Evaluation of BSOD programmes IPEX and Proexport Evaluation IPEX an… · Final evaluation reportBSOD programme Mozambique andColombia 1 . Table ofContents . List of Abbreviations

Evaluation of BSOD programmes IPEX and Proexport Commissioned by the Netherlands Enterprise Agency

Evalua ion of BSOD programmes IPEX and Proexpor

CBI - N th rlands Ent rpris Ag ncy

FINAL REPORT

Ede, he Ne herlands, June 2016

FINAL REPO ORT

Evalua ion of BSOD programmes IPEX and Proexpor r

CBI - N th th rlands Ent rpris s Ag ncy

Ede, he Ne herlands, JJune 2016

Sam Boering Francine Egber s

ISO 900 :2008 certified MDF Training & Consultancy BV

Bennekomsew w 6717 LL Ede, The Ne herlands eg 41, el.nr.: +31 318 650060

e-mmail: [email protected], websi e: www.mdf.nl

http:website:www.mdf.nlmailto:e-mmail:[email protected]

Final evalua ion repor BSOD programme Mozambique and Colombia 1

Table f C ntents

List of Abbr viations 3

1 Ex cutiv Summary 4

2 Introduction 7

2.2 S ruc ure of he repor 7

3 S t up and impl m ntation of th valuation 8

3.1 Objec ives 8

3.2 Differen case s udies 8

3.3 Evalua ion process 9

3.3.1 Ev lu tion process in Moz mbique 9

3.3.2 Ev lu tion process in Colombi 10

3.4 Research ques ions and me hodology 10

3.5 Delinea ion of he evalua ion 11

3.6 Limi a ions 12

3.6.1 Moz mbique 12

3.6.2 Colombi 12

3.7 No e on Proexpor - ProColombia 13

4 Th BSOD programm 14

4.1 Mozambique 14

4.1.1 Economic nd politic l context Moz mbique 14

4.1.2 IPEX' role in export promotion 15

4.2 Colombia 16

4.2.1 Economic nd politic l context Colombi 17

4.2.2 The role of Proexport/ ProColombi in export promotion 18

4.2.3 Org nis tion l structure 18

4.2.4 Key elements of the BSOD progr mme in Colombi 19

4.2.5 Knowledge M n gement 20

4.2.6 Link with ECP 21

4.2.7 The Theory of Ch nge 21

5 Ov rvi w of valuation r sults 22

5.1 Assessmen per evalua ion cri eria Mozambique 22

5.1.1 Relev nce 22

5.1.2 Effectiveness 26

5.1.3 Efficiency 29

5.1.4 Imp ct 31

5.1.5 Sust in bility 32

5.2 Assessmen per evalua ion cri eria Colombia 33


5.2.1 Relev nce 33


5.2.3 Efficiency 45

5.2.4 Imp ct 47


6 Conclusions 51

6.1 Conclusions DAC cri eria Mozambique 51

6.1.1 Relev nce 51


6.1.3 Efficiency 52

6.1.4 Imp ct 52


6.1.6 Conclusions - Minimum Qu lity Norms (MQN) 52

6.2 Conclusions DAC cri eria Colombia 53

6.2.1 Relev nce 53


6.2.3 Efficiency 54

6.2.4 Imp ct 55


6.2.6 Conclusions Minimum Qu lity Norms (MQN) 55

7 L ssons l arn d/ Implications for futur CBI support in th xport valu chain 57

7.1.1 Loc l ownership / loc l drive 57

7.1.2 P rtner rel tions 58

7.1.3 Working t different levels in n org nis tion 58

7.1.4 Focus nd flexibility 59

7.1.5 Link between ECP nd the BSOD progr mme 59

7.1.6 Efficiency 60

7.1.7 Skills versus competencies 60

7.1.8 Knowledge M n gement nd st ff turnover 60


7.1.10 Food for thought 61

Ann x s Ann x 1 Terms of Reference

Ann x 2 Bibliography

Ann x 3 Lis of Key Informan s

Ann x 4 Background Informa ion

Ann x 5 Evalua ion Ma rix


List of Abbr viations

ANDI Asociación Nacional de Empresarios de Colombia / Na ional Associa ion of En repreneurs of Colombia

BCC Bogo á Chamber of Commerce BMS Bes Marke Selec ion BSO Business Suppor Organisa ion BSOD Business Suppor Organisa ion Developmen CBI Cen re for he Promo ion of Impor s from Developing Coun ries CLUSA The Coopera ive League of he USA CPI Cen ro de Promoção de Inves imen os CTA Confederação das Associações Económicas CUT Con a Única do Tesouro DAC Developmen Assis ance Commi ee DEI Direc ora e for In erna ional S ra egies (ProColombia) ECP Expor Coaching Programme e.g. example given EKN Embassy of he Kingdom of he Ne herlands EMM Expor Marke ing and Managemen (BSOD module) EMP Expor Marke ing Plan EU European Union FAO Food and Agricul ure Organisa ion GAZEDA Gabine e das Zonas Económicas de Desenvolvimen o Acelerado GDP Gross Domes ic Produc FACIM Mozambique In erna ional Trade Show IOB Policy and Opera ions Evalua ion Depar men MINBUZA IPEME Ins i u e for he Promo ion of Small and Medium En erprises IPEX Ins i u o de Promoção de Expor ação LDC Leas Developed Coun ry LF Logical Framework LFA Logical Framework Analysis LIC Low Income Coun ry MAC Marke Access Condi ions MAR Marke Access Requiremen s MD Marke Developmen (BSOD module) MES Marke En ry S ra egy MI Marke Informa ion (BSOD module) MoFA Minis ry of Foreign Affairs MQN Minimum Quali y Norm MR Marke Research PARPA Pover y Reduc ion Ac ion Plan PNISA Programa Nacional de Inves imen o do Sec or Agrário PSM Proexpor Selling Me hodology PXP Proexpor OECD Organisa ion for Economic Coopera ion and Developmen OVI Objec ively Verifiable Indica or RVO Rijksdiens voor Ondernemend Nederland – Ne herlands En erprise Agency SME Small and Medium En erprises SP S ra egic Planning (BSOD module) ToR Terms of Reference WTO World Trade Organisa ion

4Final evalua ion repor BSOD programme Mozambique and Colombia

1 Ex cutiv Summary

The presen documen concerns he ex ernal evalua ion of wo BSOD (Business Suppor Organisa ion Developmen ) projec s: one projec in Colombia wi h Proexpor (now ProColombia), implemen ed from February 2010 o November 2012, and one in Mozambique wi h IPEX, implemen ed from Sep ember 2007 o November 2012. In Mozambique, firs s eps were made o in egra e a BSOD projec wi h he value chain approach whereas in Colombia he BSOD projec focused on enhancing he effec iveness of he organisa ion by developing a uniform approach o service provision, wi h a cen ral role for marke in elligence. This, oge her wi h he con ex ual differences be ween he coun ries, makes he projec s very differen in na ure. They were selec ed for his evalua ion o draw lessons learned by unders anding he de erminan s of success and failures in he differen con ex s.

The evalua ion s ar ed in in he beginning of 2016 wi h a kick-off mee ing on January 7. Field work ook place be ween February and March. On April 12, a presen a ion and sense making even was held a he CBI wi h he aim o discuss findings and ob ain fur her inpu s from an ins i u ional perspec ive. The ou comes of his session are included in his evalua ion repor .

Cont xt

The BSOD projec in Mozambique was conduc ed wi h IPEX - he na ional Ins i u e for Expor Promo ion ha is linked o he Minis ry of Indus ry and Commerce. The projec focused on compe ency1 developmen (phase 1) and he applica ion of hese compe ences wi hin he seven pilo projec s (phase 2). In Colombia, he focus of he BSOD projec wi h Proexpor was on he developmen of a uniform expor promo ion me hodology wi h a more cen ral role for marke in elligence and on knowledge managemen in order o reduce he nega ive impac of high s aff urnover.

Socioeconomic and expor condi ions be ween Colombia and Mozambique differ grea ly. Colombia is now a middle income coun ry, wi h a quickly growing economy and rela ive good condi ions for in erna ional rade/business (curren ly ranking 54 on he Doing Business Index). Mozambique is a leas developed coun ry, wi h a more challenging environmen for in erna ional rade/business (ranking #133 on he Doing Business Index - 2016).

Evaluation qu stion

The overall evalua ion ques ion was: to what extent and how does CBI involvement contribute to institutional development of the BSOs to enhance export capacity of SMEs? Findings in response o his ques ion were collec ed hrough a mixed me hod approach which included documen analysis, in erviews, focus group discussions, workshops, in erne research and online surveys. In pursui of he answers, he evalua ion focused on he DAC cri eria and analysed each of he cri eria in erms of wha wen well and where is space for improvemen .

In ligh of he findings of he evalua ion, he following conclusions concerning he key evalua ion cri eria were drawn.

R l vanc

Bo h projec s addressed locally iden ified needs and s ar ed based on he reques of he Business Suppor Organisa ion (BSO). In Mozambique, he ins i u ional and s aff capaci y s reng hening was aligned wi h he organisa ional needs and priori ies. IPEX s aff has gained subs an ial experience and knowledge on expor rela ed opics. However, a ques ion ha remains open is whe her he prjec was an answer o he problem ha was iden ified. This rela es o he role ha IPEX is curren ly performing and which is more rela ed o expor promo ion specifically ins ead of playing a significan

1 a.o. analy ical skills, communica ion skills, rela ionship managemen , s ra egic planning


role in s imula ing a conducive expor environmen . In Colombia, he relevance of he BSOD projec is considered high as i addressed a number of key organisa ional cons rain s in rela ion o service provision, by developing an expor promo ion s ra egy (PSM 2.0), ha provided a basis for various organisa ional change processes.

Eff ctiv n ss

In erms of effec iveness, he projec in Mozambique was charac erised by organisa ional issues in rela ion o projec managemen / s eering, in ernal communica ion issues and limi ed s aff capaci y. Al hough here was managemen buy-in from IPEX and openness of communica ion exis ed be ween CBI exper s and IPEX s aff, ins i u ional changes have proven o be hard. The evalua ion found ha limi ed clari y abou he projec objec ives a IPEX, he limi ed capaci y presen in he organisa ion and he delivery modali y (exper missions) of he projec , were reasons for a more modes judgemen on effec iveness. In Colombia, mos of he foreseen ou pu s have been produced and ins i u ionalised, al hough some could have been more “final” (beyond draf s). In ha sense he Colombia projec has been highly effec ive. The evalua ion found many examples of s rong local ownership ha has been very ins rumen al in his regard. The projec followed a process approach, in which learning and developing oge her amongs CBI key exper s and local s aff was key. This con ribu ed o he flexibili y and adap abili y, and herefore effec iveness of he projec .

Effici ncy

Efficiency in he case of Mozambique was affec ed by he ini al high ambi ions, followed by a focus on making he pilo s a success in erms of increasing ac ual expor s from he seven iden ified produc groups. This diver ed a en ion away from ins i u ional and organisa ional cons rain s. In bo h coun ries he quali y of CBI key exper s aff was considered high and hey were apprecia ed for ransferring knowledge and skills and in eoducing new ways of learning. In bo h projec s a grea number of CBI exper missions were organised, leading o he ques ion of whe her his ype of in erna ional exper -based assis ance is ac ually he mos efficien one. In Colombia, he approach was cos ly, bu effec ive. In Mozambique, his judgemen was harder o make because IPEX is curren ly no performing he role ha was envisaged a he ime of he projec implemen a ion.

Impact

Impac in he sense of con ribu ion o increased expor s o Europe canno be es ablished, for bo h Colombia and Mozambique. However, in Colombia he quali y of services o (po en ial) expor ers has improved during and af er projec comple ion, con ribu ing o a s ronger ins i u ional posi ion, bo h wi hin he coun ry and in erna ionally. ProColombia even go in erna ional recogni ion for heir expor promo ion approach, by being recognised as he bes rade promo ion organisa ion from a developing coun ry in he world (2014). In Mozambique, he BSO curren ly keeps a low profile and does no reach ou ac ively o (po en ial) expor ers. This is mainly because of heir limi ed resources, bu i may also refer o more poli ical mo iva ions.

Sustainability

The sus ainabili y of he projec resul s in Mozambique was found in increased s aff capaci y and heir ambi ion o deploy heir acquired skills. The projec did no have a clear exi s ra egy and ac ivi ies ha were proposed in he final s ages of he projec did no receive a follow up. Regarding Colombia, many of he produc s (me hodology) and knowledge managemen sys ems have been ins i u ionalised and are con inued o be used wi hin he organisa ion. The challenge lies in re aining hese produc s, services and sys ems, while he BSO also faces he risk of reduced funding base and differen ins i u ional priori ies.

L ssons L arn d

An impor an lesson learned rela es o ownership. Ownership can be enhanced by ex ernal drivers, especially he presence of ex ernal poli ical priori ies ha ransla e in o “ aking up he issue” is beneficial for enhancing ownership. Also, he rela ionship be ween CBI and he recipien organisa ion


in his regard plays a major role. I helps if CBI key exper s are aware of heir role in suppor ing an ins i u ional change process based on and fos ering local ownership. Especially, if hey can do his in a flexible manner and include he poli ical economy perspec ive.

Bo h projec s did no have clear exi s ra egies, or s ra egies o enhance sus ainabili y. Apar from ha , here was no enough ime o “wind up properly”. This mean ha more could have been achieved in Colombia, in erms of presen able produc s. For Mozambique his mean insufficien a en ion for organisa ional financial sus ainabili y.

In order o bring abou change in a Leas Developed Coun ry (LDC), i is cri ical o focus on he mos limi ing fac or and make sure ha he projec focuses on addressing ha one before s ar ing o work on o hers. In his way, confidence of he organisa ion can be buil . For fu ure CBI in erven ions his would en ail a more specific (produc group driven) value chain approach. CBI s ar ed o work along hese lines and his evalua ion confirms ha his is he righ hing o do in an LDC con ex .

The evalua ors are gra eful for he suppor received by IPEX, ProColombia as well as ex ernal s akeholders.


2 Introduction

2.1 Background

The Cen re for he Promo ion of Impor s from developing coun ries (CBI) has been working for more han 40 years on s reng hening he priva e sec or by improving expor oppor uni ies for small and medium sized en erprises (SMSe) in developing coun ries, mainly o EU marke s. For he above, CBI developed he Business Suppor Organisa ions Developmen programme (BSOD) which has been and con inues o be implemen ed across various sec ors like agricul ure, fores ry and fishery.

The BSOD programme aims o equip local expor organisa ions or Business Suppor Organisa ions (BSOs) wi h compe encies (knowledge, skills and a i udes) and ools ha will enable hem o suppor SMEs in developing sus ainable expor rela ions and increasing heir expor volumes.

CBI works on s reng hening he capaci y of BSOs hrough various modules of which he following were par of he programmes under his evalua ion:

• SP - S ra egic Planning for he EU

• EMM - Expor Marke ing and Managemen • MI - Marke Informa ion

• MD - Marke Developmen

The BSOD programme follows a ailor made approach which means ha he modules form a s ar ing poin for coopera ion and are adjus ed based on he specific needs of he BSO. The implemen a ion of he programme herefore differs per coun ry and he emphasis per module can vary. CBI curren ly works in 48 coun ries and 27 sec ors and approaches he value chain as a sys em in which all s akeholders are in erconnec ed. Besides he BSOD programme, CBI works wi h o her programmes, such as Expor Coaching Programmes (ECPs), whereby companies are suppor ed in developing heir expor s.

The BSOD in erven ion is in ended o allow "a BSO o posi ion i self in he local marke as a ‘par ner of choice’ for exis ing and po en ial Small and Medium Sized En erprises (SME’s), in heir effor s o en er (new) European or in erna ional marke s or o expand curren expor s. Af er successfully developing or improving i s expor developmen and promo ion services for he European marke , he BSO will also be able o apply he same approach and develop similar services for o her in erna ional marke s2”.

2.2 Structur of th r port

The evalua ion repor provides an overview of he se up of he evalua ion and an explana ion of he me hodological approach (chap er 2). In chap er 3, a descrip ion of he coun ry con ex s are provided. Subsequen ly he findings of he evalua ion are presen ed and s ruc ured according o he main evalua ion cri eria (chap er 4). Where possible and appropria e, evalua ion findings are presen ed under he de ailed research ques ions. To op imise reader-friendliness of he repor , i was decided o clus er he evalua ion findings per coun ry and no per evalua ion cri eria. Finally, he conclusions of he evalua ion are presen ed in answer o he key evalua ion ques ions (chap er 5), followed by a se of lessons learned combined from he wo case s udies, ha are mean o guide fu ure expor promo ion programmes wi h CBI.

2 Exper in Expor , CBI (2013)


3 S t up and impl m ntation of th valuation

3.1 Obj ctiv s

The ex ernal evalua ion was commissioned by CBI o demons ra e accoun abili y and o de ermine which lessons can be learned for fu ure CBI ac ivi ies. Especially he learning objec ive was highligh ed in he Terms of Reference as well as during he Incep ion mee ing be ween CBI and he evalua ors (dd. 7 January 2016). Unders anding he de erminan s of success and failures and linking hem wi h he con ex s in which he programmes ook place are expec ed o provide CBI wi h valuable insigh s for fu ure decision making in he programme design and process managemen in order o maximise ou comes and resul s.

3.2 Diff r nt cas studi s

Evalua ions of differen BSOD programmes have been carried ou by independen evalua ors in accordance wi h he guidelines of he IOB (Policy and Opera ions Evalua ion Depar men of he Minis ry of Foreign Affairs)3. Wi h he Minis ry of Foreign Affairs i has been decided o evalua e selec ed finished Business Suppor Organisa ions Developmen (BSOD) programmes. The coun ry evalua ions have been conduc ed wi h he suppor of local consul an s. They have suppor ed in he da a collec ion and (preliminary) findings and conclusions were discussed wi h hem. The local consul an s were Mr. Thomas Selemane (Mozambique) Mr. Abel Fernandez (Colombia).

The BSOD in erven ions in Colombia and Mozambique were selec ed for evalua ion because differen me hods were used during he programme design and implemen a ion. In Mozambique, firs s eps were made o in egra e a BSOD projec wi h he value chain approach whereas in Colombia he BSOD projec focused on enhancing he effec iveness of he organisa ion by developing a uniform approach o service provision, wi h a cen ral role for marke in elligence.

In addi ion, in he incep ion mee ing he con ex ual differences be ween he coun ries were s ressed. The evalua ion eam and CBI expec ed hese o provide insigh s in o he added value of a BSOD approach in a specific se ing. I is impor an o ake he differences in economic developmen be ween he wo coun ries in o accoun as Colombia is an Upper Middle Income Coun ry wi h a Gross Na ional Income (GNI) per capi a of $4126 o $12735, whereas Mozambique is a low income coun ry (GNI of $1045 or less)4. Also, he poli ical and ins i u ional condi ions vary heavily be ween hese coun ries, which are expec ed o be in eres ing for he con inued developmen of he CBI BSOD approach (if linked o resul s).

Besides he differences in programme implemen a ion and he con ex in he wo coun ries, he evalua ion eam ook no e of he developmen s wi hin CBI and he BSOD programme. The BSOD programme is no longer a “s and-alone” programme, bu is now closely linked o CBI's value-chain approach, meaning ha he developmen of an en ire expor value chain is he main focus and a BSOD is done when organisa ional cons rain s and limi a ions are iden ified as a crucial fac or in developing a par icular value chain. A comparison of he resul s is an icipa ed o provide insigh s which can help CBI o con inue developing i s BSOD approach in hese regions.

Overview of he projec s under his evalua ion

Programm BSO Country Modul s P riod

5200/5201 Proexpor Colombia EMM, MI 18-2-2010 – 30-11-2012 5191/5192/5202 IPEX Mozambique EMM, MD, SP 10-9-2007 – 30-11-2012

3 BSOD Programme Evalua ion 2012-2013 TEDO (India), DGNED/IETC (Indonesia) and HCACS (Vie nam), iLumini ics

(2013); Ex ernal Evalua ion of he BSOD Programme in La in America (2006 – 2011), EFECE (2013) 4

h p://da a.worldbank.org/abou /coun ry-and-lending-groups

http://data.worldbank.org/about/country-and-lending-groups


3.3 Evaluation proc ss

The evalua ion involved hree phases. The incep ion phase was ini ia ed wi h a kick-off mee ing on 7 January 2016 be ween he evalua ion eam and he accoun managers of Colombia and Mozambique and he M&E officer. In his mee ing, he Terms of Reference was valida ed, expec a ions were clarified and a firs draf of he evalua ion ma rix was discussed. Par of he incep ion phase was drawing up a draf incep ion repor ha was shared wi h CBI before i became final in February 2016.

The second phase of he evalua ion concerned a da a collec ion process in Colombia and Mozambique for which he evalua ors received assis ance from na ional ex ernal consul an s. The da a collec ion involved he following s eps:

Data coll ction st p Colombia Mozambiqu

Desk S udy • ••In erviews wi h accoun managers • •In erviews wi h CBI exper s • •Case coun ry s udies 12-19 February and 26-

31 March 2016 7-13 February 2016

In erviews wi h BSO s aff • •In erviews wi h ex ernal s akeholders • •ToC workshop •Survey among s aff • •Survey among SMEs •5C workshop •Field visi o clien of BSO Field visi o Green

Bean Associa ion, Moamba, 12 February 2016

The hird phase, data analysis, included a half-day sense making mee ing a CBI during which he preliminary findings were presen ed and a number of emerging dilemmas were discussed in erms of fu ure CBI s ra egies for expor promo ion. The ou comes of hese discussions have been in egra ed in o he conclusions and lessons learned of his repor .

3.3.1 Evaluation proc ss in Mozambiqu

The evalua ion process in Mozambique s ar ed wi h a desk s udy and Skype in erviews wi h exper s who were involved in he implemen a ion of he SP, EMM and MD modules. Three of he exper s were specifically involved in he pilo projec s. The coordina ing exper and one of he ins i u ional developmen exper s have also been in erviewed a he s ar of he da a collec ion process in order o recons ruc he projec implemen a ion and collec a firs round of feedback. In his way, a 'reali y map' was es ablished.

The coun ry case s udy was conduc ed wi h he suppor of a Mozambican consul an and involved face- o-face in erviews wi h IPEX s aff and ex ernal s akeholders5. In consul a ion wi h IPEX i was decided no o conduc a 5C workshop as he in erviews wi h individual s aff and managemen were deemed sufficien by IPEX o collec informa ion on he evalua ion cri eria. In addi ion, i was men ioned ha he organisa ion is s re ched o deliver on i s responsibili ies and herefore a workshop would consume oo much ime. Ins ead, a field visi o Moamba, where one of he associa ions ha received suppor during he pilo projec s is loca ed, was organised. To collec feedback from na ional expor ing companies in Mozambique, an online survey 6 was designed and shared wi h six companies. The response ra e was 50% wi h 3 companies re urning he ques ionnaire. The se up of he BSOD programme in Mozambique had a large ex ernal componen and his also drove he fac ha he da a collec ion process in Mozambique has been

5 For lis of key informan s in rela ion o he IPEX evalua ion - please refer o Annex 3

6 For he ques ionnaire, Please refer o Annex 5

http:stakeholders5.Inhttp:officer.In

10 Final evalua ion repor BSOD programme Mozambique and Colombia

focused on he ex ernal environmen of IPEX. This has been agreed wi h CBI and is inheren o he more in egra ed value chain approach ha was used a he ime.

The fac ha no 5C workshop was conduc ed in his evalua ion may have caused a limi ed view on he sus ainabili y aspec of he organisa ional changes. The evalua ion relies heavily on he inpu s provided by IPEX s aff and managemen .

3.3.2 Evaluation proc ss in Colombia

The evalua ion process in Colombia s ar ed wi h a desk s udy followed by a firs visi o Colombia, and Skype in erviews wi h key persons who were involved in he programme. During his firs visi , a number of mee ings were held wi h he foreign depar men of ProColombia, a ques ionnaire was launched and a Theory of Change workshop was held. In addi ion, ProColombia s aff responsible for he clien sa isfac ion survey was in erviewed. During he second visi o Colombia, more mee ings were held bo h wi h ProColombia s aff as well as represen a ives of ex ernal s akeholders. Fur hermore, a 5C workshop was conduc .

The evalua ion work was carried ou wi h he suppor of a Colombian consul an . I was ra her difficul o ge addi ional informa ion from ProColombia, as s aff from he foreign depar men responsible for helping he evalua ors, was engaged in a grea number of o her responsibili ies (amongs o hers CBI - ECP missions).

The evalua ion of he BSOD projec in Colombia focused on he in ernal organisa ional processes and compe ency developmen rela ed o service provision of ProColombia.

Questi nnaires

22 ou of 29 persons who received he ques ionnaire submi ed heir answers. 4 Responden s were marke analys s a he ime of he projec , 14 were advisor, and 4 had ano her posi ion wi hin Proexpor (direc or level). 10 Ou of he 22 are now s a ioned in Bogo a, 5 in o her offices in Colombia, and he res abroad: Mexico (3), Cos a Rica (1), Peru (1), Por ugal (1) and he USA (1).

5C M del The 5C workshop ook place wi h only 4 par icipan s, all persons who were ac ively involved in he projec 7. Never heless, he workshop proved o be useful in order o ge a be er idea of he perceived impor ance of he suppor provided by means of he BSOD projec in view of wider organisa ional change processes.

Interviews

Bo h in ernal as well as ex ernal s akeholders were in erviewed. A lis of he persons in erviewed, as well as an overview of he persons who par icipa ed in he workshops is provided in Annex 3.

3.4 R s arch qu stions and m thodology

Under each evalua ion cri eria, research ques ions were formula ed and presen ed in he ToR8. The evalua ion eam ook he evalua ion cri eria: Effec iveness, Relevance, Efficiency, Sus ainabili y and Impac as a basis o develop he evalua ion ma rix and included he research ques ions.

The ma rix and research ques ions were fine- uned during he incep ion mee ing and agreed upon in an incep ion repor (dd. 30 January 2016). No specific research ques ions were formula ed for he impac evalua ion cri eria. In he incep ion mee ing i was decided o measure impac based on

Please refer o Annex 3 for a lis of par icipan s 7


clien sa isfac ion ins ead of using increased expor s as an indica or for impac , as a ribu ion o he CBI in erven ion o he la er would be difficul . The ma rix is annexed o his repor 9.

The in erven ion logic of he projec forms he basis for his evalua ion. This has been urned in o he following overall evalua ion ques ion: t what extent and h w d es CBI inv lvement c ntribute t instituti nal devel pment f the BSOs t enhance exp rt capacity f SMEs?

To assess his ques ion, he evalua ion made use of he 5 C model o ge insigh in o he ins i u ional capaci y and is par icularly relevan for ins i u es/ organisa ions ha aim o link and connec wi h o hers.

Al hough he projec s were no designed wi h he 5C model in mind, he Terms of Reference ou lined he impor ance of using he ool as an ins rumen o assess effec iveness of he capaci y s reng hening effor s. In addi ion, a con ribu ion analysis was added o reflec on o her in ernal and ex ernal fac ors ha influenced BSO capaci y as well as including o her fac ors ha (may) have influenced he expor environmen . The evalua ion relied on a mixed-me hods approach using various da a collec ion ools: desk s udy, quali a ive in erviews bo h face- o-face and over Skype, workshops, web-based surveys and coun ry- and field visi s.

The main emphasis was on relevance and effec iveness. As was s ressed in he ToR and reconfirmed during he incep ion phase, he main purpose of he evalua ion was o learn from he approach for he benefi of fu ure expor promo ion ini ia ives in similar con ex s. This purpose was specifically s ressed for Mozambique, which classifies as a LIC/ LDC.

3.5 D lin ation of th valuation

The evalua ion covers he suppor of CBI o he BSO developmen programmes in Colombia (2010-2012) and Mozambique (2007-2012). In he incep ion mee ing, dd. 7 January 2016, i was agreed ha he differen modules, EMM (Expor Marke ing and Managemen ), MI (Marke In elligence), MD (Marke Developmen ), and SP (S ra egic Planning), would be evalua ed join ly and heir relevance/ effec iveness would no be assessed separa ely.

The focus of he evalua ion has been on he suppor of CBI o he BSO and o wha ex en he BSO has changed o perform be er and o provide be er services o he SMEs in heir respec ive coun ries (effec iveness). Obviously, he assump ion is ha improved services of he BSO o SMEs will con ribu e o increased expor volumes (impac of BSOD projec s). However, he SMEs involved in his evalua ion have been primarily evalua ed on he aspec of clien sa isfac ion and less on measuring whe her expor volumes o Europe have increased as a resul of he BSOD programme. Finding evidence be ween he projec and increased expor s is ex remely challenging because of he a ribu ion ques ion and herefore i was agreed ha his is beyond he scope of his evalua ion.

The focus of he evalua ion was on sus ainable organisa ional changes (ou comes) in he BSOs, and (if possible) clien sa isfac ion, and, again if possible if BSO clien s have used he services for improving produc ion / expor s.

A key assump ion in he se up of he programme is ha he increased quali y and quan i y of services will lead o increased sa isfac ion of he clien s of he BSO and even ually o increased expor s, which will have a posi ive effec on he scale of produc ion, employmen and pover y reduc ion.

Please refer o Annex 5 9


3.6 Limitations

3.6.1 Mozambiqu

To s ar wi h challenges rela ed o da a-collec ion, reference is made o he case s udy in Mozambique where a considerable amoun of people changed posi ions af er he closing of he projec . Since he projec ended almos 4 years ago and IPEX had conduc ed i s own evalua ion of he pilo projec s, an ex ensive evalua ion process in he organisa ion was no considered a priori y. Also for he ex ernal s akeholders i mean going back o a projec ha closed a considerable amoun of ime ago wi hou a follow up.

The evalua or made several a emp s o re rieve he (independen ) evalua ion of he pilo projec s and received i early June 2016 from he Embassy of he Kingdom of he Ne herlands (EKN) in Mozambique. IPEX shared an in ernal evalua ion of he pilo projec s, which findings have been consul ed and - where relevan - are included in his evalua ion repor . Moreover, i was hard o reach ex ernal s akeholders as hey have moved o o her posi ions and/ or loca ions. The limi ed inclusion of heir views and he ime gap may have biased he collec ed da a as he evalua ion relies on he views of IPEX s aff and in erna ional exper s, mainly rela ed o CBI. The evalua ion eam made effor s o balance his by including in erviews wi h local s akeholders, such as he Cen re for Inves men Promo ion (CPI), he Confedera ion of Economic Associa ions (CTA) and he Ins i u e for he Promo ion of Small and Medium sized En erprises (IPEME). However, his was no achieved as hese ins i u es were no recep ive o be in erviewed abou IPEX. The Mozambican consul an a ribu ed his o he fac ha IPEX had some nega ive news coverage 10 and ha hese agencies did no wan o be associa ed wi h IPEX. The evalua ion of he pilo projec s (17 January 2013) faced similar difficul ies and s a ed ha he ins i u es were no recep ive o coopera e in he evalua ion because hey consider 'IPEX as an Institute that is not serious and professional' (p. 3). Ano her reason for he difficul ies encoun ered in he da a collec ion process in Mozambique is ha during he field visi he unofficial news came ou ha IPEX is abou o be merged wi h o her governmen organisa ions. This could be one of he reasons why bo h IPEX and s akeholders around hem were careful wi h sharing informa ion.

The dis ribu ion of surveys was challenging because here was no lis available of relevan SMEs. Here he suppor of SNV World in Mapu o has been very valuable.

Assessing a ribu ion and impac was iden ified as one of he challenges for his evalua ion in general. CBI acknowledged his from he very s ar of he evalua ion process and predic ed some complica ions in he da a collec ion process, especially in Mozambique. Therefore, he evalua ion focused no only on IPEX bu included he views of ex ernal s akeholders o he ex en possible in order o come o conclusions abou CBI suppor in ligh of working in a LDC.

3.6.2 Colombia

The main challenge in he implemen a ion of he evalua ion has been o ge basic informa ion (da a and documen s) from ProColombia. People seemed o be ex remely busy, and had o “divide” hemselves over a number of equally pressing ins i u ional priori ies.

During he second visi o Colombia, he long planned workshop was suddenly cancelled. This was due o he sudden holidays ha were provided o s aff and o he presence of CBI exper s in rela ion o ongoing ECP ac ivi ies.

Al hough no all of he reques ed informa ion was ac ually provided, i has been possible o cons ruc an image of wha he BSOD programme has mean for Proexpor /ProColombia.

a.o. Savanna 19 February in which i was sugges ed ha IPEX had no complied wi h endering procedures in a case in 2014

10


3.7 Not on Pro xport - ProColombia

When he projec was iden ified, he BSO in Colombia was called Proexpor . In 2014, he name of Proexpor changed o ProColombia. In his evalua ion repor we will predominan ly refer o Proexpor . However, when specific reference is made o he presen performance of he BSO, he new name ProColombia will be used.


4 Th BSOD programm

4.1 Mozambiqu

The firs s eps owards a BSOD projec in Mozambique were aken when he presiden of Mozambique's Ins i u e for Promo ion of Expor s (IPEX) visi ed he CBI TOPIX conference in he Ne herlands and reques ed CBI for assis ance (2007). As a follow up, a feasibili y and iden ifica ion process was conduc ed in Mozambique o iden ify possibili ies for se ing up a par nership agreemen and a mul i-annual programma ic coopera ion programme.

In February 2008 a formula ion mission ook place which ou lined he programme objec ives, he ac ivi ies, he planning and a provisional Moni oring and Evalua ion sys em. The programme ac ually s ar ed in he second half of 2008 wi h he implemen a ion of he Strat gic Planning (SP) module. In his module, he emphasis was on he ins i u ional developmen by s reng hening he ex ernally recognised manda e, he improved service delivery o expor ers and he long erm ins i u ional and financial sus ainabili y11 . The implemen a ion of he firs module ran from Sep ember 2008 - April 2009 and was followed by he second module which focused on Export Manag m nt and D v lopm nt. This was a combina ion of expor developmen and expor marke ing wi h an emphasis on expor developmen and he raining of s aff o ini ia e and guide he pilo projec s ha were formula ed under he projec 12 .

In order o give IPEX visibili y in he expor ing communi y and o ensure a prac ical approach, small scale pilo projec s were ini ia ed, based on he ac ual and iden ified demand from he EU. Given he size of he pilo projec s, i was decided o apply a new module o his par of he programme; a Mark t D v lopm nt module13 . The Technical Assis ance (TA) of CBI o IPEX o run he pilo s and o ensure exper inpu fell under he MD module, whereas funding for he ac ual implemen a ion ofhe 7 pilo projec s and local TA from SNV World in Mozambique was financed hrough he Embassyof he Kingdom of he Ne herlands (EKN). O her s akeholders involved during he pilo phase wereUNIDO, PUM, The Coopera ive League of he USA - CLUSA, Banco Terra and CBI. The BSODprogramme roughly consis ed of wo phases: (1) s reng hening capaci ies of IPEX wi h a focus on hecompe encies of s aff and (2) applying hese compe encies in he pilo projec s. A he ime of heprogramme implemen a ion, IPEX received suppor from ITC and UNIDO a he ime and coopera ionwi h hose en i ies has been sough and ac ivi ies have been aligned.

The budge for he SP module was 257,941 EUR, he EMM module was 376,944 EUR and he MD module was 440,000 EUR. The budge of he pilo projec s, funded by EKN was 1,200,000 EUR.

4.1.1 Economic and political cont xt Mozambiqu

The programme s ar ed in 2008, in a ime where increased global food prices led o rio s and ensions in Mozambique. As a ne impor er of food, he fluc ua ions in price were heavily fel by he Mozambican popula ion and resul ed in se backs in pover y allevia ion. Today, he si ua ion is differen . Mozambique has one of he mos dynamic economies of Africa wi h s ruc urally posi ive annual grow h ra es since 2004 boos ed by new sec ors, such as energy, as well as by grow h in he more radi ional sec ors like cons ruc ion, ourism, manufac uring, ranspor , services and agricul ure. Despi e he posi ive economic grow h ra es in he pas years and he rela ively posi ive ou look, he coun ry however remains amongs he leas developed coun ries (LDCs) in he world and faces challenges wi h s ruc ural reforms and providing equal oppor uni ies o all Mozambicans.

The Mozambican economy has grown wi h an annual 7% since 2013. The fas economic grow h is largely due o foreign direc inves men s focused mos ly on he ex rac ive sec or. O her dynamic

11 CBI-IPEX par nership agreemen presen a ion 0802 Par nership agreemen IPEX-CBI.pp x

12 Idem

13 IPEX Mozambique 2008-2012 Comple ion Repor


sec ors are cons ruc ion, financial services, and ranspor and communica ion, broadly correla ed wi h infras ruc ure developmen and large-scale projec s. The agricul ure sec or, employing 70% of he Mozambican popula ion, is less dynamic and mos produc ion con inues o be done by small holder farmers. A few key fea ures of he Mozambican (agricul ural) expor environmen are:

• Food crop produc ion is he mos impor an agricul ure sub-sec or accoun ing for around 80 percen of he cul iva ed area (2009)

• The main cash crops produced in Mozambique a he ime of he BSOD programme were maize, cassava, rice, sorghum, mille , cowpeas and groundnu s14

• The large majori y of agricul ural produc ion is being rain-fed. Therefore, wea her variabili y is a major fac or in de ermining crops performance. Only 3% of farmers use fer ilizers

• Commercial lending o agricul ure is ex remely low in Mozambique. While agricul ure con ribu es 25 percen o GDP, lending o agricul ure fell from 20 percen of commercial lending in 2000 o 6 percen in 2010

• Roughly one- hird of farms are smaller han one hec are, while wo- hirds are be ween one and 10 hec ares

• For small holders o successfully in egra e in o a marke , i is impor an o be connec ed o roads and have access o s orage infras ruc ure. This is a key elemen of he agricul ural sec or inves men plan (PNISA, 2014 ), which is suppor ed by he African Union, World Bank, NGOs and he priva e sec or. The governmen of Mozambique has commi ed o suppor ing he plan hrough public inves men s and policy and regula ory reforms ha facili a e priva e inves men in agricul ure. This plan was no ye in place during he implemen a ion of he BSOD programme

• Con rac farming and ou -grower schemes, linking smallholders wi h processing en i ies or large commercial farms, have increasingly provided commercial oppor uni ies for smallholders o join emerging value chains

• Agricul ural expor rade is growing s eadily, encouraged by a liberalized rade regime. Al hough cash crops, including sugarcane, obacco, co on, and cashew, accoun for a small propor ion of o al area cul iva ed, hey represen he vas majori y of agricul ural expor s15 .

• Mozambique is now (2016) ranked no. 133 on he in erna ional Ranking for Doing Business, while i was 134 in 2008.

• Mozambique has a popula ion of 21.4 million people, ou of which 43% are under he age of 15

• Mozambique’s rapid and s eady economic grow h over he pas wo decades ou performed popula ion grow h, and GDP per capi a increased drama ically from $132 o $567. None heless, he absolu e level of GDP per capi a is s ill humble, and Mozambique is among he poores coun ries in he world. Half of he popula ion s ill lives in pover y.

4.1.2 IPEX' rol in xport promotion

The Ins i u e for Expor Promo ion, IPEX, is an au onomous ins i u e crea ed by he Mozambican Governmen in 1990 o promo e and coordina e he implemen a ion of policy measures for he developmen of Mozambique's expor s. I s mission is o develop and promo e he expor of Mozambican produc s and services and o harmonise i s ac ivi ies wi h all ins i u ions ha deal wi h foreign rade.

IPEX main objec ives are:

• Influencing foreign rade policies;

• Promo ing expor s in coordina ion wi h he priva e sec or;

14 FAO Mozambique Fac shee (2007)

15 Fac s presen ed based on he IMF analysis: Mozambique rising : building a new omorrow. – Washing on, D.C. :

In erna ional Mone ary Fund, 2014 (chap er 6).


• Developmen of expor s, promo ing he produc ion and diversifica ion of produc s, services and marke s;

• Facili a ing access o he coun ry’s produc s overseas;

• Collec ion, rea men and dissemina ion of rade informa ion;

• Coopera ion wi h na ional and in erna ional ins i u ions linked o foreign rade.

The services ha IPEX aims o provide for i s clien s are: 1. Promo ion and Developmen of Produc s and Marke s 2. Research and Dissemina ion of Trade Informa ion.

IPEX strat gy 2007-2009

The IPEX s ra egic plan (2007-2009) con ained he following priori y ac ions:

• Take leadership in he process of formula ing Mozambique's expor s ra egy;

• Make be er use of i s scarce human and financial resources by es ablishing a clear focus on specific marke s ha have he po en ial for impac (frui s, vege ables, seeds, woods, fishery, cashew nu s, sal );

• Diversifica ion of expor produc s;

• S imula ion of improvemen s in expor performance of individual companies by providing incen ives, honorary dis inc ions;

• Con inued ac ions for in erna ional promo ion of Mozambican produc s;

• Improve labour condi ions of IPEX; • Improve managemen of he cen res for commercial and marke informa ion;

• Improve he quali y and efficiency of informa ion and communica ion.

4.2 Colombia

CBI and Proexpor already had a long las ing rela ionship, wi h a huge involvemen of Proexpor in he implemen a ion of Expor Coaching Programmes (ECPs), when he idea of having a BSOD programme came up during a TOPIX conference. CBI had a high opinion of Proexpor . ”Proexport, the country’s official export, investment and tourism agency, is probably the most sophisticated BSO

in CBI’s basket” (Hans Verhuls 2010).The organisa ion was considered as simply “too good”, o even be considered for having a BSOD programme. However, during informal and la er more formal mee ings, a number of organisa ional developmen issues were raised, and his led o an iden ifica ion mission, conduc ed in April 2009. A he end of ha year a feasibili y mission was conduc ed, followed by more discussions and more missions, in order o fur her fine- une he programme ideas and o develop he programme. The par nership agreemen was signed in May 2010, and he projec was implemen ed from May 2010 un il July 2012.

The original idea of he programme was o enhance effec iveness of Proexpor in suppor ing expor ers o genera e, follow hrough and close business deals in he European marke s, by equipping Proexpor wi h he righ compe encies (knowledge, skills, working me hods, ools, and ne work), ha would enable hem o provide heir clien s wi h more effec ive advice16 .

I was decided o implemen wo modules: Marke In elligence (MI) and Expor Marke ing and Managemen (EMM). However, he word modules “disappeared” from all repor s, as i was decided o work on he basis of a logical framework wi h clearly defined ou pu s, and ou comes. Con en wise, a en ion was no longer paid o hese dis inc modules. Ins ead, a flexible resul s-orien ed approach was advoca ed based on he needs iden ified during he iden ifica ion and feasibili y missions.

As indica ed in he iden ifica ion mission repor , specific resul s of he programme could be17:

16 (CBI - Iden ifica ion Mission Repor 2009) 17 (CBI - Iden ifica ion Mission Repor 2009)


• Enhanced European marke s-rela ed knowledge and skills of he Proexpor advisors and MI officers

• New/improved working me hods and ools for Proexpor advisors • New/improved working me hods an ools for MI officers • An improved sys em o genera e, organize and dissemina e marke informa ion • An effec ive ne work of exper s and an ennae in he European marke s

The projec was managed join ly be ween he BSOD and CBI. A small exper eam was responsible for coordina ing and implemen ing he various ac ivi ies iden ified for he programme.

4.2.1 Economic and political cont xt Colombia

The programme s ar ed shor ly af er he in erna ional financial crisis of 2007-2009. The iden ifica ion mission repor referred o obs acles Colombian expor ers were facing in accessing he European Marke , in sec ors such as Fresh Frui & Vege ables, Garmen s, and Cu Flowers18 . Since hen, he economic and poli ical con ex for in erna ional rade and business has changed qui e considerably, affec ing he projec , he organisa ion, and po en ial expor ers. Some da a regarding Colombia, as provided by ProColombia19:

• During he s ar of he BSOD programme, he GNP/capi a was 5090 USD (2009). Since hen GNP has increased o 8076 USD (2014 – ac ual prices – IMF da a), so here has been qui e an increase in he BNP/capi a (in erms of dollars). In a decade he GNP/capi a has ripled.

• Colombia has abou 48 million inhabi an s and an economic grow h of around 4.8% per year (IMF da a). Colombia is now an upper middle income coun ry.

• Infla ion has s eadily come down since he 90's (when i ranged be ween 10 and 30% per year) and has been a levels be ween 2 and 4% per year since 2009. In 2008, he year of he financial crisis, he infla ion was a a emporary peak of 7.7%.

• During he period 2009 - 2016 he exchange ra e USD – COP has changed significan ly. I s ar ed around a a ra e of 1USD = 2000 COP moving slowly o around 1800 owards he end of 2010. From 2012 o abou half 2014 i has fluc ua ed be ween 1750 and 2000. Since hen i has gone up, reaching abou 3300 beginning of 201620 .

• The percen age of people in pover y and ex reme pover y has s eadily gone down from 50% and 18% respec ively in 2002, o 28% and 8% respec ively in 2014. This means in ernal marke s seem o be on he rise.

• Colombia is now (2016) ranked no. 54 on he in erna ional Ranking for Doing Business, while i was 79 in 2007 (World Bank 2016). Many reforms have been implemen ed in order o improve he business environmen , a rac ing in erna ional inves ors and businesses.

• Colombia has signed numerous rade agreemen s during and af er he BSOD programme was implemen ed in Colombia.

o The Uni ed S a es – Colombia Free Trade Agreemen . This was passed in US congress in 2011 and came in o effec on May 15, 2012.

o Canada – Colombia Free Trade Agreemen . The agreemen was implemen ed in Augus 2011.

o Pacific Alliance. This alliance was formed in 2011 by Chile, Colombia, Mexico and Peru wi h he objec ive o fur her free rade wi h a clear orien a ion oward Asia, and economic in egra ion be ween he member coun ries. Presen ly Cos a Rica is in he process of becoming a member.

o EFTA (Iceland, Liech ens ein, Norway and Swi zerland) Free Trade Agreemen wi h Colombia. The agreemen was signed in 2008, and came in o force be ween 2011 and 2014.

18 (CBI - Iden ifica ion Mission Repor 2009) 19 (ProColombia 2015) 20 OANDA.com

http:OANDA.com


o EU – Colombia Free Trade Agreemen . This was signed in 2012 and is presen ly in he process of ra ifica ion.

o A he momen here are signed agreemen s ha are no ye implemen ed wi h Panama, Israel and Sou h Korea. Nego ia ions are going on wi h Turkey and Japan.

• Ano her fac or ha has been shaping (or limi ing) expor oppor uni ies have been in erna ional rela ions wi h neighbouring coun ries, such as Venezuela and Ecuador. Tensions have mean ha rade rela ions have no always been easy wi h hese coun ries.

• In 2014 around 30% of expor s (54.8 Billion USD) are non-mining produc s. 29% of hese non mining expor s consis mos ly of coffee (15%), fresh flowers (8%) and plas ics 6%). The o her main non-mining expor s are: bananas, cosme ics and garmen s.

• Bigges expor coun ries for Colombia in he non-mining sec ors are (2014 da a): Uni ed S a es (23%), Venezuela (10%), Peru (6%), Brazil (5%), and Mexico (5%). S ill, here are many o her coun ries o which expor s ake place; here seem o be a rela ive diversi y.

• In 2014 Moody was he las ra ing agency o improve heir ra ing. Reasons: expec a ions in rela ion o fiscal consolida ion, predic abili y of economic policies and he robus ness of he economy in order o coun er ex ernal shocks (ProColombia 2015)

4.2.2 Th rol of Pro xport/ ProColombia in xport promotion

ProColombia is he organisa ion in charge of promo ing ourism, foreign inves men s in Colombia, and non-mining(energe ic) expor s as well as he coun ry’s image. By means of a na ional and in erna ional ne work of offices, i suppor s and provides in egral advice o clien s, by means of services or ins rumen s direc ed a and facili a ing he design and execu ion of in erna ionalisa ion s ra egies, ha seek o genera e, develop and close business oppor uni ies (ProColombia 2016).

In 1991 he Minis ry of Foreign Trade and he “banco de comercio ex erior” were crea ed, af er which Proexpor was formed (1992). I was es ablished as a rus fund in which Bancoldex and Fiducoldex par icipa ed. The purpose was o provide non-financial services and ins rumen s o expor ers and o promo e an expor cul ure.

Nowadays he role of ProColombia is o suppor he realisa ion of in erna ional business, by means of (ProColombia 2016):

• The iden ifica ion of marke oppor uni ies.

• The design of marke en ry s ra egies.

• The in erna ionalisa ion of companies.

• Suppor for he developmen of ac ion plans.

• Con ac s be ween en repreneurs hrough ac ivi ies focusing on he promo ion of rade, inves men s, and in erna ional ourism.

• Specialized services o foreign en repreneurs who are in eres ed in purchasing Colombian goods and services or who wish o inves in Colombia.

• Alliances wi h na ional and in erna ional en i ies, bo h priva e and public, ha allows o cap ure resources o suppor differen en repreneurial ini ia ives and promo e he developmen and grow h of he service por folio.

Proexpor changed i s name from Proexpor o ProColombia in 2014. This had o do wi h he apprecia ion ha Proexpor as a name did no really “reflec i s reach or convey i s link o Colombia”. Besides, i was considered ha he name and herefore he ins i u ion would be more recognizable abroad, as similar organisa ions in neighbouring coun ries had similar names: ProMexico, ProPeru and o hers.

4.2.3 Organisational structur

Par of he work of he projec has been o bringing differen organisa ional areas oge her, while working on he developmen and implemen a ion of one expor promo ion me hodology. In order o


ge an idea of he organisa ional s ruc ure of ProColombia he organigram of he organisa ion is presen ed in he image below (ProColombia 2016)21 .

Basically, he areas/depar men s involved in he projec were: Marke In elligence, Commercial Areas (Vicepresidency Expor s wi h he 4 Depar men s: agroindus ry, manufac uring, services and ex iles/clo hing), he foreign offices and he regional offices in Colombia.

4.2.4 K y l m nts of th BSOD programm in Colombia

The LogFrame men ions a number of ou pu s ha are based on/linked o a number of concep s, ha are specific for his projec , and impor an for unders anding wha has been done and achieved. The following are he mos impor an ones:

• PSM 2.0 (PSM – Produc Selling Me hodology)

• Knowledge managemen / Knowledge cus odians

• Link wi h he ECP (ECP – Expor Coaching) programme

PSM 2.0

The projec s ar ed from a number of no ions: 1) ha here was no one specific s ra egy o promo e expor s o Europe, 2) Marke In elligence did no play a sufficien ly cen ral role in service provision, 3) Marke Informa ion was no effec ively acquired from he marke s in which commercial/foreign offices were loca ed, and 4) here was a endency of he foreign offices o work direc ly wi h companies in Colombia.

In rela ion o marke in elligence, one of he CBI exper s men ioned during one of he in erviews: “available information was basically used for preparing nice power points with little use for export

oriented service provision”. Or, in he words of ProColombia s aff, “ he func ion of marke in elligence was reac ive, and no proac ive”.

Besides he above .... “the Market Intelligence department was working in a silo, and information is not shared. If people within Proexport would work together and share their knowledge as a team,

existing knowledge would flow and new knowledge would be created” (source: in erview CBI exper – referring o he projec concep ). Or, as was observed in he iden ifica ion mission: “Existing knowledge and market information within

Proexport is not appropriately packaged,

organized, structured, and made available to Box : excerpt from the PSM 2.0 manual:

internal and external clients” (CBI - Iden ifica ion PSM 2.0 adds the marketing part to the method:

Mission Repor 2009). discovering what Colombian exporters should “make that sells.” The qualitative analysis of demand and supply potential is the main difference.

Al hough here already was a Proexpor Selling Me hodology (PSM), here was apparen room for The second characteristic of PSM 2.0 is the addition

of specific market information products for each improvemen . Therefore i was decided o focus on step in the export process. This will help Proexport he developmen of a uniform approach for to offer value adding commercial information to the

export system in Colombia. suppor ing exis ing and po en ial expor ers. This became he PSM 2.0 model (see Box 1). The The third differentiator of PSM 2.0 is the chapter on

how Proexport departments work together to deliver model was based on he exis ing PSM model, the services to the Colombian exporters. This is a

in egra ing a varie y of ools, in o one uniform and critical success factor. No other trade promotion organisation has an infrastructure as s ruc ured approach, o be used by everybody, comprehensive as Proexport: account managers in

from he momen a po en ial expor er con ac s all regions of Colombia that cater to the needs of Proexpor s, un il ac ual expor s are aking place. exporters, market analysts that provide the value

added market information and foreign officers in all relevant markets of Colombia as antennas and

The PSM 2.0 “combines methodologies to select “sales force”. priority markets for -and supply sectors from-

See figure 1 in Annex 4 21


Colombia with a focus on creating business opportunities22”

The PSM 2.0 manual describes a number of ools ha produce specific ou pu s (e.g. analysis / repor s). These ou pu s have become arge s wi hin he BSOD programme. Therefore hey are briefly described below. Defini ions have been aken direc ly from he PSM 2.0 model.

• Bes Marke Selec ion (BMS) is a model wi h quan i a ive and quali a ive informa ion, which will enable Proexpor o segmen and iden ify produc s, marke s and PMCs (Produc Marke Combina ions) wi h po en ial for Colombia.

• GAP analysis. A GAP analysis is an analysis of a companies’ SWAT: Sources (ma erial suppliers, echnology providers and in-bound logis ics), Winners (compe i ive advan ages as basis for produc /marke combina ions), Alliances (required backward and forward alliances for echnology ransfer or marke en ry alike) and Trends ( rends and specifics of buyer requiremen s in a marke ). I confron s buyer requiremen s wi h a company analysis. A GAP analysis gives a “sense of direc ion for choosing he mode of marke en ry, and helps accoun managers valida e if a company is ready or no o sell o a specific rade channel.

• Marke En ry S ra egy (MES). A marke En ry S ra egy is one of he resul s of he GAP analysis and has hree elemen s: a MEM (Marke En ry Mode ... main source for he compe i ive advan age of a firm), a revised PMC (Produc Marke Combina ion) and a rade channel. Commercial Plan. The commercial plan is an expor plan ha includes all expor promo ion ac ivi ies wi h exac da es and required budge . This is done per company. In he PSM 2.0 manual he commercial plan is no fur her elabora ed.

4.2.5 Knowl dg Manag m nt

The focus of knowledge managemen wi hin he programme was no only o genera e/crea e be er informa ion, make his available ( hrough he websi e and in ernal ICT mechanisms), and use his informa ion in quali y service provision, bu also o address he issue of s aff ro a ion. “Ra her han rying o re ain s aff a all cos s, hough, i (knowledge managemen ) focuses on ensuring an ins i u ional memory hrough he well-developed CRM sys em, hrough an in ernal raining sys em, and hrough es ablishing s andard working processes (such as he ‘sys ema ic selling process) in order o coun er he nega ive effec s of s aff ro a ion (CBI - Iden ifica ion Mission Repor 2009)

The projec documen s refer o hard versus sof ools, wi hin he knowledge managemen componen of he projec .

The hard ools focus on links / da abases / job descrip ions (in rela ion o he genera ion of informa ion and par icipa ion of he PSM 2.0 ools) as par of he incen ive sys em. The la er is impor an , as Proexpor had a sys em wi h clear individual produc ion arge s, linked o incen ives based on he job descrip ions. In order o ins i u ionalize he approach i was herefore deemed necessary o adjus he job descrip ions, linked o he new me hodology/approach o be used in he organisa ion.

The sof ools focus on he raining of a group of people, called knowledge cus odians, who became a key fea ure of he programme. The knowledge cus odians would hen rain o her s aff.

Teams were es ablished o work on he developmen of he me hodology and applying his in real life cases. Teams were composed of persons working in Marke In elligence (analys s), Accoun Managers (Advisors from he expor developmen depar men ) and s aff from he Foreign Offices (oficinas comerciales).

22 (Proexpor / CBI PSM 2.0, 2012)


4.2.6 Link with ECP

The idea was o apply he model in he ongoing Expor Coaching Programmes - ECP programs. Applica ion of he me hodology would help develop he necessary skills, and would provide feedback on he approach i self, so his could be fine- uned.

4.2.7 Th Th ory of Chang

In a simplified manner, he ToC of he BSOD programme can be described as follows:

If you have:

• A unified and ins i u ionalised single approach/uniform me hodology for genera ing and using informa ion in order o assis clien s who wish o develop heir expor s ....

• Teams of persons, or a leas persons from wi hin he depar men s/differen organisa ional uni s ha should play a role in expor promo ion, working oge her on he basis of he me hodology and effec ively communica ing wi h each o her .....

• Advisors and marke analys s wi h he righ skills and knowledge in order o implemen he uniform me hodology ....

• Job descrip ions and incen ive s ruc ures ha no only allow s aff o work along he lines of he approach/me hodology, bu also facili a e/suppor he implemen a ion of he me hodology ...

• An organisa ion ha induces new and rains s aff in he approach/single me hodology

• ICT sys ems in place ha make he sharing of marke informa ion possible/easy, and provide access o relevan marke informa ion

And, if besides from he above, you have he me hodology, job descrip ions, e c. reflec ed in he organisa ion’s quali y sys ems (ISO), hen:

• You will be able o sus ainably provide be er and more s ruc ured quali y services, based on quali y informa ion (more precise, more de ailed, and more aligned o specific needs) o ProColombia Clien s, which in urn ...

• Will increase expor s ( o Europe and o her areas).

Figure 2: Mini ToC – BSOD project Proexport

Better services to (potenti l) exporters

Account m n gers with skills

Single PSM Appro ch

Te ms / working together

Job Description / Incentive Structures

New st ff induction in ppro ches / methodology

ICT systems in pl ce

ISO

INCREASED

EXPORTS


A number of underlying assump ions, as men ioned during he ToC workshop:

• In erdependency of differen depar men s/uni s regarding service provision o clien s is recognized

• There are enough marke analys s who can play a role in his process

• Advisors unders and he advan age of he approach • There is a no ion of join responsibili y in view of improved service provision

• Foreign Offices unders and and are willing o change in line wi h he new approach

• En erprises are “pa ien ” enough o undergo he process

• The organisa ion is suppor ive of all organisa ional changes ha a single/uniform approach may mean

• The ins i u ion is willing o include changes in ISO – Quali y Managemen Sys em

5 Ov rvi w of valuation r sults

This sec ion presen s he evalua ion findings for he wo coun ry case s udies. In he Terms of Reference (See annex 1), de ailed evalua ion ques ions were formula ed under each evalua ion cri eria and herefore he findings are presen ed accordingly. Where relevan , he evalua ion eam decided o clus er he ques ions and presen he findings a he level of he evalua ion cri eria.

5.1 Ass ssm nt p r valuation crit ria Mozambiqu

5.1.1 R l vanc

1. To what xt nt did th programm m t th n ds of th BSO and th g n ral xport nvironm nt in Mozambiqu ?

The projec s ar ed wi h he SP module which aimed o enhance he capaci y a IPEX o be a professional expor developmen and promo ion agency and play a key role in draf ing and implemen ing he na ional expor s ra egy. An impor an firs s ep in his module was he join developmen of a Roadmap which ou lined he ac ivi ies o be conduc ed in order o achieve he desired change. This Roadmap even ually cap ured he developmen of ins i u ional compe encies (posi ioning IPEX in rela ion o ex ernal s akeholders) and he more individual focused compe encies like advisory skills, marke analysis, and produc ion s andards. In addi ion, sof skills also formed par of he raining package, such as presen a ion skills, English language skills, rela ionship managemen and effec ive leadership.

All int rnal stak hold rs men ioned ha he compe encies ha hey have acquired during he BSOD programme were very useful and ha hey s ill use hem. The managemen of IPEX, wi h he same Presiden and Vice-Presiden as during he projec implemen a ion, men ion ha he raining in i self has been very valuable. They refer o he fac ha a he ime, here was no In erna ional Trade School in Mozambique and since many IPEX employees s ar ed o work a he organisa ion wi h very differen backgrounds and experiences, he projec provided an oppor uni y for all s aff members o gain a similar level of unders anding. In addi ion, some s aff had worked already a long ime wi h IPEX and some recen ly joined. Going hrough he process of raining oge her provided many oppor uni ies for discussion and join learning. Special reference is made o he in ernal organisa ional analysis ha offered insigh s in o where he organisa ion s ood and wha IPEX needed o become a more effec ive expor organisa ion.

The holis ic approach o value chain analysis also offered a crucial learning momen as i augh people o bring oge her differen aspec s of expor , such as expor policies, access o financial services, pricing, cer ifica ion, labour, logis ics, EU food law e c. Al hough he projec managed o ge


all IPEX s aff on he same page and fos er a basic skill se among accoun managers, i was also men ioned ha cer ain opics ha were par of he package were very general. In he in erviews, hey referred o general rainings on rade fairs, expor and value chains. S aff and managemen fel ha his basic unders anding was already presen in he organisa ion and herefore hese sessions were assessed as less useful.

Ext rnal stak hold rs confirm he relevance of he modules and suppor in he capaci y s reng hening. However, hey immedia ely refer o he pilo projec s and ques ion he relevance of he compe encies ha IPEX deployed here. This is rela ed o he manda e of IPEX which for many ex ernal s akeholders is no linked o suppor ing farmers in he value chain bu focused on he promo ion of expor s, iden ifica ion of in erna ional marke s and working on removing expor barriers. Bo h in ernal and ex ernal s akeholders ques ion whe her some of he skills ha IPEX deployed, especially in he pilo projec s, were demanded by po en ial expor ers from IPEX. In addi ion, ex ernal s akeholders and exper s are also a bi more modes in affirming he ransmission of he compe encies and his again rela es o he differences be ween he manda e of he projec and he organisa ion as well as he fac ha during projec implemen a ion, IPEX' a en ion devia ed owards o her priori ies, e.g. hose of he Minis ry of Indus ry and Commerce.

An impor an issue concerning relevance is he ques ion whe her his projec was an answer o he problem? I was ques ioned whe her he projec was he righ response o make improvemen s in he value chain, bring key players oge her, s ar a dialogue and crea e energy and synergy. Several s akeholders ha were in erviewed refer o he high level of ambi ion of he projec in rela ion o he capaci y of IPEX: As one s akeholder pu i : "I felt that this project was one bridge too far".

Addr ssing a substantiv n d

The programme was implemen ed by means of hree modules, he EMM, MD and SP. All in erviewees confirm ha he modules have been implemen ed flexibly and ha he needs of IPEX s aff have been aken in o accoun . This has also been confirmed by one of he local ex ernal s akeholders involved a he ime. However, his could no be verified by o her ex ernal s akeholders as only one was included in he evalua ion process.

An impor an finding is ha a large chunk of he quali a ive need of he organisa ion has been iden ified and discussed in he incep ion phase. This has been documen ed in an incep ion repor ha was produced by an ex ernal CBI consul an . Such an incep ion repor already includes he (provisional) LogFrame of he projec and ou lines he resul s o be achieved. Al hough all in erviewees men ioned ha he projec ac ivi ies were no carved in s one and ha here was sufficien space for adap a ion, hey also sugges ed ha he a en ion on he LogFrame and he ac ivi ies o be carried ou may have undermined needed adjus men s and reorien a ion of he projec ac ivi ies.

Coming back o he quali a ive needs of he BSO, IPEX managemen and s aff indica e ha he rela ionship needed o be buil and ha in he beginning s aff fel shy o address heir needs and he needs of he organisa ion. However, confidence of IPEX s aff grew and he projec managemen has been conduc ed in an open way wi h open and hones communica ion.

Never heless, he ension be ween pre-designed modules and he ac ual need of a BSO kep coming back in he in erviews. IPEX s aff refers o he fac ha more on he job raining, more con ex ualised raining wi h more space for hem o con ribu e would have been good. They do recognise he effor s ha CBI made in his regard, bu due o language barriers and cul ural differences, his gap could no always be closed. Moreover, his fric ion was illus ra ed by s akeholders emphasising differen aspec s of he projec . IPEX s aff made reference o he fac ha CBI had a cer ain budge available wi hou aking in o accoun he needs ha IPEX had o be able o implemen he projec . They


perceived ha he objec ive was o expor a cer ain produc o he EU, and herefore sugges ed ha he projec should have also reserved budge o overcome cons rain s. As IPEX s aff phrased i : “There was an amount of budget available, but it was not calculated how much it would cost to e.g. export pineapple”. CBI s aff and o her s akeholders indica e ha he objec ive of he projec was o suppor IPEX in playing a coordina ing role in he value chain by bringing s akeholders oge her, analysing cons rain s and o address hem in an in egra ed manner. This means an emphasis on s reng hening IPEX' convening role which is expec ed o have a posi ive effec on expor . The lack of clari y on he projec ’s in en ions seems o have nur ured he feeling ha he quali a ive needs of he BSO have no been fully me .

In rela ion o he above, people men ion ha he a en ion on raining was no always deemed relevan in ligh of he objec ives of he programme: "there is a risk of training stakeholders in good agriculture practices but he cannot improve his production because he needs resources to invest in

23". his production process

Own rship

Ownership of he BSOD programme by IPEX grew wi h he years. A he s ar of he projec , IPEX performed a role mos ly on rade promo ion and was a rela ively closed organisa ion wi h limi ed con ac s wi h (po en ial) expor ing companies in Mozambique. Big s eps had o be made o develop IPEX in o a Business Suppor Organisa ion and a all levels i was confirmed ha hese s eps have been made. Ownership a managemen level was here righ from he s ar . However, i ook ime for he s aff o ge ou of heir comfor zone and adjus o heir new role. Some difficul ies were found in he proposed organisa ional changes ha could no be pursued due o legal obs acles.

In he projec 's firs phase, IPEX i self did no receive budge o execu e he projec , which gave hem a limi ed amoun of power in decision making. In he second phase of he projec , which involved he pilo projec s funded by EKN, hey did receive budge hrough he single reasury accoun (CUT). However, delays in he sys em caused a delay in he availabili y of funds which again, limi ed he flexibili y and decision making power of IPEX.

2. W r th constraints conc rning th BSO and th xport nvironm nt prop rly id ntifi d

and addr ss d?

The BSOD programme was s ar ed based on an ex ensive iden ifica ion mission by a CBI exper ha resul ed in a BSOD programme documen . This documen was formed based on several in erviews and was developed in a par icipa ory way; ensuring close linkages be ween he needs of IPEX and he programme ac ivi ies. The cons rain s of IPEX wi h regard o he capaci ies ha needed o be s reng hened were well iden ified. Wi h regard o he second phase of he projec , where he gained capaci ies were o be pu in prac ice in he seven pilo projec s, a more cri ical analysis was made. The choice for he seven pilo projec s was based on a long lis ha was genera ed by CBI exper s looking a previous experiences from o her coun ries such as Uganda, Philippines and Colombia. In addi ion, an analysis of he produc groups ha were no par of he 95% of Mozambican expor conduc ed by 10 companies was made. Ano her cri eria ha was aken in o accoun was he link of he po en ial produc s wi h exis ing na ional or in erna ional programmes linked in erna ional rade 24 . Moreover, he demand from he EU was he mos crucial and impor an indica or for he selec ion. The shor lis ha subsequen ly was made by IPEX s aff con ained pineapple, mango, cashew, peanu , beans, piri-piri (chilli pepper) and handicraf . These produc groups were in line wi h Mozambique's Pover y Reduc ion Plan (PARPA II), which ou lined Mozambique's ambi ion o "s imula e he s ruc ural ransforma ion of agricul ure, increasing he sec or’s produc ivi y and

23 Mozambique success s ories, IPEX (2012), p. 10

24 EM module mission repor - July 07-11, 2008 by Mrs. Anneke Wevers


in egra ing i in o he rural sec or, he res of he economy, and compe i ion on world marke s"25; referring o he impor ance of inves ing in agricul ure for pover y reduc ion.

Also, he pilo projec s were for he larges par financed by EKN. Des ina ion of he funds was subjec o he cri eria of EKN and should have a direc rela ion o pover y reduc ion. Al hough he risks of iden ifying produc groups from he agricul ural sec or had been men ioned already in he incep ion phase and also during he selec ion process by exper s, 6 ou of he 7 pilo produc s are agricul ural produc s. The issue wi h agricul ural expor from Mozambique o he EU lies for a large par in he business case: he freigh cos s o expor e.g. green beans from Mozambique o he Ne herlands are per defini ion high, mainly because of he dis ance. In addi ion, small produc ion volumes, quali y of he produce and challenging logis ics were iden ified as major bo lenecks for expor o Europe.

The shor lis ing and priori y se ing was done by IPEX s aff by following a guided decision making process. This process was very valuable o IPEX s aff o analyse heir marke and considering he reali y of Mozambique. However, in hindsigh , people concluded ha he business cases behind he selec ed produc s should have been s ronger and ha spreading he organisa ion's a en ion over seven produc groups was a challenge. This may have also been caused by he fac ha he pilo projec s were ini ially designed as pilo projec s in a pure sense: small projec s o secure quick resul s from which IPEX and s akeholders could learn. The objec ive was ha only af er ini ial successes, he scale of he pilo projec s was o be augmen ed. The pilo s ook off quickly and heir scope became bigger han an icipa ed. This was due o he impor ance ha IPEX a ached o i and he real expor ha hey wan ed o achieve.

During he in erviews, reference was made o he 'marke readiness' of Mozambique. In rade, i all s ar s wi h he demand side: if here is a demand - i can be sold. However, one also has o review he bo lenecks before a produc can en er he marke . Al hough his was done in he programme, many in erviewees indica e ha he value chain approach and he focus on seven sec ors was one bridge oo far because of wo reasons: (1) Before being able o expor e.g. pineapple o he EU, you need o have an expor able offer. To ge o an expor able offer, many cons rain s had o be addressed a he same ime, such as ge ing o scale (associa ions, ou growers schemes), ranspor , s orage, packaging, quali y con rol and he reinforcemen of rules and regula ions. In Mozambique, he in ernal marke is ye o be developed. The capi al Mapu o is close o Sou h Africa and Mozambique impor s many produc s from Sou h Africa ins ead of consuming from heir own soil. Crea ing realis ic and more concre e expor op ions was one of he aspec s ha his programme did no address. (2) Since he Mozambican producers did no iden ify he demand hemselves, in rinsic mo iva ion o increase produc ion capaci y, diversify produc s and prepare for expor s, was weak. This is explained by he cul ural reali y as many producers did no see he need o upscale heir business and were comfor able o re ain he s a us quo. In order o increase produc ion capaci y, a lo of en repreneurship, persis ence and dedica ion is needed. By receiving ex ernal incen ives o increase produc ion, his aspec of doing business was no riggered.

Many in erviewees indica ed ha 'crea ing an expor enabling environmen ' is by defini ion a poli ical process. They hin o he fac ha even hough you can perfec ly iden ify he cons rain s and expor barriers, in order o address hem, you need an ac of coopera ion and commi men from an en ire governmen sys em - a all levels. This akes ime and requires a focus on s imula ing en repreneurship, en repreneurial skills and a 'can do men ali y'. IPEX s aff and exper s indica e ha par of he desired resul s was no wi hin heir scope of influence and ha his influenced he performance of he projec .

Ac ion Plan for he Reduc ion of Absolu e Pover y (2006-2009), Republic of Mozambique, p. 32 25

http:offer.To


3. To what xt nt was th programm align d to th polici s of CBI and th N th rlands Ministry of For ign Affairs?

The BSOD programme is fully in line wi h some of he key policy documen s concerning in erna ional coopera ion, e.g. "Basisbrief On wikkelingssamenwerking 201026" and "Wa de Wereld verdien 27". The focus has become more and more on economic developmen as a driver of change and he con ribu ion he Ne herlands can give in ha regard. A connec ion be ween he Ne herlands and he global in eres s is one of he main objec ives of Du ch foreign policy and in coun ries his means ha he focus of Du ch Developmen Assis ance in he eigh ransi ion coun ries, including Mozambique, is moving "from aid o rade". The BSOD programme has a s rong focus on crea ing expor perspec ives o Europe and is herefore in line wi h his discourse. On he one hand i s objec ive is o crea e economic oppor uni ies in a coun ry like Mozambique, and on he o her hand o s imula e impor o he Ne herlands. However, his objec ive has proved o be problema ic in Mozambique, primarily rela ed o he geographical loca ion of he coun ry. Being loca ed under he equa or implies a long shipping or freigh dis ance o he EU, which makes expor ing especially agricul ural produc s rela ively expensive.

5.1.2 Eff ctiv n ss

4. To what xt nt hav outputs and outcom s b n achi v d, as d fin d in th int rv ntion logic, looking at: - Activiti s: quality and quantity of s rvic d liv ry within th programm its lf - Outputs: r duction of capacity constraints at BSO l v l - Outcom : improv m nts in s rvic d liv ry of th BSO

Activities

The resul s areas of he programme were defined in advance, and he implemen a ion of ac ivi ies was conduc ed in a flexible manner. A he end of each incoming mission, he planning for he nex mission was discussed. Af er each mission, a mission repor was shared wi h IPEX s aff, s akeholders and he CBI programme manager. The fac ha he projec con ained a subs an ial amoun of raining by incoming exper s mean ha IPEX faced a challenge of main aining he momen um in be ween he missions. Af er a week of submersion in o a new opic, du y called and IPEX s aff's a en ion urned o he day- o-day priori ies and reques s from heir Minis ry. This has been described in he in erviews wi h s akeholders as "two steps forward and one step back" - each ime.

Outputs

In erms of how he projec con ribu ed o reducing capaci y cons rain s in IPEX, mos s akeholders refer o he improved compe encies ha he projec has con ribu ed o. The s ar of he projec was charac erised by knowledge ransfer and la er on, he focus shif ed owards s reng hening of skills. The improvemen of he echnical capaci y of IPEX s aff, working in eams and making people responsible for a specific produc group (in he pilo projec s phase), are all referred o as posi ive aspec s of he projec . One of he cons rain s ha was iden ified a he beginning was he fac ha IPEX was a rela ively closed organisa ion wi h limi ed con ac s wi h (po en ial) expor ers. This issue was addressed by making he office a more open and welcoming place, organize 'road shows' hroughou he coun ry and rain he s aff in rela ionship managemen . IPEX is loca ed a he 5 h and 6 h floor of a larger governmen building in he cen re of Mapu o. In addi ion, i has offices in Beira and Nampula o ensure accessibili y.

26 h ps://www.rijksoverheid.nl/documen en/kamers ukken/2010/11/26/kamerbrief-inzake-basisbrief-

on wikkelingssamenwerking 27

h ps://www.governmen .nl/documen s/le ers/2013/04/05/global-dividends-a-new-agenda-for-aid- rade-and-inves men

https://www.government.nl/documents/letters/2013/04/05/global-dividends-a-new-agenda-for-aid-trade-and-investmenthttps://www.rijksoverheid.nl/documenten/kamerstukken/2010/11/26/kamerbrief-inzake-basisbrief


In erms of how he projec con ribu ed o he capabili y of IPEX o iden ify and classify cons rain s in he supply chain in Mozambique and give he corresponding suppor in each of he ca egories of cons rain s, he evalua ion findings are more modes . During he projec implemen a ion all s aff worked oge her o suppor he pilo projec s o he bes of heir and he ins i u ion's capaci ies. This was done by res ruc uring he organisa ion and appoin ing accoun managers for he produc groups. Financing for he pilo projec s came from EKN and echnical suppor was provided under he BSOD programme. Al hough he skills raining was very much focused on addressing he cons rain s in he value chain and o con ribu e o a conducive expor environmen , in reali y he capaci ies gained were mainly deployed for increasing expor from one of he seven produc groups.

Outc mes

To evalua e he improved service delivery of IPEX o (po en ial) expor ers a number of s akeholders was in erviewed and a focus group discussion was held wi h he green bean associa ion in Moamba. Four years af er projec comple ion, i was a good oppor uni y o see whe her he projec managed o fos er a change in he service delivery of IPEX owards po en ial expor ers. All In erviewees men ioned improvemen s in he area of openness of he organisa ion. Nowadays, IPEX is more open o suppor companies and assis hem wi h marke informa ion, linking hem wi h po en ial buyers, suppor ing hem in finding finance and inves men oppor uni ies and expor promo ion. This is mos ly done in a reac ive way, ra her han a pro-ac ive way. However, his has improved when compared o he si ua ion as described in he BSOD programme documen , where he SWOT (S reng hs, Weaknesses, Oppor uni ies and Threa s) analysis iden ifies a weak echnical capaci y o a end o clien 's reques s28 . IPEX s aff described ha hey are now be er equipped o advise clien s because of he raining hey received.

IPEX is no he only organisa ion in Mozambique who is capable of providing hese services o expor ers as smaller, commercial organisa ions en ered he marke and are now capable of providing similar services in a shor er imeframe and hey do more pro-ac ive marke ing. Many companies make use of hese smaller service providers and IPEX is no ac ively ou going in promo ing heir services on he expor (promo ion) marke . In ha sense, some people indica ed ha IPEX "missed the boat"; a he ime of he projec implemen a ion promising s eps were made o add value o companies, e.g. hrough organizing round ables and road shows. However, af er projec comple ion hese ac ivi ies have no been con inued and herefore visibili y of IPEX has diminished.

5. Ar th r any unfor s n (positiv or n gativ ) sid ff cts as a cons qu nc of th BSOD

programm ?

Side effec s ha were men ioned are he in erna ional ou look ha he projec provided o IPEX and he in roduc ion o o her ways of learning. Some IPEX s aff men ioned ha he rela ive lack of on- he-job raining was a missed oppor uni y as he raining sessions were charac erised by plenary sessions ins ead of one-on-one ( ailor made) learning. However, he way

Documents

Evaluation of BSOD programmes IPEX and Proexport Evaluation IPEX an… · Final evaluation reportBSOD programme Mozambique andColombia 1 . Table ofContents . List of Abbreviations