Summary of the Terminal Evaluation
I.

Outline of the ProjectCountry: Lao People’s Democratic
Republic

Project: Lao-Japan Human Resource Cooperation
Center Project

Sector: Other

Cooperation scheme: Technical cooperation project

Division in charge: Japan Center
Team, Social Development
Department

Cooperation amount (at the time of evaluation):
About 460,513,000 yen

Period ofcooperation(R/D):
Sep. 1, 2000 to Aug.
31, 2005

Partner country’s implementing organization:
Ministry of Education, National University of Laos
Supporting organization in Japan: The JapanFoundation
Other related cooperation: Grant Aid

1-1

Background to and outline of the cooperation

Laos has been carrying out economic reforms for the transition to a market economy since1986. Thus, the development of human resources for these economic reforms has become an
important issue. As a part of the development of human resources, the National Universityof Laos was established with the support of the Asian Development Bank in 1995. At thesame time, the Faculty of Economics and Business Management was also established in theuniversity. However, because the Asian Development Bank’s support project ended in
September 2001, Laos requested technical cooperation from Japan.
On the other hand, as a part of the support for the development of human resources tocountries in transition to a market economy, Japan planned the establishment of Lao-Japan
Center in Laos and presented the plan to Laos in July 1998. As a result, both countries
agreed that Japan would provide support for the Faculty of Economics and Business
Management of the National University of Laos and cooperation in the establishment of the
Lao-Japan Center as a technical cooperation project. Japan signed the Record of Discussions(R/D) on July 6, 2000, and started the five-year technical cooperation project on September 1,
2000. Although the Lao-Japan Human Resource Cooperation Center (hereinafter referred toas the “LJC”) Project and the support for the Faculty of Economics and Business Managementof the National University of Laos were managed as a single project in the first four years,
both were managed separately from 2004 because the activities of each of them was
expanded.
1-2

Contents of the cooperation(1)

Overall goal
(a)
(b)

(2)

The Center will perform the core function of human resource development in thefield of business area for market-oriented economic reform of Lao P.D.R.
The Center will be utilized as the key place for mutual understanding between thepeople in Lao P.D.R and Japan.

Project goal
i

(a)
(b)

(3)

Outputs
(a)
(b)
(c)
(d)
(e)
(f)
(g)

(4)

The LJC’s management system will be established and the Center will be
managed smoothly.
The LJC’s business courses will provide practical knowledge on the market
economy to business people in Lao P.D.R.
Japanese courses will be developed and managed according to the Lao society’s
needs.
The LJC’s computer courses will be smoothly managed and carried out.
Cultural exchange programs between both countries will be smoothly managed
and carried out.
Information on Japan, Lao P.D.R., and other countries will be available at theCenter.
The Center will be actively used for educational activities.

Inputs (at the time of evaluation)
(a)

(b)

II.

The Center provides services to enhance human resource development for themarket-oriented economic reform of Lao P.D.R.
The information and the opportunities to participate in activities for mutual
understanding are provided for people of both countries by the Center.

Japanese side:
Dispatch of long-term experts:
Dispatch of short-term experts:
Training in Japan:
Training in third countries:
Provision of equipment:
Sharing of local operating costs:

9 experts
29 experts
20 participants
1 participant (Thailand)
17 million yen
108 million yen

Lao side:
Placement of counterparts:
Staff employed by the LJC:
Provision of land and facilities:
Operating costs:

9 counterparts
27 staff memberssite for the LJC and a parking lot
utility and communication costs

Outline of the evaluation teamTeam
members

Team Leaders: Mr. Senya MORI, Resident Representative of the JICA Office in
Laos
Business Course Evaluation: Mr. Masaaki HANAI, Senior Advisor of the JICA
Research InstituteJapanese Language Course Evaluation: Mr. Motoki KOBAYASHI, Professor of
the International Student Center of Kagoshima University, Technical
Advosor of JOCVJapanese Language Education: Ms. Hiroko Tsuka, Dispatch and Support
Division, Japanese-Language Department, The Japan Foundation
Evaluation Analysis: Mr. Isao DOJUN, Chuo Kaihatsu Corporation
Cooperation Planning: Mr. Shingo MORIHATA, Japan Center Team, FirstGroup of the JICA Social Development Department

Period ofJan. 31 to Feb. 24, 2005

Type of evaluation: Terminalii

theevaluation
III.

Outline of the evaluation results

3-1

Confirmation of the achievements

evaluation

Under this Project, 9 long-term experts and 29 short-term experts were dispatched over thefive years to design business courses and Japanese language courses according to local needs
and provide the counterparts with guidance concerning the management of the courses.
They also secured and trained local lecturers and established the foundation for the LJC
Project implementation system. From September 2001, short-term business courses were
held 11 times (once every four months) to teach members of the society about business ingeneral, drawing 1,234 participants in total over about four years. As planned initially, local
lecturers (teachers from the Faculty of Economics and Business Management) took charge inall the subjects (16 subjects in total: 8 basic subjects and 8 advanced subjects), except for
special seminars by Japanese short-term expert lecturers. Texts in the Lao language wereprepared for all the subjects. Moreover, the courses were managed mainly by the LJC staff
members (2 counterparts) who received technical transfer from Japanese experts. In thisway, progress was shown in the localization of the management of the business courses.
With regard to the Japanese language courses, the LJC copyrighted and published “Japanesefor Everyone,” a text in the Lao language. Using the text, the LJC provided Japanese
language courses 11 times (once every three months) with the participation of 2,618 persons
in total over about 4 years. Minna-no-nihongo (Japanese for Everyone) has been used also
by Japanese language schools in Vientiane. According to the results of a questionnaire
survey conducted in 2004, more than 75% of the business course participants answered thatthe courses were useful for their work, and about 80% of the Japanese course participants
answered that the courses were very helpful for their business and life. In addition, thelibrary, the media room, the study room, and other LJC facilities have been frequently usedmainly by students of the National University of Laos. The number of daily visitors to the
LJC is 200 on average. The LJC’s computer courses are provided to officials of the Lao
Government and students of the National University of Laos. A total of 834 officials andstudents participated in its computer courses in the past two years. The LJC’s computer
courses have played a certain role in the improvement of IT skills. In addition, a total of
3,670 persons participated in mutual understanding programs (such as events in which the
LJC introduces Japanese culture to Lao people), which have been held almost every month.
As planned initially, this Project achieved the goal of the LJC playing an important role in thedevelopment of human resources in Laos. However, with regard to the other goal of the“promotion of mutual understanding between the people of both countries,” although the Laopeople’s understanding of Japan has been promoted through various events for the
introduction of culture, the achievement of the goal was limited mainly because most of theevents were held for students of the National University of Laos and because efforts have been
insufficient to promote Japanese people’s understanding of Laos.
3-2

Summary of the evaluation results(1)

Relevance

The project goals and the overall goals are consistent with the main goals specified in the
National Social and Economic Development Plan (2001-2005) of Laos – ensuring sustainableeconomic growth and promoting the development of human resources in all sectors. They
are also in accordance with Japan’s aid policy. Moreover, there is a great need for the LJC’siii

activities, and the size of the target group is judged to be appropriate.
is highly relevant.
(2)

Therefore, this Project

Effectiveness

It can be said that the LJC has been playing an important role in the development of humanresources through its business courses, Japanese language courses, and computer courses.
The LJC has been carrying out mutual understanding programs in cooperation with variousorganizations to accept participants from a wider range of fields. However, many
participants in mutual understanding programs are students of the National University of Laos
because there is no Japanese expert in charge of the programs and there is only a limited space
for the programs. Many people visit the LJC to obtain information by using the media room.
While the first project goal (playing an important role in the development of human resources)
can be evaluated as highly effective, the efforts for the second project goal (promotion ofmutual understanding between the people of both countries) should be expanded andstrengthened further, although a certain level of effectiveness has been secured.
(3)

Efficiency

The inputs from the Japanese side into this Project were insufficient concerning the dispatchof experts for mutual understanding programs and the provision of training in Japan to thecounterparts in the LJC’s management department. However, the other inputs were carriedout almost according to plan within the project period. In addition, nine full-time
counterparts were placed in the LJC to be engaged in the management of the facilities and thecourses, and the other inputs from the Laos side were carried out according to plan. As aresult, the Lao staff members, including the counterparts, began to play an important role inthe management of the LJC and the efficiency of the management increased. With regard to
the LJC’s mutual understanding programs, however, although the input of experts was notplanned at the beginning of the Project because only the provision of places (facilities andequipment) for mutual understanding was planned, it has become necessary to consider
dispatching Japanese experts in Phase 2 since the expansion of the LJC’s activities requires
more substantial dispatch efforts than before. In addition, with the diversification of the
LJC’s activities, it has become necessary to improve the capabilities of the counterparts in the
LJC’s management department. Therefore, when examining inputs for Phase 2, it isnecessary to consider carrying out training for the counterparts in the LJC’s management
department (procurement, accounting, etc.) and the library management department.
(4)

Impact

The Lao Government and private companies have been forced to increase their international
economic competitiveness with regard to ASEAN countries. This situation has remained thesame since the beginning of the Project. Under the circumstances, it can be said that the
LJC’s provision of useful knowledge to the participants in the business courses has played acertain role in developing human resources in the fields of economics and business
management, such as business persons and government officials, and this has contributed to
one of the overall goals, “Laos’s social and economic development,” to a certain extent.
However, it has become difficult to evaluate strictly how much impact the LJC has from thequantitative viewpoint. This is because the overall goals have been set at a much higher
level than the project goals and the relationship between them is unclear since there are many
external factors involved. Therefore, to measure the LJC’s impact on the overall goals, it isnecessary to continue and expand the activities from a long-term viewpoint and evaluate themfrom multiple viewpoints. It is also necessary to evaluate the LJC’s impact in relation toiv

individual changes in behavior patterns and improvements in performance, such as
management improvements in the companies of the business course participants.
With regard to the second overall goal, “strengthening of the relationship between the Laopeople and Japan,” it is possible to carry out a qualitative analysis, for example, to show that
the LJC’s provision of information on Japan through its various activities (business courses,
Japanese language courses, and mutual understanding programs) has promoted the Laopeople’s understanding of Japan and thereby strengthened relations between the Lao people
and the Japanese people. However, it is difficult to carry out a large-scale quantitativeevaluation study, such as a study on the attitudes of people in both countries.
(5)

Sustainability(a)Organizational aspects
The LJC is a public institution belonging to the National University of Laos,
where nine public employees are working as full-time counterparts. Moreover,
27 staff members have been employed from the LJC’s own revenues and areengaged in the management of the LJC. The LJC consists of three sections: theJapanese Language Course Section, the Business Course Section, and theAdministrative Section. The chief and assistant chief of each section is
appointed by the university. In addition, the Lao Director-General and Vice
Director-General of the LJC are appointed directly by the Ministry of Education.
Because the LJC regularly holds and manages business courses, Japanese
language courses, and computer courses as training courses for the development of
human resources, it can be said that the LJC has established the organizationalfoundation.

(b)

Financial aspects
The LJC’s utility and communication costs are paid by the Ministry of Financethrough the National University of Laos. In addition, the LJC receives tuition
fees from training course participants and uses them for the basic salaries of the
LJC staff members, remuneration for the lecturers of the business courses and thepart-time lecturers of the Japanese language courses, the purchase of consumables,
and other expenses. However, taking into account JICA’s payment for these
expenses, it cannot be said that the LJC is financially self-supporting. Therefore,
first of all, it is necessary for the Japanese side to cooperate with the Lao side toestablish a basic financial policy for managing the LJC.

(c)

Technical aspects
Most of the business course lecturers are teachers of the Faculty of Economics andBusiness Management of the National University of Laos. Generally, they havea high ability as lecturers. Although they have sufficient theoretical knowledge,
the provision of practical knowledge and skills requires the invitation of lecturers
from various types of organizations in Laos, such as private companies,
government agencies, and business schools.
Most of the Japanese language course lecturers are Japanese experts and Japanese
residents in Laos. Lao lecturers also give basic lessons in some courses.
However, to be able to give all the lessons at the basic level, Lao lecturers need tov

continuously strengthen their competence in Japanese.
The computer courses for government officials are provided by teachers of the
Department of Mathematics of the National University of Laos and are managed
independently. However, because they cannot flexibly handle the participants
according to their learning speed and intellectual ability, it is necessary to devise
teaching methods suitable for the learning capacity of the participants.
The LJC staff’s management capabilities have been gradually improving as awhole. If the existing staff members continue to work for the LJC and improvetheir capabilities, the LJC’s technical sustainability will increase.
3-3

Factors for the emergence of the effects(1)

Contents of the planning

In the first four years of the period of cooperation, this Project was the same as the support
project for the Faculty of Economics and Business Management of the National University of
Laos. From the beginning of the design of this Project, it was planned that teachers of theFaculty would be used as local lecturers of LJC’s business courses. As planned, the teachersof the faculty have served as local lecturers of the LJC’s business courses. Such a frameworkof mutual cooperation has facilitated the stable securing of local lecturers and contributed toan improvement in the sustainability of the business courses. At the same time, because theparticipants are active proprietors and employees, the local lecturers have become able tounderstand the actual issues through the exchange of opinions with the participants andacquire practical knowledge, which has resulted in an improvement in their lectures.
(2)

Implementation process

In this Project, questionnaire surveys of the participants of each of the LJC’s activities(business courses, Japanese language courses, computer courses, and mutual understanding
programs) have been conducted regularly. Based on the results of these surveys, the courses
have been regularly evaluated and changed. Because this improvement process incorporated
into the activities has enabled the provision of services according to the needs it can therefore
be said to be effective in improving the outputs.
3-4Problems and the factors causing them(1)

Contents of the planning

At the beginning of this Project, it was assumed that the Japanese side would permanently
provide inputs into the management of the LJC. Moreover, it was considered that theexistence of the LJC in Laos in itself would be significant for the promotion of friendshipbetween both countries. As a result, the management of the Project itself seems to havebecome the purpose of the Project. In addition, because the Project has been carried out
without any quantitative indicators that measure the level of achievement, it is hard to say thatthe outputs have been appropriately monitored. As a result, the Project has not been fully
managed according to the PDM and has insufficiently recognized the improvements in thecapabilities of the LJC staff and the counterparts. This has hindered the achievement ofsome of the outputs.
(2)

Implementation processviCommunication among those within the Project has not been sufficient. Meetings between
the Japan side and the Laos side have been held irregularly in reality, and meetings among theJapanese experts have been a place for reporting activities instead of solving problems. It
can be pointed out that if the knowledge obtained through the project activities had beenretained through smooth communication between the Japanese and Lao sides, the long-term
experts might have performed their duties more productively.
3-5

Conclusions

As a result of a series of consultations, the Lao side and the Japanese evaluation teamconcluded that the outputs specified in the PDM have almost been achieved. However, toachieve the project goals, it is judged necessary to carry out further activities to improve thesustainability (profitability) of the LJC. In addition, because the Lao Government requested
the continuation of support for another five years (September 1, 2005 to August 31, 2010) as
Phase 2, the evaluation team decided to consider this positively.
3-6

Recommendations (concrete measures, proposals, and advice concerning the Project)(1)

Increase in training opportunities for counterparts and the LJC staff members

Improvements in the capabilities of the Lao staff will facilitate their positive participation in
the management of the LJC, which will then contribute to the effective management of the
LJC. In addition, to raise the sustainability of the LJC organization by the end of the Project,
it is recommendable to consider increasing OJT and training opportunities for improving thecommunication abilities and acquiring basic knowledge related to the Project, such as
knowledge about the mechanism of Japan’s official development assistance (ODA), andconsider providing training in Japan for Lao accountants and librarians in Phase 2.
(2)

Strengthening of the practical contents of business courses

Although teachers of the Faculty of Economics and Business Management have sufficientacademic knowledge as business course lecturers, the participants have requested morepractical contents based on actual experience. The LJC is expected to take measures todiversify the lecturers by the end of the Project, such as inviting local lecturers from privatecompanies, and to take measures to incorporate case studies in neighboring countries in thecontents of the business courses in Phase 2.
(3)

Support for strengthening the network among teachers of the Japanese language

There are 22 teachers of the Japanese language in Laos (as of 2003). It is important to createa network among them. The LJC should take the leadership in gradually forming the network,for example, by holding study meetings. In Phase 2, the LJC is expected to endeavor to
expand the network in which Lao teachers can participate.
(4)Construction of a system for regularly providing opportunities of promoting mutual
understanding between the people of both countries

The target of the LJC’s mutual understanding programs is limited to the students of the
National University of Laos. To alter this situation, the LJC should diversify thebeneficiaries by encouraging the general public rather than university students to participate in
the programs to the extent possible. In Phase 2, to ensure a match between Japan’s need tovii

promote exchanges with Laos and the resources available in Laos, it is desirable not only todispatch experts in the promotion of mutual understanding, but also to construct a system forregularly providing opportunities of promoting mutual understanding between the people ofboth countries, such as the acceptance of study tours from Japan, with the cooperation of the
JICA Centers in Japan and the JICA Headquarters that have access to international exchangeorganizations in Japan.
(5)Strengthening of the LJC’s function to provide information (regular updating of thewebsite)Although the LJC has launched a website, a system for independently updating it has still notbeen established. Because the website is an important tool for providing information to othercountries, including Japan, it is urgently necessary for the LJC to develop a system forcollecting information for public relations and, in Phase 2, promote Japanese technical transfer
by Japanese experts for the improvement and updating of the website.
3-7

Lessons learned (matters that serve as reference materials for the discovery, creation,
implementation, and management of similar projects derived from this Project)(1)

Project design with consideration for the local lecturers

From the outset, support for the Faculty of Economics and Business Management of the
National University of Laos and the establishment of the LJC have been designed and carriedout under the same project. As designed initially, all of the LJC’s regular business courses
have been managed by local lecturers (teachers of the Faculty of Economics and Business
Management), while Japanese experts serve as lecturers for short-term special seminars andplay a role in improving the capabilities of local lecturers.
(2)

Setting of practical goals and concrete indicators

Since this Project’s PDM only qualitatively indicates the project goals and the overall goals, it
was difficult to evaluate the extent to which the results of the project activities contributed tothe achievement of the goals. In Phase 2 (or similar projects that focus on the developmentof human resources), it is important to establish quantitative indicators for each activity andcollect quantitative data to measure the level of achievement.

viii