen resign from the KRJC is one of the factors impeding the effectiveness and efficiency of the
Project. Basically, it is inevitable for young local staff members who are talented and have
improved their capabilities through experience in Japan’s ODA projects to resign from the KRJC
and seek opportunities to further improve their capabilities, advance their careers, or increase
their salary. Thus, it is important to raise the incentives and level of commitment among local
staff members who work for the KRJC, taking measures such as designing a new personnel
management system, including improvement of the working conditions and the reemployment of
human resources experienced in working for the KRJC on more favorable terms, granting further
discretion to the local staff members, and establishing and clarifying medium-term personnel
assignments and training plans.
3-5Conclusions

As described above, the Project has been highly relevant in terms of both countries’ policies andthe needs of the target groups, given the achievements in each activity so far, and is highly likely
to achieve its goals by the end of the Project. Although the current impact is limited, a greater
impact is expected to emerge through continuation of the activities.
On the other hand, to make the management of the activities more efficient and increasesustainability in the future, it is necessary to increase the ownership by the Kyrgyz side andstrengthen cooperation with the related organizations. In this sense, it is desirable for the parties
concerned to consider Phase 2 as an extension of the Project.
3-6

Recommendations (concrete measures, proposals, and advice concerning the Project)

It is recommended that the project implementing organization and the experts should carry out thefollowing by the end of the Project:
1)

General(i)

To carry out the Project more smoothly and effectively, strengthen the relationship between
the KRJC and the KNU, taking into consideration the importance of mutual benefits.
(ii) When carrying out the Project, manage the KRJC program flexibly so that it can keep up
with changing needs in Kyrgyz.
(iii) To increase the synergistic effects, strengthen coordination among the business courses, theJapanese language courses, and the exchange activities for mutual understanding between
both countries.
2)

Management of the KRJC

To strengthen the management of the KRJC:
(i)
(ii)

The KRJC should establish medium-term personnel assignment and staff training programs.
The KRJC should establish a medium-term financial management plan, including a clear
policy for effective expenditures of its own revenues.
(iii) The KRJC should make greater efforts to secure its own revenues to ensure that the
management is sustainable.
(iv) The KNU and the KRJC should continue their efforts to secure sufficient space to carry out
viii

the KRJC activities effectively and smoothly.
3)

Business courses

To expand effectiveness and impact:(i)

The KRJC should make more efforts to improve the capabilities of local businessconsultants through the business courses – especially A-Course (practical business
management course) and C2-Course (business improvement course).
(ii) The KRJC should cooperate in increasing the effects of synergy with other JICA projects,
such as the rural development program.
(iii) The KRJC should carry out activities for the promotion of regional cooperation with theCentral Asian countries – especially with regard to Kazakhstan, a potential market for
Kyrgyz.
(iv) The KRJC should provide opportunities for exchanging opinions and experience among
business course graduates as a form of follow-up.
4)Japanese language courses

To expand effectiveness and impact:(i)

The KRJC should provide training courses so that Japanese language teachers in Kyrgyz
can further improve their teaching methods.
(ii) The KRJC should support the KNU in its development and improvement of Japanese
language education.
(iii) The KRJC should support the development and improvement of Japanese language
education in local areas in Kyrgyz to the extent possible.
5)

Exchange activities for the promotion of mutual understanding between both countries(i)

To strengthen the appropriate monitoring process of the activities, the KRJC should set
quantitative indicators for measuring the degree of mutual understanding between bothcountries and regularly measure it.
To promote these activities further, the KRJC should more effectively provide the necessary
information to persons who seek opportunities to study in Japan.

(ii)

3-7

Lessons learned (matters that serve as reference materials for the discovery, creation,
implementation, and management of similar projects derived from this Project)

Based on “3-3 Factors for the emergence of the effects” and “3-4 Problems and the factors
causing them,” the following points can serve as lessons when considering Japan Center for
Human Development projects in other countries and Phase 2 of this Project:
1) In addition to accumulating know-how, the Japan Center itself should establish a system fordeveloping human resources for effective organizational management and core humanresources for the promotion of mutual understanding between both countries. This will
improve effectiveness, efficiency, and sustainability. For this purpose, it seems effective tomaintain and strengthen the network of human resources through the establishment of adatabase on the graduates and provide follow-up activities.
2) The use of effective cooperation with local universities and other related organizations will
make it possible to expand the effectiveness and impact of the Project. This is expected toixfurther increase its impact by putting a great deal of effort into cultivating trainers, such as
business consultants and Japanese language teachers.
3) As described above, a comprehensive contract for outsourcing the business courses to a
consulting company has contributed to the effectiveness and efficiency of the courses.
4) To secure the commitment of the partner country, including the C/P organization, it isimportant to give consideration to the project contents and processes at the planning stage,
such as setting activities and outputs from the viewpoint of seeking mutual benefits together
with the implementing organization.

x