Ex-post Evaluation

1-1. Background of the Project

There are more than 6 million cattle head in the Republic of Bolivia; they are breed with a traditional non systematical method under an extensive system of production. The productivity of these cattle is low and must be improved. It is important for Bolivia to increase the beef cattle productivity in order to improve the nutrition of the population that has one of the lowest protein consumption in Latin America.

It is under these circumstances that we executed the project through the scheme of technical cooperation of project type.

1-2. Project Overview

The Project was aimed to improve the productivity through the improvement of beef cattle and the stabilization and improvement of income of ranchers. The Project had an institutional strengthening and a superior beef cattle brood provision component.

According to agreements, Ministry of Agriculture, Cattle and Rural Development (MAGDR) is the entity responsible of the Project, the executing institutions are the Autonomous University, Gabriel René Moreno – Santa Cruz (UAGRM) and the Beni Technical University (UTB). Besides the participation of the Prefectures of Santa Cruz and Beni, Federation of stockbreeders of Santa Cruz (FEGASACRUZ), Federation of stockbreeders of Beni (FEGABENI), Bolivian Association of Zebu Breeders (ASOCEBÚ), Association of Milk Producers (ADEPLE), Federation of Milk Producers (FEDEPLE), Veterinary Laboratory of Research and Diagnose (LIDIVET) and the Agricultural Technological Center in Bolivia (CETABOL). The Santa Cruz center and the Beni Sub Center were installed and the Cattle Improvement Center (CMGBC) was created. It later became the Beef Cattle Improvement Project (PMGBC) in order to perform scientific research and extension.

The actors have different perceptions of the Project. For the cooperation , the Project was for transference of technology from Japanese experts to Bolivian professionals; for the national counterpart, the Project was intended to improve the productive index and benefit economically to the cattle sector; while that the Project was for the productive sector a veterinary service.

At the end, the Project was extended for two years in order to apply and transmit the researches. The CIABO and CMGBC centers were united to create the present "National Beef Cattle Breeding Center" (PMGBC) in order to perform scientific and extension research.

(1) Overall Goal

The cattle productivity has been improved, this way the beef cattle supply has been incremented in the Republic of Bolivia.

(2) Project Purpose

The techniques related to breeding (improvement), reproduction and the handling of cattle feeding, mainly Nelore, has been improved through the systematic introduction of breeding facilities with superior genetics and strengthening of the implementation system of related activities.

(3) Outputs

The productivity of meat was improved due to the systematic use of genetic improvement, for the tests of central behavior of weight gain.

The genetic improvement of fatting cattle is accelerated due to the transference of technology in artificial insemination and embryo transference.

A quarantine system for the introduction of animals was established as a easy and available sanitary technology.

A yearly growth system was introduced to intensify the use of the electric fence.

The productivity of pasture and the handling of forage have improved with the pasturage technology, for the establishment and maintenance of pasture.

The cattle's feeding conditions have improved due to the transference of technology and conservation of minced hay.

The technology transference manual has been elaborated.

The improved C/P technology allows training new technician in relation to meat industry.

(4) Achievements

Improvement of meet productivity by 6 central behavior tests of weight gain in Santa Cruz and 5 in Beni.

Accelerated cattle fattening genetic improvement by the artificial insemination. Embryos transfer was not use.

The use of electric fences was diffused locally and with a little group of shepherds.

The pasture productivity and use of forage with shepherding techniques was partially improved, not extensive.

Four technology transference manuals were elaborated.

Inputs (as of the Project’s termination)

Japanese Side :

Bolivian Side: :

3-1 Summary of Evaluation Results

The objective from the point of view of the Japanese counterpart was achieved, the transference of technology was assimilated and adapted by the centers of Santa Cruz and Beni, but not the national approach that aimed to technically and economically benefit to cattle producers. The cattle productivity improved but the coverage was not meaningful. It only benefited 13% of the shepherds, an elite class in the chain of beef cattle.

The sustainability of the Project is not guaranteed, its continuity does not depend on a priority of development of the sector, but on a political aspect at university level, the active presence of the Cooperation is still important at this moment. This lack of economic and institutional sustainability endangers the technical sustainability that was achieved.

The project has achieved a greater efficiency in the stage of post project, not due to a self effort but due to the lack of resources that obliged to improve the used of available resources.
Internal factors such as communication and follow up of activities and results reduced the impact of the Project, while others such as the andrologic analysis improved the performance of the Project.

(1) Impact

The objectives of the project are being partially achieved. There is an improvement in beef cattle productivity, achieving slaughtering weight in two or two and a half years. It normally took from three to five years. But this impacts only on the group of shepherds that participated in the central tests. Some techniques such as artificial insemination use animals selected through central tests have been improved; there are other practices that required further research, such as the use and feeding of cattle, specially in natural pasturage.

The second part of the objective has not been fulfilled in the post project stage because the systematic introduction of animals with superior genetics has not continued.

A non expected positive impact has been observed, and the andrologic analysis has achieved important economic repercussions for the individual rancher and for the national economy. These proven animals are introduced into cattle herds improving the productivity index, such as the increase in fecundity and calving percentage a greater weight increase and reduction of reproduction costs. The lack of a follow up to the improvement actions of the centers has reduced the real impact of actions and has created an environment of distrust of the cattle sector towards the research of the centers.

There was no communication to increase the impact of the research in the cattle sector.

A negative aspect that was observed is the dependence of the CNMGB towards the universities avoids, that avoids a real and effective participation of other sectors in the project, therefore, they do not share the technical, economic or organizational responsibilities. It becomes an easy position, without responsibilities but with rights and benefits.

An important indicator of the empowering of the Project's results is the fact that two breeding huts of Nelore race in the department of Santa Cruz implement the technique of central behavior test under the supervision of the Center. Changes caused by the intervention of the Project.

In summary, the impact of the Project was important because it helped to the genetic improvement beef cattle at national level. It would not have been possible without the active participation of CNMGB.

(2) Sustainability

The institutional sustainability of CNMGB will depend fundamentally on the political currents that direct the universities, especially the UAGRM, this situation is of high risk while the CNMGB has an economic dependence on them.

Considering the organizational structure and the financing dependence, it becomes a very vulnerable institution, especially without the presence of the cooperation. This institutional and economic vulnerability may affect the continuity of the technical results that were achieved.

At technical level, it was possible to adapt and replicate the techniques that were developed. It caused the continuity of the strategies and lineaments of research that were formulated.

The techniques and practices that were transmitted are ingrained only in part of the elite beef cattle sector. It is necessary to extend this benefit to other the majority of the cattle sector.

The post project stage has been characterized by a continuity and complementation of the practices performed during the Project, such as the brood test, semen extraction to tested bulls selected in the central tests, sale and auction of bulls as well as semen and andrologic tests that rebound in the improvement of economic income of a group of shepherds.

At institutional level, there is an opening move towards CNMGB in this stage of the post project, strengthened by the results that were obtained during the project stage.

At financial level, a decrease has taken been produced in the budget of the institutions participants that it has forced to one more management efficiency of the centers, but there is latent the risk of the budget diminishing furthermore, which puts in doubt the continuity of the CNMGB.

The measure taken by the CNMGB to look for the economic and institutional sustainability, is the approval of the Law of the State that insures financing and guarantees the institutionally. This sustainability approach runs the risk of turning the center into an institution with state efficiency and effectiveness indexes. Therefore, the diversification of the counterpart and the financing will give it a greater degree of sustainability.

(3) Efficiency

The efficiency analysis is justified because it deals with a matter of genetics research with national projection, the investment during the period of the project is justified as time passes by and the results of the initial tests are obtained. Likewise, it allows comparing the efficiency in the use of resources of the periods of Project and post project.

We conclude that the efficiency of the Project was satisfactory, the available resources were used in a correct way, there was a great success in the central behavior test, reaching indexes that exceed the ones obtained at South American level. It was also seen that there is a great potential for development of the improvement activity in the country.

For treating itself about a complex topic and with national projection, the investment effected during the period of the Project is justifiable as it advances the time and major results are achieved.
The stage 2001 – 2003 was more efficient in relation to the operation. There was a decrease of 16% of budget, obtaining the same results of the initial stage and there was a smaller amount of long term and short term experts.

Concerning the operation, there is a deficiency in the formulation of indicators that are objectively verifiable in the base line, this made impossible to quantify accurately the advancement of each stage.

The execution time of the Project was short for the objectives stated in the Logical Framework. Important results were achieved, such as the development and transference of technology to national technicians, but it was not possible to generalize the results obtained in the tests.

3-1. Factors that have promoted the Project

From the year 2004 the investigation complements itself with the Test of Offspring (DEPS), which the transmission tries to evaluate the characteristics of profit of weight in brood of selected animals.

The extraction and processing of semen of animals selected in the tests of central behavior, destined to the sale and to the artificial insemination, promotes the impact of the Test of Daily Profit of Weight (GDDP).

It her sells and finishes off the young bulls proved from the central test and the extraction of semen, increases the commercial value of the animal, improves the prestige of the cabin and increases the economic revenue of the shepherds.

3-2. Factors that have hindered the Project

The negative effect that diminished the impact of the centers is communication. There was a lack of dialog, coordination, consultation and persuasion of the Project's activities. It is added up to the different perceptions that did not allow to improve the impact and sustainability because each participant looked for different results out of the Project therefore the center did not integrate completely to the cattle sector.

The lack of definition in the role of the counterpart weakened the Project, the benefits, responsibilities and attributions were assumed according to private interests.

A more direct interaction of CNMGB with ranchers and a more fluid relation between associations and cattle federations with prefectures and other state instances is very important.

The centralization and dependence towards the universities avoids a real and effective participation of other members of the Project, which do not to share technical, economic or organizational responsibilities, but they attributed the right to demand, to protest and criticize the action of the centers.

The relation established between "CNMGB and ranchers", through FEGABENI and FEGASACRUZ and ASOCEBU, does not allow a total participation of the ranchers in the central tests, covering the genetics of they who do not take an active part of the unions.

The attitude of the shepherd that participates on the central tests is fundamental for the impact of the centers. They do now provide their best animals for the test.

3-3. Conclusion

The first stage of the Project, (1996-2001), was intended to lay the foundations of the genetic national improvement, to motivate and to stimulate the action of the ranchers. The second stage (2001-2004) allowed to consolidate the institution in his investigations and to show the first fruits of the tests that were performed. This stage had more beneficiaries but this population is still not important or representative at national level.

The objectives of the Project were ambitious for a relatively short time, with a complex goal and an important coverage.

At institutional level, there is a lack of a planning, follow up and evaluation system in the CNMGB, there are no correctly formulated indicators, there is not a base line nor a follow up of the results of the Project.

The sustainability of the centers is not guaranteed due to the risk of political and economical instability.

3-5. Recommendations

It is essential to provide connection and consultation spaces and mechanisms to strengthen the sustainability out of the technical aspect in order to improve the communication among the different participants.

We recommend to CNMGB the definition of a planning, follow up and evaluation system for the institution.

We recommend coming to a consensus of a Logical Framework out of the different perceptions of the Project, besides fitting to the present conditions of CNMGB and the new policies of the Japanese Cooperation.

We recommend CNMGB to continue with the research of the Nelore race until all the subjects related to the production are developed and benefit to all the producers.

We recommend emphasizing the research of cattle handling and feeding.

Considering that the techniques and practices that have been taught are ingrained only with the elite beef cattle, it is necessary to extend this benefit to all the producers in the different levels of the chain.

We recommend analyzing the approach of productive municipality as an alternative for the financing and execution of projects.

Due to the organizational and financial vulnerability of the institution, the continuity of CNMGB becomes essential, but with an egalitarian participation of the private and public sector.

It is necessary to construct an instance specialized in extension and diffusion of technology to come to the different levels of the productive chain, where small, medium and big ranchers find answers to their technological requirements and approaches to do ranching.

3-5. Lessons Learned

The participative planning of projects must be a fundamental requirement for the Japanese Cooperation in order to engage the co-responsibility and to involve to all the participating sectors of the project.

It is important to define with total clarity the role of the participants and beneficiaries in the design of the projects.

It should also be a pre-requirement for the execution of the project, a planning, follow up and evaluation system of the executing instance in order to guarantee the execution of actions and attainment of objectives.

The projects must have an egalitarian participation of the state and the private sectors, in the economic aspect, the decision making and the execution of actions. This leveling is fundamental for the sustainability.

The tendency of the regional decentralization must also be taken in the conformation of the structure of the projects. The directorates must be conformed regionally with regional authorities but with national policies established by the head of the sector.

Any project, for its execution, must contemplate a study of the line base.

3-6. Follow-Up Situations

Establishment of meetings with the participants in order to agree on operative and strategic aspects of the Project.

Planning of a workshop with all the actors, including the Cooperation to take strategic decisions in relation to the continuity, sustainability, roles of the actors and beneficiaries, increase of the project towards the extension and internal planning aspects.

All the actions, decisions and financing must be condition and subject to a planning system that includes a correct logical framework.

To sign a agreement directly to the Prefectures of Santa Cruz and Beni, taking advantage of the decentralization process and the election of regional Prefects in Bolivia to heighten the development of the sector as a priority in both departments.

The research of a cattle breeding, reproduction, handling and feeding must be execute with priority, to achieve an integral development of the sector and improve this way the impact and sustainability of the Project.

The CNMGB must be defined scientific indicators of improvement that show the advances achieved at genetic level and not only actions that lead to improvement.