Summary of Evaluation Results
1. Outline of the ProjectCountry: Mongolia

Project Title: Capacity Development Project for Air Pollution
Control in Ulaanbaatar City

Sector:Cooperation Scheme: Technical Cooperation Project

Planning/Government-Government-E
nvironment Issue
Division in Charge:

Total Cost: Approx. 480 million yen

Global Environment Department
Period of Cooperation:

Partner Country’s Implementation Organizations:

March 2010 - March 2013 (three

Counterpart (C/P): Air Quality Department of the Capital City

years)(AQDCC)(R/D): December 2009

Counterpart Working Group (C/P-WG): 19 organizations
working with the AQDCC
Supporting Organization in Japan：None
Related Cooperation Scheme: Issue-based Training:
Countermeasure against Automobile Pollution in Urban Area,
Two-step-loan Project for Small and Medium-scaled Enterprise
Development and Environmental Protection Phase II

1-1 Background of the Project
As Mongolia is endowed with rich coal resources, the country is heavily reliant on coal for an energy
source. Most of the coal consumed in Ulaanbaatar City is characterized by its high moisture and ash
content, which is subject to heavy dust emission during combustion. The sources of the pollution are
three thermal power plants, approximately 200 HOBs (Heat Only Boilers), CFWHs (Coal Fired Water
Heaters), and 200,000 - 300,000 Ger stoves in more than 130,000 households in the Ger areas in
Ulaanbaatar City. Air pollution is especially severe in winter when much coal is burned for heating. The
most problematic pollutants at present are particulate matters like dust, PM10 and PM2.5 emitted fromthese heating facilities and power plants.
The Ulaanbaatar City government established the Air Quality Division under the Nature Environmental
Protection Department of the Capital City in 2006, which was later upgraded to the “Air Quality
Department of the Capital City (AQDCC)” in February 2009. The AQDCC’s staff members did not havesufficient knowledge and experiences to deal with this complicated issue.
The Government of Mongolia requested the Government of Japan to provide technical assistance totackle air pollution problems in Ulaanbaatar City in 2007. JICA conducted the Project Formulation
Study in April 2008, the first Detailed Planning Survey in December 2008, and designed the overall
framework for the assistance. The survey confirmed that large and medium emission sources including
power plants and HOBs were contributing to the degradation of the air quality in Ulaanbaatar City. The
survey also confirmed the efficacy of the enforcement of the emission standards in improving airxquality. Along with this process, relevant agencies and personnel at national and city level are identified
to develop the Mongolian side capacity in those aspects in air pollution control above mentioned.

In

order that the project could transfer various expertise to the most adequate agencies and personnel and toaccommodate the Mongolian side institutional collaboration, the survey team proposed theestablishment of the counterpart working group (C/P-WG) consisting of 19 relevant agencies andsections identified, in addition to the project counterpart (C/P) and the Joint Coordination Committee(JCC). Finally, the contents of the technical assistance and the assignment of personnel for JCC, C/P and
C/P-WG were agreed during the third Detailed Planning Survey in August 2009, and the Record of
Discussions (R/D) was signed in December 2009.
1-2 Project Overview
To strengthen the capability of administrative countermeasures against air pollution, JICA has
implemented a technical cooperation project by focusing on the power plants and HOBs as major air
pollutant sources.
(1) Overall Goal
Measures for emission reduction of air pollutants will be strengthened in Ulaanbaatar City.
(2) Project Purpose
Capacity for air pollution control in Ulaanbaatar City is strengthened, paying special attention to thehuman resource development of the Municipality of Ulaanbaatar and other relevant agencies among
other aspects of the capacity development.
(3) Outputs
1. Capability of AQDCC and the other relevant agencies to evaluate emission inventory and impacts on
air quality is developed.
2. Stack gas measurements are periodically implemented in Ulaanbaatar City.
3. Emission regulatory capacity of AQDCC is strengthened under the cooperation with the relevant
agencies.
4. Emission reduction measures to major emission sources are enhanced by AQDCC.
5. AQDCC and the relevant agencies can integrate the results from output 1 to 4, and take them into the
air quality management, and disseminate them to the public.
(4) Inputs【Japanese side】 Total amount of inputs: approximately 480 million yen
Experts: 14 experts (102.33 MM in total for three years) in nine (9) areas such as stack gas
measurement, emission inventory, database, energy saving technology, and simulation
Number of trainees received: 25 (Training theme: stack gas measurement, environmental
administration, and air pollution control)
Equipment: 30.42 million yen

xiLocal expenditure borne by the Japanese side: 38.54 million yen (As of October 2012)【Mongolian side】
Number of C/P personnel including C/P-WG : 41
Land and facilities: storage and office space
Local operation cost borne by the Mongolian side: approximately 19.18 million tugrik for renting
offices, etc. (As of October 2012)
2. Evaluation Team
【Japanese side】
Mr. Nobuhiro Ikuro

Team Leader

Deputy Director General and Group Director for
Environmental Management, Global Environment
Department, JICA

Mr. Taizo Yamada

Air Pollution Control

Senior Advisor in Environmental Management, JICA

Mr. Koji Maeshima

Evaluation Planning

Deputy Assistant Director, Environmental Management
Division1, Global Environment Department, JICA

Ms. Noriyo Aoki

Evaluation Analysis

Consultant, IC Net Limited

Team Leader

Officer, Urban Development Policy Department of the【Mongolian side】
Mr. Chultemsuren
Tsogtsaikhan
Ms. Sarangerel

Mayor’s Office of Capital City (UDPDMOCC)
Evaluation member

EnkmaaOfficer, Environment Monitoring Strategy and Planning
Division, National Agency for Meteorology andEnvironment Monitoring (NAMEM)

Period of Evaluation: November 25 – December 8, 2012
Evaluation Type: Terminal Evaluation Study
3. Results of Evaluation
3-1 Confirmation of Results(1) Achievement of Outputs
Almost all the Outputs have been achieved. Therefore, the achievement of the Outputs is moderately
high. Compared to the situation prior to the Capacity Development Project for Air Pollution Control in
Ulaanbaatar City (hereinafter the “Project”), the capabilities of C/P and C/P-WG to analyze sources of
air pollution and evaluate the air quality have been enhanced. Technology has been transferred tomeasure stack gas continuously in Ulaanbaatar City. In order to strengthen the ability of the AQDCC tocontrol emissions, the Project began the Boiler Registration Management System. The results of the
Outputs 1 to 4 have been documented to issue measures to control emission sources of air pollutants.
The Project provided the scientific data and information on air pollution control to the decision makers
and tried to release them to the general public and disseminate them, although more efforts should be
made.

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(2) Achievement of the Project Purpose
The indicators of the Project Purpose have been mostly achieved. Therefore, the achievement of the
Project Purpose is moderately high. The AQDCC has conducted emission inventory data collection,
evaluation of air quality and stack gas measurements, and released the annual report concerning theresults of these undertakings in cooperation with the other relevant organizations. Then the AQDCC
proposed the measures on air pollution control. The Mayor Order on the Boiler Registration
Management System was also issued. From now on, agreements among the relevant organizations at thenational and municipal levels must be made, and an institutional framework to promote measures tocontrol air pollution must be developed.
3-2

Summary of Evaluation Results(1) Relevance
The Project is highly consistent with the Mongolian policies on the air pollution control measures aswell as Japan’s ODA policy towards Mongolia. It is also addressing properly the needs of the capacity
development for air pollution control measures. The Project’s approach is to utilize Japan’s comparativeadvantage in the area of air pollution mitigation measures. The range of the Project activities isappropriately designed to avoid overlapping with the projects by the other donor agencies. Thus it is fairto say that the relevance of the Project is high.
(2) EffectivenessThe capabilities on stack gas measurement, data collection, and analysis of C/P and C/P-WG have
improved because of the technology transfer by the Project. The Project came up with eleven air
pollution control measures and three of them were adopted as part of Ulaanbaatar City’s Operational
Program. The remaining measures are to be discussed among the AQDCC and the related organizations
for possible implementation. More efforts are required to discuss the measures by involving theorganizations concerned, and clarify an institutional framework for strengthening pollution control
measures for making them more feasible. Thus the effectiveness of the Project is moderately high.
(3) Efficiency
At the time of the Mid-term Review, it was pointed out that delays in delivery of the necessary
equipment affected the progress of the Project. The C/P and the JICA experts strived to minimize thenegative effects of the delays by continuing training courses, on-the-job training (OJT), seminars, andworkshops. Despite the influence of the change of government, most of the planned activities have been
implemented. The training courses in Japan have been carefully designed to make the Project activities
practical and effective. Local human resources have also been utilized as necessary. The AQDCC’s staff
turnover has decreased and the number of staff members has increased. The inputs produced the
expected outcomes in an adequate fashion. Accordingly, the efficiency of the Project is moderately high.
(4) Impact
The prospects for achieving the Overall Goal are fair. Various ripple effects of the Project werexiii

confirmed in the terminal evaluation study. Therefore, it is fair to say that the impact of the Project ismoderately high.
In order to achieve the Overall Goal, it is required for C/P and the stakeholders to upgrade the quantityand quality of their activities to a satisfactory level, and develop their capacity to present persuasive
recommendations and suggestions based on data and information with solid technical foundation for theelaboration of necessary pieces of legislation and the implementation of air pollution control measures.
The Overall Goal will be achieved as long as the AQDCC and other stakeholders keep strengthening
such capacity.
(5) Sustainability
The sustainability in the policy aspect is moderately high, because the direction of Mongolia’s policies
on air pollution control measures is favorable. However, from the institutional aspect of the AQDCC,
the collaboration with C/P and C/P-WG must be strengthened. As for technical capacity, thesustainability of stack gas measurements is high, but other areas such as simulation modeling, boiler
inspection, and energy saving measurements require further enhancement to acquire enoughsustainability. In relation to the financial aspect, due to the recent trend of policy formulation on air
pollution reduction, it has become easier than before to secure budget allocation. Therefore, the overallsustainability of the Project is fair.
3-3 Factors contributing to realization of effects(1) Factors related to planning
Before the inception of the Project, several preparatory surveys were conducted to identify and plan
precisely the necessary inputs such as Japanese experts, implementing agency, technical areas and theirlevels, and required equipment. C/P-WG helped the AQDCC make up for its personnel constraints,enhancing the Project’s effectiveness through a comprehensive partnership.
(2) Factors related to the implementation process
The training courses in Japan matched the contents of the Project, helping the trainees build teams andextract and consider solutions to problems. The SCDM (Sustainable Capacity Development Matrix) has
been used to clarify the roles of divisions of the relevant organizations, and the collaboration framework
in order to ensure the sustainability of the Project. Moreover, three interpreters have been employed toplay a pivotal role in the technical transfer.
3-4 Factors that impeded realization of effects(1) Factors related to planning
The decision makers were not included in the personnel of C/P and C/P-WG, which caused somedifficulties in the capacity development and institutional building that the Project intended to promote.
The Project had to be started before winter because most of the activities in relation to air pollution wereconcentrated in winter. Because of the timing of the inception, the Project missed the opportunity for the
first winter measurement.

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(2) Factors related to the implementation process
Since the various organization has been involved as C/P and C/P-WG member and the overlapped
period of Japanese experts has been limited, C/P-WG meetings have been not periodically held.
Therefore, Therefore, although the technical transfer of each technical team has been progressed, air
quality control measures based on scientific data has been delayed to propose through the relevantorganizations.
3-5 Conclusion
Almost all the Outputs have been achieved during the Project period by the efforts of both the
Mongolian and Japanese sides. Since the contents of the Project’s cooperation meet the policies andneeds, it is fair to say that the relevance is high. The effectiveness of the Project is moderately highbecause the Project Purpose has been almost achieved. With regard to the efficiency of the Project, it ishigh in terms of the amount of inputs and achievement of the Outputs. However, because submission
was delayed on recommendations on air pollution reduction on the basis of scientific data with the
involvement of the relevant organizations, it is fair to say that the efficiency is moderately high. Ripple
effects of the Project are emerging. However, the prospects for achieving the Overall Goal in three tofive years are fair. If the relevant institutional matters can be addressed and further technical assistancewill continue to reinforce the capacities of C/P and C/P-WG, the sustainability of the Project will beenhanced. In conclusion, the sustainability of the Project is fair.
3-6 Recommendations
I. Tasks to be completed by the end of the Project(1) Strengthening the institutional framework on air pollution control
The AQDCC shall conclude an official agreement in relation to collaboration with relevantorganizations at the national and municipal levels in order to establish an institutional framework for air
quality management. Such agreement should clarify the roles, responsibilities and division of work
among the parties. In order to proceed with the undertaking above, the training titled the “Air Pollution
Administration Course,” which is to be held in December 2012 in Japan, should be utilized.
(2) Communicating with the decision makers on air quality management
By the time of the terminal evaluation, several measures to combat air pollution have been formulated.
For any implementation in the future, the proposed measures shall be discussed and examined among
the stakeholders, then go through the relevant upper-level organizations for their endorsement. The
proposed measures will be then submitted to the decision makers by the termination of the Project.
(3) Implementing the capacity assessment on air quality management of the Mongolian side
SCDM shall be updated and the capacity on air quality management of C/P and C/P-WG shall beassessed. By comparing the initial status with the updated one at the end of the Project, the progress of
capacity development brought by the Project will be analyzed. This will reveal issues to be tackled incontinued assistance in the future.

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(4) Utilizing the Final Seminar in January 2013 to share the Project results with stakeholders andto raise public awareness
The Final Seminar is to be held in January 2013. The seminar will have around 100 participants, such as
members of the National Committee on Air Pollution Reduction and the Donor and Mongolian Joint
Meeting. On this occasion, the outcomes of the Project so far will be shared with the participants, andthe recognition on the Project will be enhanced among the stakeholders and the general public.
II. Tasks to be undertaken hereafter(1) Strengthening the AQDCC’s institutional framework for air quality management
1) Promoting the AQDCC’s specialization
The AQDCC should become a specialized organization with substantial expertise on air quality
management in order to provide scientific data and information to support the relevant decision-making
process. Moreover, the QA/QC (Quality Assurance and Quality Control) system as well as the personnel
system for necessary tasks in air quality management should be firmly established.
2) Continuing human resource and institutional development in terms of quality and quantity
The number of the AQDCC staff members is small for the organization’s enormous tasks. Moreover, theexpertise of the staff members should be improved. Although the Project has been contributing to thelatter issue, it should be addressed in such a way that the AQDCC will become an effective organization
for air quality management.
3) Clarifying responsibilities among the AQDCC, Municipality of Ulaanbaatar, District andKhorooAs the AQDCC is a relatively new agency, the relationship is not clearly defined between the AQDCC
and other parts of Ulaanbaatar City such as District and Khoroo in activities on air quality management.
At present, the AQDCC is undertaking a substantial amount of work that should be done at the District
and Khoroo levels. Ulaanbaatar City should make clear the division of responsibilities and duties related
to air quality management. A better co-working system for the AQDCC, District and Khoroo should besought.
(2) Enhancing contribution of the AQDCC to the National Committee on Air Pollution Reduction
The National Committee for Air Pollution Reduction is an organization endowed with the authority togive directions to organizations dealing with air pollution reduction. The committee is able to officially
identify and to distribute the roles and responsibilities of each organization in order to tackle air
pollution through an official partnership among the relevant organizations. Therefore, the AQDCC
should increase contribution to the committee and work hard to gain more support from it.
3-7 Lessons Learned(1) Project formulation for more effective technology transfer
The Project has been formulated through the project formulation studies and the detailed planningxvi

surveys. The Project activities and C/P and C/P-WG member agencies and personnel have been
identified and selected though the process above. Both the Mongolian C/P personnel and the Japaneseexperts have been properly selected. In case of technical transfer involving a high level of expertise, it isessential to understand the situation on the ground and the existing resources in order to make properplans and implement them.
(2) Consistent supervision on project implementation
For a project in which various experts with a high level of expertise are periodically dispatched like thisProject, the total number of months for the experts’ dispatch is limited. Moreover, the experts mainly
engage in activities specified in TOR. Integration of the project should be sustained with substantial
efforts and attentions.

JICA internal resources such as staff member and senior advisors at JICA

headquarters should be dispatched continuously to perform advisory and supervisory works from astrategic view point with a longer time-frame for the involved sector of the project. Through properinterventions and follow-ups, JICA would be able to make the project bring about substantial progress
and achievements.
(3) Utilization of SCDM
The Project used the SCDM to clarify the division of roles and the ways of collaboration with therelevant organizations for ensuring the sustainability of the Project. The SCDM describes the personnel
in the relevant technical areas, content of technical transfer, activities, and skills for each output of a
project, as well as required equipment, information sources, manuals, budget, team building, andinstitutional framework. Since a PDM is not able to describe activities of the organizations required forcollaboration, the SCDM is useful for stakeholders to understand the institutional framework andcontents of relevant activities.
(4 ) Expert dispatch MM and technical transfer
A total of 14 experts have been dispatched for three years. The duration of the dispatch is approximately
102 MM in total. Among several technical teams, the flue gas measurement team has achieved acredible effect in transfer of skills and knowledge. An analysis on the team’s achievement shows thatfour experts in the team have been dispatched for a total of 33 MM. The training by the team has been
undertaken for 90 days in total for three years. Following the precisely designed training plan, the teamhas conducted lectures in the classroom and on-site demonstrations to provide the trainees with
opportunities to strengthen skills from both the theoretical and practical aspects for a long period. The
participation rate of training by members of C/P and C/P-WG is relatively high. It indicates thattransferring technical skills needs a substantial dispatch period and inputs of experts.
(5) Need for involvement of decision makers in a capacity development project
A capacity development project deals with institutional development in addition to human resource
development. It is important for such project to include decision makers as C/P or stakeholders because
the understanding and collaboration by decision makers is indispensable for institutional development.

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(6) Timing of inception of a project
Since most of the relevant activities are concentrated in winter, the appropriate timing of the project
inception must be identified. The donor side should carefully prepare a project before sending experts
and equipment so that those inputs become timely and effective.
(7) Sufficient number of interpreters
The Project employed three interpreters based on the proposal by the detailed planning surveys. Aninterpreter plays an important role for technical transfer. The Project educated them so that they would
have a good command of required specialized terminology and technical words. When the dispatch
period of several experts overlapped, the Project needed additional interpreters. It is clear that atechnical cooperation project requires a sufficient number of interpreters.

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