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Germany-Brazil-Mozambique – Sharing quality standards


Egypt: Ministry of Water Resources and Irrigation, Uganda: Ministry of Agriculture, Animal Industry and Fisheries


Instituto Nacional de Normalização e Qualidade (National Institute of Standardization and Quality, INNOQ) – Mozambique • Instituto Nacional de Metrologia, Normalização e Qualidade Industrial (National Institute of Metrology, Standardization and Industrial Quality; INMETRO) – Brazil • Agência Brasileira de Cooperação (Brazilian Cooperation Agency; ABC) – Brazil • Bundesministerium für wirtschaftliche Zusammenarbeit und Entwicklung BMZ (Federal Ministry for Economic Cooperation and Development) - Germany • Deutsche Gesellschaft für Technische Zusammenarbeit (German Agency for Technical Cooperation; GTZ) – Germany • Physikalisch-Technische Bundesanstalt (German National Metrology Institute; PTB) – Germany

Country (ies):

Mozambique, Brazil, Germany


Due to growing industrial expansion and entrance in the international market, Mozambique decided to engage in a triangular cooperation initiative with Brazil and Germany in order to improve Mozambican quality infrastructure through institutional and technical development of INNOQ. This project also contributed significantly to the development of an official concept and guiding principles for Brazilian-German Triangular cooperation. Mozambican consumers gained access to institutional means to demand better quality standards of products in national market.


The planning process was pushed by the political and economic framework of Mozambique. Mozambican consumers have traditionally suffered from too little control over quality and exact amount of purchased products. Given the growing industrial expansion in Mozambique and its entrance in the international market, reinforced by a new free trade zone in the Southern Africa Development Community, the demand for quality standards of manufactured and industrial products increased. The Mozambican government identified the improvement of technical capacities for legal and industrial metrology, as well as the implementation of quality systems, as a starting point in order to achieve bigger share of international market (export) and also providing local consumers with products of a higher quality.

The Government had been investing in the development of a National Institute of Metrology, Standardization and Industrial Quality (INNOQ) by i) providing political support, ii) growing allocation of human resources and annual budget for the implementation of its activities and also iii) starting to develop a national law on metrology.

Through existing technical cooperation initiatives with Brazil and Germany in 2008, the Mozambican Government expressed interest in receiving cooperation from both countries in order to further develop INNOQ capacities to supply market demands. The interest to cooperate with Brazil was based on the Brazilian capacities and technologies in metrology and quality systems (internationally recognized by the work of Inmetro), its similar socioeconomic situations and language facilities. The interest to cooperate with Germany was also based on the high technical standard in metrology and quality systems and the existing cooperation experience with GTZ and PTB in both countries, mainly regarding institutional and technical capacity development.

The decision to cooperate within the modality of triangular cooperation was based on the reflections that i) the coordination of international actors working with the same institution would be a considerable advantage, ii) the joint planning for the implementation of technical activities, as well as allocation of human and financial resources would increase the outcomes of the project, and iii) the use of each partners' expertise was perceived as complementary.

In December 2007, PTB, GTZ and Inmetro carried out a first joint mission to Mozambique in order to identify the demand and propose an operational working plan for the project with the beneficiary institution (INNOQ). As there did not exist a standard procedure for planning and implementing triangular projects, the actors decided to engage in a pilot measure in order to test this cooperation constellation in practice. In fact, activities started six months later.


The project was composed of three components:

• Management and institutional strengthening of INNOQ: supporting the development of an institutional framework for getting the new law on metrology known and approved.
• Technical development: providing a number of trainings in the areas of legal metrology and also technical support to the implementation of regular activities/services provided by INNOQ.
• Project management, monitoring and evaluation.
Roles and Responsibilities of the involved institutions were defined as follows:

• INNOQ - responsible for providing the local counterpart, offering technical personnel and logistical support for the joint implementation of activities planned.
• INMETRO - responsible for designing and carrying out training modules for legal metrology and conformity assessment.
• ABC - responsible for coordinating the Brazilian cooperation and for the political communication with Mozambican government.
• GTZ and PTB - responsible for the organization of technical missions and implementation of activities focused on institutional strengthening, as well as the development of a communication strategy.
Within the project, the main following activities carried out were:

• Seminars for enterprises and municipalities in order to sensitize local actors regarding the importance of metrology activities were held. These seminars were oriented to promoting services offered by INNOQ to enterprises and grasping other demands from the private sector aiming to further develop INNOQ institutional capacity to render more services. Furthermore, a strategy for political concertation regarding INNOQ mission and its impacts on the economic and social development of the country was initiated.
• A study trip of INNOQ technical coordinators to Germany was organized by PTB. In this occasion many organizations of the German quality infrastructure (DIN, BAM, DAP, verification offices, industrial and testing laboratories, energy supplier) were visited. INNOQ director and 4 area coordinators (metrology – legal and industrial, standardization and certification) took part in this mission. Insight into German know-how was gained, regarding (i) systems operation of quality infrastructure, (ii) networking with other institutions (public and private), (iii) financial accounts for offered services, and (iv) models of decentralization of industrial and legal metrology activities to the private sector. These experiences were useful for INNOQ in order to improve its institutional coordination with Mozambican municipal councils – which are responsible for the implementation of metrological activities.
• INMETRO shared Brazilian experience in developing a career plan, for job positions and wages, and the relevance in having a permanent and highly qualified technical board at INNOQ in order to achieve excellence. Further, six training sessions were carried out by INMETRO in specific areas related to legal metrology.
• Monitoring took place with the support of GTZ, PTB and ABC, in order to adjust the plans of the triangular project and assure the achievement of expected results.

As a result of the final evaluation, all partners from the three countries involved agreed that this pilot triangular project resulted in achieving a bigger impact due to the coordination of efforts and complementarity of technical cooperation activities. A follow-up project based on the lessons learnt was proposed and accepted by all parties.

A main challenge in the implementation process was to achieve an adequate flow of communication among actors from the three countries, as well as the process of building mutual confidence between the parties. During the project, mechanisms for coordinating triangular initiatives were developed and improved, with INNOQ taking over ownership and leadership in the implementation of the operational plan. Therefore, a group of institutional representatives responsible for coordinating the triangular initiative and a technical group responsible for the design and implementation of activities were instituted.


Two major outcomes of this pilot project can be stated. (1) An institutional strengthening of INNOQ, and (2) a number of mutually learnt lessons which led to a more strategic design of criteria and standards for further triangular projects to be carried out between Brazil and Germany.
(1) INNOQ institutional strengthening:

• Modernization of INNOQ´s organization chart, improving technical departments and creating departments for human resources, international cooperation and legal support.
• Political positioning of INNOQ in Mozambican Government, which resulted in the approval of i) duplication of personnel (from 17 to 48 until 2009 and the expectation of 40 more being allocated from 2010 onwards), ii) construction of a permanent headquarters for INNOQ in Maputo (currently under construction), and iii) design and proposal of a national metrology law (currently in process of approval at the National Assembly).
• Recognition of the importance of INNOQ for the country´s development by the Mozambican government and enterprises.
• Starting acknowledgment of consumers` rights within Mozambique.

As a result of the impacts achieved by this pilot project, all partners agreed to further involve in triangular cooperation activities and to design a follow-up project (2010-2012) with a more strategic and participatory planning process. The new project covers the following topics:
• In-depth study of demand and offer for INNOQ services;
• Further institutional strengthening of INNOQ, focused on the development of a business organization model and marketing strategy;
• Further technical training in other specialized areas related to industrial metrology and the development of the quality infrastructure;
• Decentralization of activities to municipal councils.
• Participatory involvement of target groups, such as companies, municipal councils and consumers.

(2) A further very important outcome of this project were the lessons learnt for current and future triangular cooperation projects to be implemented by Germany and Brazil:

• Establishment of a MoU between the Brazilian and German government agreeing on a common concept and guiding principles for all triangular cooperation initiatives, such as i) ownership of the beneficiary country, ii) sustainability of actions implemented and iii) participatory design of the operational plans.
• Brazil and Germany are engaged as equal partners, valuing the other´s expertise and jointly planning the activities based upon complementary strengths in order to better serve the beneficiary country in its development process.
• Agreement of a joint plan and criteria for monitoring and evaluation of activities, based upon a transparent and regular communication among actors involved.
• Agreement, that each partner finances its own contributions, corresponding to at least 30% of the total international contribution.

Aid Effectiveness:

The project was based on a national demand, and leadership of INNOQ was supported at all stages of the project. Still, important learning processes followed the implemented activities:

• Clearer outcome-oriented planning, participation of stakeholders, ownership and focus on sustainability of the actions were perceived as key points for success of projects by all actors involved. Contents of training courses not always corresponded to local priorities and systems, but were designed within institutional contexts of the donor countries. During the project evaluation, involved technicians from all countries stated the necessity to more intensively study and become more acquainted with the national demands and the institutional context in order to adapt training contents.

• During the pilot initiative, INNOQ managed to formulate its demands more clearly in order to absorb results in its institutional routine.
• The planning of the follow-up project was based on these mutual learning experiences.
• In the follow-up project, special attention will also be given to the coordination of actions with other relevant actors, such as enterprises, professional training institutions and consumer organizations.

Capacity Development:

The institutional strengthening of INNOQ was an important aim of the pilot initiative. INNOQ benefited from the different project activities and created departments for human resources, international cooperation and legal support, duplicating its staff during the duration of the project. It also gained a political standing within Mozambican Government. Still, a more strategic component of capacity development will be part of the follow-up project: (i) creation of a communication department and (ii) development of a business plan. The institutional component is going to be further strengthened through the support by an integrated expert for business development, provided by the German counterpart.


2008 – 2009 – pilot project 2010 – 2012 – Follow-up project (phase 1)

Budget (Optional):

USD 312.184,00 - pilot project • ABC – US$ 89,184 • PTB - US$ 77,160 • GTZ – US$ 79,200 • Inmetro – US$ 66,640 Shared between the Brazilian and German counterparts. The Mozambican counterpart provided permanent personnel and logistical support for the implementation of the activities.

Name of Primary Contact Person:

Daniel Alker

Title of Primary Contact Person:

Counselor of the German Federal Ministry for Economic Cooperation and Development BMZ in Brazil


Brasilia/ DF