1. Outline of the ProjectCountry name: Indonesia

Project

name:Freshwater

Aquaculture

Development Project
Fields: Fisheries
Supervising

Assistance type: Technical cooperation project

office:Fisheries

Cooperation Team, Third Group,
Rural Development Department
Periodofcooperation

August 28, 2000, toAugust27,

2005
R/D: MarchCounterpart organizations: Ministry of Maritime
AffairsandFisheries(MOMAF),

Directorate

General of Aquaculture (DGA), Jambi Freshwater
29,

2000

Aquaculture Development Center (BBAT Jambi)
Cooperating organizations in Japan: Ministry ofAgriculture, Forestry, and Fisheries (Fisheries
Agency); Tokyo University of Marine Science andTechnology; Prefectural Fisheries Experimental
Stations.

1-1 Background and outline of the Project
Production from Indonesia’s inland water fisheries and aquaculture account for roughly
one-fourth of the nation’s fisheries production.

The industry serves as an importantsource of protein for the Indonesian population and provides employment and livelihoodfor some 3 million fishery workers.

However, the amount supplied by the industry

reaches no more than 60% of the production target set by Indonesia, and the fish species
caught are limited as the industry relies almost entirely on traditional fishing.
production level remains low.

Thus,

Consequently, given recent economic crises and foodshortages, promotion of freshwater aquaculture is expected to lead to stable food supply
and creation of employment opportunities.
In 1995, Indonesia’s Ministry of Agriculture formulated a general plan for fisheries
promotion, entitled the “technical implementing organization plan” (LOKA plan), basedon the regulation of the Minister of Agriculture.

In accordance with this plan, theDirectorate General of Fisheries pushed forward with the establishment of facilities
infrastructure for “Jambi Freshwater Aquaculture Development Center (Balai
Budidaya Air Tawar Jambi ： BBAT Jambi), which would serve as a base fordevelopment and extension of freshwater aquaculture in western Indonesia, throughself-supporting efforts as well as JBIC financing (Sector Program Loan [SPL]), andsubmitted a request to Japan for technical cooperation for promotion of freshwateraquaculture needed to advance the LOKA plan.

Based on this request, JICA conducteda preliminary study in August 1999 as well as a short-term study in November of thesame year and formulated a cooperation program.

And in March 2000, JICA

implemented a preliminary evaluation that led to the commencement of five-year
project-type cooperation (currently technical cooperation project) in August 2000.
1-2 Description of cooperation(1) Overall Goal
Sustainability of freshwater aquaculture of small-scale fish farmers is improved.
(2) Project Purpose
Extension activities for appropriate applied freshwater aquaculture technologies
available to small-scale fish farmers are strengthened.
(3) Outputs of the project1) High-quality broodstock of existing freshwater culture species is supplied to seedproduction groups.
2) The quality of aquaculture products (seed and grow-out fish) of existing
freshwater fish culture species is improved.
3) Fish-breeding technologies for new fish culture species are developed.
4) Effective extension models adjusted to the local conditions are established.
5) The stakeholders in the project area become more interested in freshwateraquaculture.
(4) Inputs (at time of evaluation)
Japanese side
Dispatch of long-term experts:

6 experts

Dispatch of short-term experts:

19 experts

Training of C/Ps in Japan:

20 C/Ps (including 2 for long-term
training

Provision of machinery and equipment:

152 million yen

Assumption of local costs:

85 million yen

Indonesian side
Allocation of C/Ps:
Provision of land and facilities

30 C/Ps

Assumption of local costs (254 million yen)

2. Outline of the Evaluation Team
Members(Field, name, occupational position)
1) Leader/

Kunihiko Fuskusho

Aquaculture Technology:

Director, Breeding Department, Portof

NagoyaPublicAquarium(chairman of the domestic support
committee)
2) Fish disease measures;

Kishio Hatai

Professor, Division of Fish Diseases,
NipponVeterinary

Science

University

andAnimal(currently“Nippon Veterinary and life Science
University”) (member of domestic
support committee)
3) Evaluation analysis:

Shohei Natsuda

Consultant,

Project

Operation

Division, International Department,
Sanyu Consultants Inc.
4) Planning evaluation

Ryutaro Kobayashi

Project officer, Fisheries Cooperation
Division,

Rural

Development

Department, JICA
Evaluation

April 12, 2005, to April

period30, 2005

Evaluation type: Final evaluation

3. Outline of Evaluation Results
3-1 Confirmation of achievements(1) Inputs
The inputs from Japan were judged to be largely appropriate in terms of quantity andquality.

As for the inputs from Indonesia, there was a delay in construction of facilities

for BBAT Jambi at the beginning of the Project, and this caused a delay in later Project
activities.

Other inputs from Indonesia were judged to be largely appropriate in termsof quantity and quality.
(2) Activities
Of the 46 sub-items of the activities plan, activities for three items have already been

completed and activities for 26 items are expected to be completed by the end of the
Project.

It is judged that activities for the remaining 17 items will not be completed by

the end of the Project.

The delay in these activities is caused by slow facilities

construction and land issues as well as an unanticipated outbreak of fish disease and achange in the extension system structure that was brought about by decentralization.
It is thought that some sort of response to these issues will be required in the future.
(3) Outputs
For Output 1, high-quality broodstock that was produced through the Project’s
verification testing―common carp: 2,217 fish; tilapia: 2,400 kg; patin: 200 kg―weredistributed and sold to private seed-production groups and seed-production centers of
local governments in the model areas and other provinces.

Thus, movement towardachievement of this Output is proceeding according to plan, as, among other factors, it isexpected that production of high-quality second-generation broodstock will expand atplaces that received the original broodstock. However, distribution of common carp
was interrupted due to the occurrence of the disease caused by(KHV).

Koi Herpes Virus

And, distribution of nilotica, which is a high-quality species of tilapia, is only

just getting started because environmental impact procedures by Indonesia took
considerable time.
For Output 2, it is judged that the quality of aquaculture products in the four model
areas has improved because high-quality seed and grow-out fish are being steadily
produced in these areas.

However, in order to ensure continuation of aquaculture

production, further extension activities will need to be continued into the future. Of
particular relevance here is the model area in West Sumatra Province, where
achievement of Output 2 is low due to the short period of activities.
For Output 3, the survival rate of sand goby has reached the point where it stands at or
above 50%, and it is expected that over 1,000 fish will have been bred by the end of the
Project.

Thus, aquaculture and breeding techniques have been developed at theexperimental level.
For Output 4, it is thought that two or three more years will be required before technicalimprovement of fish farmers reaches Level A (fish farmers [groups] acquire and utilize
the standard technology) in all model areas. However, extension models for training
and technical guidance have been established and the technical levels of fish farmers isrising steadily in line with progress in extension activities; as of 2004 the rate at which
farmers’ diaries are kept stands at approximately 60%.

In the effort to achieveautonomous activity, extension activities by BBAT Jambi staff members as well as more
active participation in extension activities by local governments in each model region
will be required.
And for Output 5, interest in freshwater aquaculture has risen through a series ofextension activities that include the holding of extension network seminars (three times
on the national level) open seminars (three times at the regional level), general
meetings during monitoring, and information exchanges with prefectural fisheries
department personnel (once or twice monthly) as well as distribution of newsletters(twice yearly), farmers’ diaries, and PR calendars.

Many concerned persons areattending the seminars and meetings, where they are sharing information.

However,more participation by local governments will be necessary in order to advance extension
activities in each model area.
(4) Project Purpose
It is thought that progress toward achievement of the Project Purpose is on course, as
active extension activities are being implemented through the Project, the number ofsmall-scale fish farmers is increasing, and instances of higher production volume andincome among farmers that are engaged in aquaculture are apparent.

However, delays

in project activities and other circumstances mean that the number of cases in which
production volume and income are growing is still too small.
(5) Overall Goal
Production in six provinces in Sumatra has increased each year; it has been confirmedthat production doubled, from 47,192 tons in 2000 to 100,404 tons in 2003.

Thus, there

are sufficient grounds to expect future increases in freshwater aquaculture productionin the areas targeted by the Project.
3-2 Outline of evaluation results(1) Relevance
The Project can be seen has having high relevance. The Project Purpose conforms to
MOMAF’s strategy of improving aquaculture techniques and establishing aquaculture
facilities and of further expanding markets for aquaculture products.

Moreover, theapproach involving simultaneous technical development and extension activities is tied

to discovery of onsite technical problems and development of technologies that addressthese problems.
Of the six provinces of Sumatra that were targeted for extension, two did not haveextension model areas established in them.

However, because technical transfer

through seminars, training, etc., also included human resources in these two provinces,the benefits of the Project are distributed fairly.
(2) Effectiveness
Although extension activities that are based on technologies that were standardized
through the Project are still insufficient, the number of fish farmers in the Project
regions is growing by between approximately 1.9 and 3 times. Moreover, between 56
and 90% of farmers in the Project model districts are seeing increased production
volumes.

Training is being held on an average of 25 times a year, and in five model

areas (excluding model areas in which all farmers reported no change in income)between 46 and 88% of farmers answered that they had seen a rise in income.

For thisand other reasons, some degree of Project Purpose achievement as well as a certain levelof Project effectiveness can be seen. Moreover, it can be said that efforts by the experts
and the C/Ps raised enthusiasm among farmers and were linked to Project outputs.
However, extension systems in all parts of Indonesia had to be rebuilt due to the effects
of decentralization.

While this significant development can be considered to be an

external condition, the fact that the Project’s extension activities achieved some results
even under such severe conditions indicates that the Project Purpose is attainable if
local governments sufficiently participate in extension activities.
(3) Efficiency
The inputs from Japan were judged to be largely appropriate in terms of quantity andquality.

As for the inputs from Indonesia, there was a delay in construction of facilities

for BBAT Jambi at the beginning of the Project, and this caused a delay in later Project
activities.

Thus, Project efficiency cannot be rated highly.

(4) Impact
The Project had significant impacts in the fields of technical development and extension
activity.

First, the Project made possible full-scale research and development on

freshwater aquaculture in Sumatra.

Secondly, extension activities implemented

through the Project can guide fish farmers in ways that match their actualcircumstances, and fish farmers are now able to obtain detailed answers to theirquestions from BBAT Jambi.

Because technologies that were introduced through the

Project’s extension activities are being transmitted across the boundaries of extension
model areas to neighboring farmers, further promotion of aquaculture in Sumatra canbe expected in the future.
(5) Sustainability
The Project’s sustainability cannot be rated highly at the present time.

Reasons

include remaining insufficiencies in ability among C/Ps to manage and operate activities
and equipment as well as in technical responses to sudden outbreaks of fish diseases
due to the impact of delays in Project activities.

Another reason is incomplete

establishment of extension systems that was made necessary due to confusion arisingfrom the movement toward decentralization.

Thus, future improvements will benecessary.
3-3 Factors contributing to emergence of effects(1) Factors pertaining to planning content-

Because the Project plan was formulated in line with national policy, Project
activities contributed to the development of freshwater aquaculture throughout allof Sumatra.

-

Dispatch of experts and counterpart training in the fish diseases field facilitatedappropriate responses to the unanticipated outbreak of KHV and to individual
consultations from fish farmers.

(2) Factors pertaining to the implementation process-

The approach involving simultaneous technical development and extension activity
appropriately tied technical problems and technical development together at thefarm level.

-

Methods involving direct approaches from the Project to fish farmers’ organizations
and establishment of model areas led to extraction of technical needs.

3-4 Problem areas and factors leading to problems(1) Factors pertaining to plan content-

The delay in construction of facilities for BBAT Jambi at the beginning of the Project
caused delayed progress in later Project activities.

It should be noted that a

response to the delay was made through priority implementation of a basic survey

for extension activities by the end of construction.
-

The emergence of land issues involving BBAT Jambi at the beginning of the Project
delayed the progress of later activities, despite a cooperative effort to resolve theissues by the provincial and central governments.

(2) Factors pertaining to the implementation process-

An outbreak of KHV in western Indonesia forced changes in strategies for producing
and distributing common carp, which was a major target species of the Project.
However, dispatch of short-term experts, C/P training, and guidance on fish diseases
for fish farmers were implemented as countermeasures.

-

Decentralization resulted in changes in the extension systems of local governments.
This forced modification of the Project’s technical transfer target (originally,
extension workers of local governments) and resulted in the loss of personnel incharge of transmitting technologies to the regions.

The Project responded byaiming extension activities directly at fish farmers/groups.

However, aquaculture

extension workers are currently assigned by some local governments.
3-5 Conclusion
The Joint Evaluation Team found that many activities were implemented and thatnumerical indicators are being achieved at a certain level.
team finds that Product achievement is not low.

Based on the above, theNonetheless, the team finds thatcertain important elements of the Project Purpose will not be attainable due tooccurrence of the following factors:
1) Delay in construction of BBAT Jambi facilities
2) Occurrence of land issues for BBAT Jambi (problem evicting residents fromgovernment-owned land to be used by BBAT Jambi)
3) Outbreak of KHV in western Indonesia
4) Change in the extension systems of local governments due to decentralization
The team recognized that these external conditions lowered Project efficiency and that
activity delays are resulting in a situation in which sustainability is not sufficiently
maintained.

On the other hand, the Project has high relevance and achieved a certain

level of effectiveness, and activities are having strong positive impacts.
3-6 Recommendations(1) Recommendations pertaining to Project extension
In order to achieve the Project Purpose, the evaluation team determined that it will benecessary to continue activities by extending the Project Period after termination of the
Project. However, the team recommended that C/Ps of BBAT Jambi implement some ofthese activities on their own so as to promote self-help activities by C/Ps.
The team feels that the length of the Project extension should be two years, and that
inputs from Japan should be as follows: one long-term expert should be dispatched ineach of the fields of “freshwater aquaculture” and “aquaculture extension,” and one ormore short-term experts should be dispatched in the field of “fish diseases.”
Counterpart training in Japan should be conducted within the framework for the
Project extension period if the necessity of such training is recognized by both Japan andIndonesia.

Local activity costs should be borne by both sides.

The team does notbelieve that purchase of additional machinery, equipment, or materials will be required,as sufficient inputs were made in this area during the five-year Project Period.
Indonesian C/Ps during the extension period should include not only BBAT Jambi C/Ps
but also local government C/Ps, and efforts should be made to continuously secure
facilities, equipment and necessary budgetary funding.
Moreover, the evaluation team recommended that two model areas should be selected
for the Project extension period for the implementation of extension activities.
Based on the above, the evaluation team recommended to both the Japanese andIndonesian governments that they start procedures for Project extension.
(2) Recommendations pertaining to aquaculture technology development
Possibilities for technical transfer in Indonesia: BBAT Jambi should effectively utilize
techniques possessed by Java, whose freshwater aquaculture has a long history
compared to other areas in Indonesia.
Relationship between BBAT Jambi and other organizations: BBAT Jambi should engage
in further joint activities with other organizations of local governments, etc., througharrangements made by DGA.
(3) Recommendations pertaining to countermeasures against fish diseases
Countermeasures against KHV diseases: It has been observed that some fish infectedwith KHV may survive.

However, because such fish are considered to be KHV carriers,

fish in a pond of a farm on which a KHV disease outbreak has occurred must not betransferred to other farms.
KHV-free fish.

Thus, it is important for the Project to keep stocks of

When distributing KHV-free fish, it is desirable to provide a pamphletthat gives information on preventing KHV disease outbreaks together with fish seeds.
Furthermore, if a KHV disease outbreak occurs in a pond, it is desired that the watertemperature of the pond be maintained at 28°C or higher.

The Project should findappropriate measures for dealing with diseases through testing, field surveys in model
areas, and collection of information from both inside and outside Indonesia.
Learning from KHV disease: KHV disease is thought to be a good alarm bell for fish
farmers.

As aquaculture has developed, a variety of fish diseases have occurred.

Thus, implementing countermeasures against these diseases and extending awarenessof the importance of these countermeasures will be needed for the sustainable
development of aquaculture.

In this sense, steady implementation of water quality

management and to raise healthy seedling are important.
3-7 Lessons learned(1) Extension methods for “on-farm activities”
The extension strategy, which focused on the abovementioned core fish farmers andfarmers’ groups, and extension strategy that set model areas contributed significantly toachievement of the Project Purpose.

Moreover, continuous monitoring activity as well

as discussions and information exchanges led to the building of an interdependent
relationship between fish farmers’ groups and the Project.

And activities taken on theinitiative of fish farmers expanded the techniques that were developed through the
Project to other fish farmers.
(2) Other effective extension methods
Technical levels in aquaculture vary among fish farmers and regions, and uniform
technical development means that some needs may be overlooked.

Thus, approaches

that simultaneously pursue technical development and extension are useful in feedingback onsite-level extension techniques into development techniques.
It should be noted that incorporating activities pertaining to fish diseases as means forextension into extension activities for freshwater aquaculture proved to be highly
effective.

(3) Land issues
At the beginning of the Project, a delay occurred in construction of BBAT Jambi
facilities, which was an input of the Indonesian side.

There were also problems

evicting residents from government-owned land to be used for BBAT Jambi, theresolution of which required considerable time.
slowdown in Project progress.

These developments resulted in aConsequently, it will be necessary to confirm theexistence of similar problems when conducting preliminary evaluations and to keepthem in mind when setting the period for project commencement.