Mid-Term Review Report of Japanese ODA Loan Project for FY2012
External Evaluator: Hiroshi Oita (OPMAC Corporation)
Field Study: October 2012
Project Name: Indonesia “National Geo-Spatial Data Infrastructure Development Project” (L/A No. IP-544)[Project Description]
Loan Amount / Disbursed Amount
Loan Agreement Signing Date
Original Date of Project Completion
Project Completion Date after review
Loan Expiry Date
Executing Agency: 6,373 Million Japanese Yen / 2,852 Million Japanese Yen (as of 31July 2012): March 2007
: June 2014
: June 2015
: July 2017
: The National Coordinating Agency for Survey and Mapping (BAKOSURTANAL) (The name of the organization
has been changed to Badan Informasi Geospasial (BIG))
Operation and Maintenance Organization : (1) BIG for the Geo-spatial data of Sumatra(2) BIG and relevant organizations (Ministries of Agriculture, Marine Affairs and Fisheries, Forestry, Public
Works, Energy and Mineral Resources, and Environment; Central Statistics Agency, National Land Agency,
Province of DKI Jakarta, Province of West Java) for the network system development(3) National Development Planning Agency (BAPPENAS) for supporting regional planning[Project Objectives]
The objectives of the Project are to achieve good governance of central as well as local governments, efficient administrative works and evasion of duplicatedinvestments and works in the production of geo-spatial data through (1) acquisition and production of geo-spatial data of Sumatra island, (2)development of
National Geo-Spatial data Infrastructure (NSDI) networking system and (3) utilization of NSDI to support Regional Development Planning for provincial
governments, thereby contributing to the appropriate management of natural resources, protection of environment and mitigation of natural hazard, andultimately contributing to overall economic development of Indonesia.
Consultant
Contractor1
1: Yachiyo Engineering Co., Ltd. (Japan)/ Aero Asahi Corp.(Japan)/ PT LAPI ITB (Indonesia) (JV), Oriental Consultants Co., Ltd.
(Japan)/ PT Demensi Ronakon (Indonesia) (JV): PASCO CORPORATION (Japan)/ ITOCHU Corporation (Japan) (JV), NTT DATA Corporation (Japan)

The names and nationalities of consultants and contractors are entered only when they have been made public in JICA’s annual statistical report, “List of Names of Major Companies

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Item
Relevance

Mid-Term Review results and Ex-Post Evaluation results
estimated at the time of Mid-Term Review (2012)

Ex-Ante Evaluation (2006)(1) Relevance to development policy
1) In the National Medium Term Development Plan (RPJM: 20042009) the Government of Indonesia indicated to utilize
Geo-spatial data.
2) Law No.24/1992 stipulates that geo-spatial data must be used forregional development.
3) Law No.10/2000 stipulates the scale for regional development;
Scale 1:50,000 or more for municipalities, 1:100,000 or more for
Kabpaten.
4) Law No.32/2004 stipulates that regional development planningmust be based on maps with the scale in accordance with thedecentralization law.

(1) Relevance to development policy· After the signing of the Loan Agreement (hereinafter “L/A”),
Presidential Regulation No.85/2007 was issued in August, 2007.
This stipulated the sharing of geo-spatial data by a national
network among government agencies and local governments.
· With regard to geo-spatial data, Law No.4/2011 dated April 2011
stipulated the use of a unified basic map as a framework for thenation together with the sharing of the same at the time ofsurveying.
· Presidential Regulation No.94/2011 dated December 2011
recognized the National Coordination Agency for Survey and
Mapping (hereinafter “BIG”) as the only agency for the provisionof basic maps and as the coordinating agency regarding
geo-spatial data.
· In addition, Presidential Regulation No.6/2012 dated May 2012
stipulated that BIG should cooperate with the National Institute of
Aeronautics and Space for providing the Ortho-rectified High
Resolution Satellite Imagery.
Thus, the status of BIG has strengthened in tandem with theimplementation of the Project and the importance of the role of BIG
has been recognized. The development above shows the importanceof the Project as well as that of the government stance which utilizes
geo-spatial data as a policy measure. Therefore the Project is well inaccordance with the development policy of Indonesia.

and their Contract Amount of Japanese ODA Loan” (these are names for which the contract amount is not less than 1 billion Japanese Yen for contractors and not less than 100 million
Japanese Yen for consultants were entered). Where the names have not been entered in JICA’s annual statistical report, they are described only as “local contractors/consultants” or“Japanese contractors/consultants”. These names can be provided by JICA.

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Mid-Term Review results and Ex-Post Evaluation results
estimated at the time of Mid-Term Review (2012)

Ex-Ante Evaluation (2006)(2) Relevance to development needs
1) The basic data for the 10,000:1 to 50,000:1 scale maps whichcontain basic spatial data including inhabitation, traffic,
vegetation, rivers, contour lines, administrative boundaries,
geographical names, etc. (“Geo-spatial data”) of Sumatra, Papua,
Maluku and other regions is not complete.
2) Sumatra in particular is growing at an especially rapid pace andthere is an urgent need for the compilation of basic map data
which is absolutely essential for appropriate regional
development to proceed.
3) In the past, failure to utilize Geo-spatial data when undertaking
regional development and failure to coordinate development
between sectors and regions has resulted in a deterioration of theenvironment and the inappropriate use of natural
resources.(RPJM:2004-2009)
4) A number of government and research institutions haveindividually produced and maintained map data which has
superimposed spatial information from various industries andresearch fields onto the basic map data (“thematic map data”). To
avoid duplication in investment of work and money, thedevelopment of a network system that enables the sharing of basic
map data and thematic map data (“national geo- spatial data”) is
becoming a pressing issue.

3(2) Relevance to development needs· Through discussions regarding the Project between BIG and therelated agencies, communication between BIG and the related
agencies has been strengthened. BIG exchanged memorandum of
understanding concerning the areas of cooperation with theCentral Statistics Agency, the Ministry of Agriculture, theMinistry of Public Works, and so on. Based on the laws andregulations mentioned above BIG will act at the center of theagencies which share Geo-spatial data through connections to
National Spatial Data Infrastructure (hereinafter “NSDI system”).
It is expected that there will be an increase in the need forGeo-spatial data provided by BIG.
· Geo-spatial data is one form of basic data for a nation. For
Indonesia it is a continuing issue to revise the existing data and toprepare basic data for underdeveloped areas because Indonesia is alarge country with many islands.
· BAPPENAS considers that it is necessary to develop a social andeconomic database in a region before making a regional
development plan. Although Geo-spatial data is the basis for adevelopment plan, so far, ministries or agencies have not used acommon standard. BAPPENAS has high expectations that various
databases will be developed based on the unified basic map data.

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Effectiveness

Mid-Term Review results and Ex-Post Evaluation results
estimated at the time of Mid-Term Review (2012)

Ex-Ante Evaluation (2006)(1) Quantitative Effects
Operation and Effect Indicators

Indicator(1) Quantitative EffectOperation and Effect Indicators
BIG has no intention of changing the indicator set at the ex-anteevaluation.
Baseline(2006)

Target (2016)
2 years after
completion of the
Project

The number of request to the
Geo-spatial data of Sumatra Island,
N.A.
2,000
which is created under the Project
The number of newly registered meta
5,000 records
20,000 records
data* in NSDI Networking System
Note: * Metadata: text data which describes attribute information pertaining tonational geo-spatial data (target areas, scale size, creator, date created, etc.) andwhich is utilized when searching for national geo-spatial data.

(2) Qualitative Effects
1) To carry out administrative works efficiently and to upgrade themby using geo-spatial data
2) To avoid duplication in investments and works by sharing
geo-spatial data
3) To make a national mid-term development plan and a regional
development plan by using geo-spatial data
4) To make a contribution to the management of natural resources,
the conservation of environment, the prevention of disasters, etc.
5) To improve the various public services of government authorities
and local governments
6) To vitalize economic activities through a policy to stimulate
private investments

4

Indicator
The number of request to the
Geo-spatial data of Sumatra Island,
which is created under the Project
The number of newly registered metadata* in NSDI Networking System

Baseline(2006)

Target (2017)
2 years after
completion of
the Project

N.A.

2,000

5,000
(estimate)

20,000Acquisition of raw data for the production of the basic map wascompleted. Development of basic map data was on-going at the timeof the mid-term review.
(2) Qualitative Effects
It is expected that the qualitative effects mentioned left will beachieved by widely utilizing Geo-spatial data produced by BIG.
Consultation between BIG and the 10 participating ministries andagencies regarding the introduction of NSDI system has just started.
Cooperation between BIG and those parties will be strengthened
through discussions about the concrete operation system and data
sharing method.
BIG, together with central ministries and local governments will
initiate workshops for the improvement of public services throughthe utilization of Geo-spatial data.

Item

Mid-Term Review results and Ex-Post Evaluation results
estimated at the time of Mid-Term Review (2012)

Ex-Ante Evaluation (2006)(3) Impact(3) Impact
Impact on 1) and 2) of (2) above, including the possibility ofAt present, to increase the utilization of Geo-spatial data throughsetting indicators, will be studied through the consulting service of an increase in connections with NSDI system and succeeding policy
the Project using case studies.
measures, based on the correct assessment of a current situation, will
be counted as an impact of the Project.
There is no plan to conduct surveys by consultants of the Projecton the impact of the Project due to budget cuts.
(4) Other items influencing effectiveness1) Project implementation structure, technical and financial aspectsof the Executing Agency
A project office will be set up under the supervision of BIG inorder to implement and manage the project. Special Assistance for
Project Implementation (SAPI) will be arranged, taking into accountthe fact that BIG does not have any experience in receiving Japanese
ODA loan.

(4) Other items influencing effectiveness1) Project implementation structure, technical and financial aspectsof the Executing Agency
The present implementing structure in BIG has not changed since
the ex-ante evaluation. SAPI has not yet been carried out by JICA.
All the contracts corresponding to each component under theJapanese ODA loan have been concluded and are smoothly under
implementation.

2) Cooperation with NGO, universities etc.
2) Cooperation with NGO, universities etc.
University staff in the target region with training will be provided. · Bandung Institute of Technology (ITB) has a GIS course andmany staff members in BIG are from ITB. BIG has concluded
agreements with the regional core universities including Gadjah
Mada University (Yogyakarta), Syiah Kuala University (Aceh),
Padang State University (Sumatra), Sepuluh Nopember Institute ofTechnology (Surabaya), Mulawarman University (East
Kalimantan) and ITB for cooperation on technical and personnel
aspects. In the future, it is expected that NSDI system will connect
with these universities.
· With regard to the regional development plan, BAPPENAS has
gained knowledge from Prof. Taslim of ITB.

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Item

Mid-Term Review results and Ex-Post Evaluation results
estimated at the time of Mid-Term Review (2012)

Ex-Ante Evaluation (2006)

3) Cooperation with Japanese grant aid and/or technical cooperation 3) Cooperation with Japanese grant aid and/or technical cooperation
Cooperation with JICA’s technical cooperation and cooperation
Nothing to mention.
with other ongoing and new projects for disaster prevention will betaken into account.
4) Cooperation with other donors
Nothing to mention.

4) Cooperation with other donors
Nothing to mention.

5) Effect on the natural environment5) Effect on the natural environment
Category C in accordance with JBIC Guidelines for Confirmation
Nothing to mention.
of Environment and Social Considerations. (2003)
6) Land acquisition and resettlement
Nothing to mention.

6) Land acquisition and resettlement
There was no land acquisition at the Project site. The expansion of
the GIS data center is as a part of the existing building within BIG.

7) Operation and maintenance structure and the technical andfinancial aspects of the executing agency
BIG will manage and maintain the basic data for Sumatra.
BIG and 10 participating organizations will operate and maintainthe network system.
Each province for which a development plan is made using thedata is responsible for the operation and maintenance of such data.

7) Operation and maintenance structure and the technical andfinancial aspects of the executing agency
BIG is responsible for the operation and maintenance ofGeo-spatial data. There will be a need to increase the number of
personnel from an operational point of view. On the technical side,
BIG’s staff members have sufficient experience, and BIG areexperiencing no difficulties. In the future, it will be necessary to
renew data and equipment and to buy new software. Such additionalcosts will be covered by the Government budget.
After the completion of NSDI system, the number of participating
agencies, local governments, universities, etc. which connects withthe system will increase. Discussion will take place about theequipment to be procured for the connection and about cost sharing.

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Item
Efficiency

Mid-Term Review results and Ex-Post Evaluation results
estimated at the time of Mid-Term Review (2012)

Ex-Ante Evaluation (2006)(1) Project Outputs
1) Acquisition and production of spatial data
Mapping in Sumatra Island:a) 411,000 km2 : scale 1: 50,000(1) Project Outputs
1) Acquisition and production of spatial data
Mapping in Sumatra Island:a) 303,439km2 : scale 1:50,000
The reason for the decrease in the target area was that the target
area at the ex-ante evaluation was based on the original ex-anteevaluation. The actual area had to be reduced because the loan
amount was greatly reduced from the estimated amount at the time ofthe original ex-ante evaluation.
The areas excluded from the original scope were the provinces ofAche, Lampung, and a part of Riau and Jambi. These excluded areas
are covered by maps which were previously made by the scale
1:50,000 map.

b) 2,250 km2 : scale 1: 10,000 (Seven cities: Bandar Lampung,Bengkulu, Jambi, Medan, Padang, Pangkalpinang, Pekanbaru)b) 2,252km2 : scale 1:10,000
The target cities were (1) Medan, (2) Pekanbaru, (3) Padang and(4) Jambi. The remaining 3 cities were out of scope because of thesame budgetary reason as mentioned above. The reason why thetarget areas were almost same as the original ones is that the cityboundaries have become wider than those at the time of planning2) -a) Development of NSDI networking system2) -a) Development of NSDI networking system· To construct a data sharing system between BIG and 10 · NSDI networking system is under development. Coordination forparticipating institutions
connection between BIG and the 10 participating institutions is· To strengthen the existing GIS data center at BIG, including theon-going.
back-up system· Since the status of BIG has risen according to Presidential· To organize training and to conduct capacity building for officers
Regulations, the number and size of data processing is expected toin BIG and the 10 institutions
increase. In addition, because of the necessity to expand the GIS
data center, additional contracts to increase servers are under thereview of JICA for concurrence.

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Item

Mid-Term Review results and Ex-Post Evaluation results
estimated at the time of Mid-Term Review (2012)

Ex-Ante Evaluation (2006)· With regard to the back-up systems of GIS data center for
Disasters Recovery (DRC), a proposed site is to be selected. The
site must be more than 60 km away from BIG.
· Training for BIG and the 10 participating entities will be carriedout according to the progress of installation of equipment.
2) -b) Support for regional development planningTo establish a spatial data base unit in BAPPENAS

2) -b) Support for regional development planningThis component has not been implemented because the budget wascut. The data base unit in BAPPENAS was set up using a part of theequipment used under the Consulting service (II) of the Project.

3) -a) Consulting service (I)· Detailed design of1) and 2)-a) above· Tendering assistance of 1) and 2) –a) and 2)-b)above· Supervision for 1) and 2)-a), 2)-b)above and 3)-b)3) -a) Consulting service (I)Detailed design and tendering assistance were completed.
Supervision work is on-going.

3) -b) Consulting service (II)3) -b) Consulting service (II)· Development of National Technique Guidance· Consultants have established the data base necessary for the· Development of a regional development scenario, a strategic
making of a regional development plan by BAPPENAS, thescenario and an investment plan for one major island in Indonesia
development scenario, Technical Guidance necessary for regional· To organize training and workshops for local government officers
development, and Spatial Dynamic Modeling which predicts theand university staff members in the region
spillover effects of infrastructure investment on the economy byusing a computer simulation model. The Technical Guidance will
be used as a guide for the preparation of regional development in
BAPPENAS.
· Because of a large cut in budget, the target islands where training
for regional development plans by Spatial Dynamic Modeling was
to be conducted were reduced from the original 5 to justKalimantan and Sulawesi islands.
· A workshop for development modeling was carried out in Jakarta.

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Item

Mid-Term Review results and Ex-Post Evaluation results
estimated at the time of Mid-Term Review (2012)

Ex-Ante Evaluation (2006)

The consulting services (II) were concluded in July 2011.
(2) Project Inputs
1) Project Cost (Million yen)
Item
Data acquisition
Data production
NSDI networking system
Price escalation
Physical contingency
Consulting services
General administration
Tax
Total

(2) Project Inputs
1) Project Cost (Million yen)
Total cost
1,612
968
2,282
600
273
638
510
637
7,520

Japanese ODA Loan
1,612
968
2,282
600
273
638
0
0
6,373

Item
Data acquisition
Data production
NSDI networking system
Price escalation
Physical contingency
Consulting services

Total cost
1,612
968
2,282
600
273
638

Japanese ODA
Loan
1,612
968
2,282
600
273
638

Actual
2,225

1,968
―
―
CS-(I) 363
CS-(II) 186
General administration
510
0
―
Tax
637
0
―
Total
7,520
6,373
4,742
(“Actual” shows the Japanese ODA loan portion only as of August 31, 2012
based on the JICA procurement monitoring sheet. The additional contract for
NSDI system is not included here.)

So far the Project has been implemented within the estimate foreach item. Even including the additional contract for the expansionof the GIS data center, the total cost is covered within the Japanese
ODA loan amount.
2) Implementation Schedulea) Selection of consultants
Consultant (I): Detailed design, Tendering Assistance, Supervisionof implementation
From March 2007 to May 2008

2) Implementation Schedulea) Selection of consultants
From March 2007 to November 2007

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Item

Mid-Term Review results and Ex-Post Evaluation results
estimated at the time of Mid-Term Review (2012)

Ex-Ante Evaluation (2006)

Consultant (II): Support services necessary for the making of aregional development plan by BAPPENAS,
Elaboration of a regional development model
From March 2007 to March 2010
· From March 2007 to April 2008:
Delay was caused by an incident in which the original
consulting firm was involved with subsequent legal action in
Japan. The consulting firm declined the contract andre-bidding took place.
· From August 2008 to March 2010:
Since the highest evaluated proposal could not meet technicaldemands, re-re-bidding was called.
Consultants (I) and (II) were originally scheduled to procure at thesame time. However, as a result of the delay, consultant (II) was
procured 3 years and 4 months behind the original schedule which
had been set at the time of the ex-ante evaluation.

b) Consulting servicesb) Consulting services
From December 2007 to June 2013
Consultant (I): From June 2008 to January 2014 (schedule)
With regard to Consultant (II): From August 2008 to December
Since the consulting services started late, their completion will be2009late also depending on the progress of the development of geo-spatial
data.
Consultant (II): From April 2010 to July 2011 (completed)
Consultant (I) started with a 6 months delay from the originalschedule and completion will be delayed by 7 months from theJanuary 2013 date of the ex-ante evaluation. Consultant (II)

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Item

Mid-Term Review results and Ex-Post Evaluation results
estimated at the time of Mid-Term Review (2012)

Ex-Ante Evaluation (2006)

completed its services with a one year and 7 months delay comparedto the original schedule.
c) Bidding and contract
From June 2007 to June 2009c) Bidding and contract· Acquisition of Geo-spatial data:
From January 2009 to December 2010
3 (Three) firms participated in the pre-qualification (hereinafter“PQ”) but only 1 (one) firm passed PQ. Re-PQ was required andthis caused delay.
· Development of NSDI system:
From February 2009 to December 2010
3 (Three) firms participated in PQ but only 2 (two) firms passed
PQ. Re-PQ was required and this cause delay.
The ex-ante evaluation estimated that the contract would beconcluded in June 2009. There was a delay of one year and 6
months.

d) Data acquisition
From August 2009 to July 2011d) Data acquisition
From April 2011 to December 2012 (schedule)
It is indispensable that data is acquired by airplane for the
production of the 1:50,000 map. It took a long time for officials in
the relevant agencies in Indonesia to understand the need for the useof a foreign airplane with a foreign pilot. Because of this, there was a
6 (Six) months delay in obtaining flight permission. There was afurther 3 (Three) months delay in obtaining flight permission because
the original permission was applicable to each province only and did
not cover the borders between provinces.
At the time of the ex-ante evaluation data acquisition would becomplete in July 2011. There will be a one year and 5 months delay

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Mid-Term Review results and Ex-Post Evaluation results
estimated at the time of Mid-Term Review (2012)

Ex-Ante Evaluation (2006)

from the original schedule for the completion of data acquisition at
this moment.
e) Data production
From January 2010 to December 2012e) Data production
From October 2011 to June 2014 (schedule)
The 9 months delay in the acquisition using Airborne IFSAR
technology for the development of basic map affected data
production. The acquired data has been validated in the field. Inorder to catch up with the original schedule, the contractor has
increased the number of operators.
At the time of the ex-ante evaluation, data production was to becomplete in December 2012. There will be a one year and 6 months
delay compared to the original schedule.

f) NSDI networking system
From August 2009 to June 2013f) NSDI networking system
From January 2011 to February 2014 (schedule)
Since the expansion of the GIS data center was ordered as anadditional contract, the completion of NSDI networking system will
be extended by 9 months from the original date of June 2013 which
was scheduled at the ex-ante evaluationg) Guarantee period
From July 2013 to June 2014g) Guarantee period
From February 2014 to February 2015 (schedule)(Maintenance period will be up to May 2015)(3) Internal Rate of Return(3) Internal Rate of Return
Quantitative analysis of the Internal Rate of Return is difficult as
Because of difficulties in quantitative analysis, IRR has not been
this project is aimed at contributing to the formulation of plans for calculated.
development projects rather than at the generation of direct benefits.

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Item

Mid-Term Review results and Ex-Post Evaluation results
estimated at the time of Mid-Term Review (2012)

Ex-Ante Evaluation (2006)

Recommendations to the JICA operation(1) Understanding of the Procurement Guidelines of JICA
The Indonesian executing agency lacks an understanding of the procurement rules stipulated in the Loan Agreement (L/A) which shall
Recommendations
take precedence over the national procurement rules, if any procurement rule in Indonesia is in conflict with the provision of L/A. Under theIndonesian procurement rules, if there are not more than 3 entities who passed the prequalification (PQ), PQ should be re-executed. Under
JICA’s Guidelines for Procurement under Japanese ODA Loans even if one entity should pass PQ, such an entity is regarded as qualified
through competition. Such executing agencies as have received several Japanese ODA loans have no problem with the procurement
procedures with JICA. Therefore JICA should confirm the contents and method of procurement with the executing agency before it starts
procurement. In addition, JICA should give some tips on understanding its procurement guidelines and procedures to any executing agency
like BIG who is receiving its first Japanese ODA loan.
Lessons
learned and(2) Procurement Appraisal
With regard to geo-spatial business, the number of firms who participate in the market is very limited. Under such circumstances there isa need for verification of whether or not it is necessary to conduct PQ. JICA should study in advance the procurement method andinternational business and market conditions, taking into account consistency between the requirements of the STEP loan, such as ratio ofJapanese origin of goods and services to be procured, and the needs of the executing agency who wants to use the common equipment andsoftware used so far and who wants to receive technical transfer from Japanese firms. Otherwise, a project will be delayed at the
procurement stage of PQ or at bidding due to unexpected coordination. In the process of project formation, not only for STEP loans but also
for other Japanese ODA loan projects, procurement issues may have not been sufficiently discussed between JICA and executing agencies.
Therefore it is necessary for JICA to make an appraisal specifically for the procurement aspect on a case by case basis.
(3) What a STEP loan should be
A STEP loan is provided selectively on a tide basis taking into consideration the advantages of the technical aspects, high quality etc. ofJapanese firms which are highly appreciated in the world market. In the case of system design, such as in this Project, which has great
promise in future, JICA’s cooperation through a STEP loan should not be transient but should include a follow-up stage after the completionof the Project. The Project covers the development of NSDI system only, but at the operation stage the system will form a large network,
including not only central government agencies but also local governments and universities. In the case of projects to be assisted by STEP
loan which have the possibility of greater impact in future, JICA’s cooperation should be not only to support the basic system or the
production base but also to maintain cooperative relations, including technical support, with the agencies relevant to the projects. Throughthis kind of continuous support the reliability of Japanese technology and equipment can be expected to be further strengthened.

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Mid-Term Review results and Ex-Post Evaluation results
estimated at the time of Mid-Term Review (2012)

Item

Ex-Ante Evaluation (2006)

Indicators for
the Ex-post
Evaluation

Indicators assumed at the Ex-ante Evaluation(1) The number of request to the Geo-spatial data of Sumatra Island,
which is created under the Project(2) The number of newly registered meta data in NSDI Networking
SystemThe following can be added as an indicator.
(3) The number of entities to be connected to NSDI system
From the point of view of the effective use of NSDI system, it isexpected that many entities will connect to the system. The
Presidential Regulation No.85 will enhance the dependence of BIG
data in future.
Indicator
Baseline (2006)
Target (2014)
No. of entities to be connected to
010
NSDI system
Note: The system is subject to operation in June 2014. The 10 entities in the“Target” mean the original participating entities.

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