Case Study Report on Capacity Development
A Study of the Effectiveness and Problems of JICA’s Technical Cooperation from a Capacity Development Perspective
Case Study of Support for the Advancement of Ghana’s Irrigated Agriculture
Takahiro MIYOSHI Representative Director, M M Service Inc. Narihide NAGAYO Senior Advisor, JICA
September 2006
Institute for International Cooperation
Japan International Cooperation Agency
This report is based on the research findings by the Japan International Cooperation Agency (JICA) 2004 Visiting Fellow. The Japanese version of this report was published in 2005. The views expressed in the report do not necessarily reflect those of JICA. The contents of this report may not be reprinted without permission from JICA. Published by: Research Group, Institute for International Cooperation, Japan International Cooperation Agency 10-5 Ichigaya-Honmura-cho, Shinjuku-ku, Tokyo, JAPAN 162-8433 Fax: (81)-3-3269-2185 E-mail: iictas@jica.go.jp
Contents
Introduction ................................................................................................................................... Supplementary Theory: Capacity Development (CD) ................................................................ i iii
Chapter 1 Historical Changes in Technical Cooperation Provided to Ghana’s Irrigated Agriculture Sector...................................................................................................... 1-1 Overview of Ghana’s Irrigated Agriculture ................................................................... 1-1-1 General Overview .............................................................................................. 1-1-2 Implementing Agency of Irrigated Agriculture (Outline of GIDA) ................... 1-1-3 Outline of Public Irrigation Districts .................................................................. 1-1-4 Transition of the Management Framework for Irrigation Districts .................... 1-1-5 Transition of Policies for Irrigated Agriculture, and Japan’s Technical Cooperation ........................................................................................................ 1-1-6 Issues of Ghana’s Irrigated Agriculture .............................................................. 1-2 Overview of the Transition of JICA’s Cooperation in the Irrigated Agriculture Sector ......................................................................................................... 9 6 7 1 1 1 2 4 5
Chapter 2 Characteristics of Each Phase of JICA’s Cooperation ............................................ 19 2-1 Issues to be Examined, Methods and Points for Consideration ..................................... 19 2-1-1 Issues to be Examined ........................................................................................ 19 2-1-2 Method of Examination ...................................................................................... 20 2-1-3 Research Process ................................................................................................ 24 2-1-4 Points for Consideration ..................................................................................... 25 2-2 Individual Expert Phase (from 1988 to 1992) ............................................................... 25 2-2-1 Overview ............................................................................................................ 25 2-2-2 Initial Intent and the Implementation Process .................................................... 26 2-2-3 Results ................................................................................................................ 29 2-2-4 Analysis .............................................................................................................. 32 2-3 Mini Project Phase (from 1993 to 1995) ....................................................................... 35 2-3-1 Overview ............................................................................................................ 35 2-3-2 Initial Intent ........................................................................................................ 36 2-3-3 Results ................................................................................................................ 38
2-3-4 Analysis .............................................................................................................. 41 2-4 SSIAPP Main Phase (from 1997 to 2002) ..................................................................... 45 2-4-1 Overview ............................................................................................................ 45 2-4-2 Initial Intent ........................................................................................................ 45 2-4-3 Results ................................................................................................................ 48 2-4-4 Analysis .............................................................................................................. 51 2-5 SSIAPP Follow-up Phase (from 2002 to 2004) ............................................................. 55 2-5-1 Overview ............................................................................................................ 55 2-5-2 Initial Intent ........................................................................................................ 55 2-5-3 Results ................................................................................................................ 57 2-5-4 Analysis .............................................................................................................. 60 2-6 Longitudinal Analysis of JICA’s Support for Ghana’s Irrigated Agriculture ................ 63 2-6-1 Longitudinal Analysis Point of View ................................................................. 63 2-6-2 Characteristics of JICA’s Support from the View of Longitudinal Analysis ...... 64 2-6-3 Modeling JICA’s Support ................................................................................... 68
Chapter 3 JICA’s Technical Cooperation as Perceived by Ghana ........................................... 71 3-1 Issues and Objectives of Field Studies .......................................................................... 71 3-1-1 Issues of Field Studies ........................................................................................ 71 3-1-2 Field Study Objectives ....................................................................................... 72 3-2 The Reality of Technical Cooperation as Seen from the Field in Ghana ....................... 73 3-2-1 The Reality as Seen by the Counterparts ........................................................... 73 3-2-2 The Reality as Seen by the Farmers ................................................................... 84 3-2-3 Survey Results by Theme ................................................................................... 88
Chapter 4 Effectiveness and Problems of JICA’s Technical Cooperation, and Recommendations ..................................................................................................... 98 4-1 Analysis of the Effectiveness and Problems of JICA’s Technical Cooperation in Ghana’s Irrigated Agriculture ........................................................................................ 98 4-2 Proposals for Improvement ............................................................................................ 105 4-3 Issues for Future Research ............................................................................................. 112
Bibliography ................................................................................................................................. 114
List of Figures and Tables
Figure A-1 The “Old Model” and the “New Model” of Technical Cooperation........................... Figure 1-1 GIDA Organizational Chart ........................................................................................ Figure 1-2 Negative Cycle in Ghana’s Irrigated Agriculture........................................................ v 3 8
Figure 1-3 Overview of the Transition in JICA’s Efforts for Technical Cooperation ................... 17 Figure 2-1 Example of a Basic Logic Model................................................................................ 22 Figure 2-2 Configuration of a Comprehensive Logic Model ....................................................... 23 Figure 2-3 The Logic Model (Initial Intent) ................................................................................. 30 Figure 2-4 The Logic Model (Follow-up Study) .......................................................................... 33 Figure 2-5 The Logic Model (Initial Intent) ................................................................................. 39 Figure 2-6 The Logic Model (Follow-up Study) .......................................................................... 42 Figure 2-7 The Logic Model (Initial Intent) ................................................................................. 49 Figure 2-8 The Logic Model (Follow-up Study) .......................................................................... 52 Figure 2-9 The Logic Model (Initial Intent) ................................................................................. 58 Figure 2-10 The Logic Model (Follow-up Study) .......................................................................... 61 Figure 2-11 An Image of the Progressive Approach ...................................................................... 69 Figure 3-1 Balance and Gap in the Relationship between Experts and Counterparts.................. 77 Figure 3-2 Counterparts’ Recognition Structure .......................................................................... 83 Figure 3-3 The Trend of Changes in Agricultural Production ..................................................... 85 Figure 3-4 The Trend of Changes in Farmer Incomes.................................................................. 85 Figure 4-1 Modeling JICA’s Technical Cooperation in Support for the Advancement of Ghana’s Irrigated Agriculture ..................................................................................... 99 Figure 4-2 The Assumption Manifest in JICA’s Slogan ............................................................... 102 Figure 4-3 The Cycle of Providing Cooperation through Strategic and Comprehensive Initiatives..................................................................................................................... 108
Table A-1 Table A-2 Table 1-1 Table 1-2 Table 1-3
A Shift in the Paradigm in UNDP Reports ................................................................. Criticisms towards Technical Cooperation, and the Responses in JICA’s Report....... Breakdown of GIDA Expenditure in 2003 ................................................................. Outline of Public Irrigation Districts (as at June 30, 2003) ........................................ Transition of Technical Cooperation from the Perspective of Capacity
iv vi 3 5
Development ............................................................................................................... 10
Table 1-4 Table 1-5 Table 1-6 Table 1-7 Table 1-8 Table 2-1 Table 2-2 Table 3-1 Table 3-2 Table 3-3 Table 3-4 Table 3-5
Outline of the Two Model Irrigation Districts ............................................................ 12 Input from the Japanese Side ...................................................................................... 13 Achievements of Japan’s Technical Cooperation in the Model Districts.................... 13 Input from the Japanese Side ...................................................................................... 15 Examples of the Achievements of the Follow-up Cooperation .................................. 15 Classification of the Approaches Taken in Each Phase.............................................. 20 Change of the Approaches Taken in Each Phase........................................................ 67 Field Study Schedule .................................................................................................. 72 Evaluation of Japanese Experts by Counterparts........................................................ 74 Characteristics of Good/Poor Experts and Good/Poor Counterparts.......................... 75 Impact of Technical Cooperation on Individuals, Organizations and Society ............ 79 Reasons for Improved Agricultural Production, and their Respective Levels of Effects ..................................................................................................................... 87
Table 3-6 Table 3-7 Table 3-8 Table 3-9
Arguments For and Against Financial Incentives ....................................................... 90 Counterpart Thoughts on Incentive Alternatives ........................................................ 91 Counterpart Happiness and Unhappiness ................................................................... 92 Donor Thoughts on Financial Incentives .................................................................... 93
Table 3-10 The Trend of Donors Providing Budget Support........................................................ 95 Table 3-11 Donor Thoughts on Technical Cooperation ................................................................ 97 Table 4-1 Table 4-2 Summary of the Effectiveness and Problems in Japan’s Technical Cooperation........ 104 The Capacity Required for the “Advancement of Irrigated Agriculture” and the Scope of JICA’s Initiatives .......................................................................................... 106 Table 4-3 Changes in the Circumstances surrounding Ghana’s Irrigated Agriculture................ 107