IJERD – International Journal of Environmental and Rural Development (2018) 9-1

Research article
erd

Local Government Support for the Development of Nutmeg
Industry in Fakfak Regency, West Papua, Indonesia
RISKINA JUWITA*
Graduate School of Agriculture, Tokyo University of Agriculture, Tokyo, Japan
Email: 46716001@nodai.ac.jp

SHIRO TSUCHIDA
Faculty of International Agriculture and Food Studies, Tokyo University of Agriculture, JapanS JONI MUNARSO
Indonesian Center for Agricultural Postharvest Research and Development, Bogor, Indonesia
Received 4 January 2018

Accepted 5 May 2018(*Corresponding Author)

Abstract This study aims to evaluate the impact of the local government support in farmers’level and to analyze the potential of rural development through the improvement of nutmeg
production system in Fakfak Regency. The results can be concluded as follows: (1) Nutmeg
industry in Fakfak Regency has been developed intensively by the support of local
government; (2) The nutmeg industry is deeply connected with traditional culture.
Meanwhile, the recent development efforts including local government support seem tomeet many obstacles when confronted with tradition; (3) However, there are farmers who
showed positive attitudes towards development, especially those who realize the importanceof sustaining production for their future generations; (4) Farmers will be highly motivatedto improve their skills and production when they can personally prove that their efforts candirectly lead to the increase of their family income.
Keywords nutmeg production, local government, local culture, rural development

INTRODUCTION
Papuan nutmeg (Myristica argentea Warb) is one of nutmeg varieties indigenous to Fakfak
Regency (Musaad et al., 2016) and has been traditionally grown in the wild forests by theindigenous people of Fakfak (INOBU, 2017). Development of nutmeg cultivation in Fakfak
Regency has been carried throughout generations. With a total cultivated area of 16,733 hectares(UNIPA, 2013), nutmeg is a major commodity of Fakfak Regency and plays a key role to the local
economy as an important source of income.
On the other hand, nutmeg industry in Fakfak Regency faces two major problems, namely low
productivity and low-quality products. Low productivity occurred due to inappropriate
management practices in cultivated lands. In farmers’ level, nutmegs are planted naturally in highdensity, narrow planting spaces (about 3x3m) and random distribution of male-female ratio, while
the ideal planting space is 10x10m (Gardner et. al., 1991; Deptan, 1986) and recommended
composition of male-female ratio is 1:10 (Hadad and Syakir, 1992). It has been identified that thecurrent planting condition may have caused the low productivity and emergence of disease
infection (Musaad et al., 2016). Meanwhile, low-quality products were caused by lack of awarenessduring harvesting, processing and distribution, such as early-harvest, incomplete drying process
and high-humidity storage. To solve these problems and enhance the development of nutmeg
industry in Fakfak Regency, the local government has been conducting support programs since2011. However, the impact of the support programs and the actual condition of nutmeg production
in farmers’ level are still unclarified.
OBJECTIVESⒸ ISERD

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This study aims to evaluate the impact of the local government support in farmers’ level and toanalyze the potential of rural development through the improvement of nutmeg production system
in Fakfak Regency.
METHODOLOGY
Data Collection and Selection
This study is conducted through interview and questionnaire surveys of nutmeg farmers andgovernment officials in Fakfak Regency, West Papua Province, Indonesia. The first interview
survey of the government officials of Regional Estates Crops Office of Fakfak Regency (therepresentative of the local government) was carried out in October 2016. Through the assistance of
this office, a total of 39 nutmeg farmers from 10 districts were selected using conveniencesampling method due to distance and time constraints during data collection. The 39 respondents
were interviewed to clarify the characteristics of nutmeg industry in the regency and to identify theform of local government support in farmers’ level. In order to evaluate the impact of the current
local government support, the second survey was carried out in September 2017 through structured
questionnaires and in-depth interviews with 9 farmers who showed important characteristics interms of production and sales among the 39 nutmeg farmers.
Data Analysis
Based on primary data of 39 farmers, the average values and component ratios were calculated toclarify the general condition and the characteristics of nutmeg industry in Fakfak Regency (i.e.
cultivating areas, cropping and harvesting patterns, and yield). Cost and profit analysis was
conducted to estimate the economic values of nutmeg industry in farmers’ level. Moreover,questionnaire was also structured using Likert Scale scoring method to grasp quantitative values on
farmers’ evaluation of the local government support. Lastly, through the case study of selected
farmers, descriptive analysis was used to describe the actual condition of nutmeg production andsales in farmers’ level.
RESULTS AND DISCUSSION
Characteristics of Nutmeg Industry in Fakfak Regency
Nutmeg production is distributed widely in 14 districts out of the 17 districts across Fakfak
Regency and has been an indispensable part of Fakfak society (Disbun Fakfak, 2017). Based on thelocal culture, lands and nutmeg trees are inherited by the family members. The ownership of lands
is divided equally among the male members of the family. However, the female members also havethe rights to collect nutmeg fruits during harvest seasons.
Nutmeg cultivations spread from seacoast to semi-mountainous and mountainous areas atlatitude between 0 and 700 meters above sea level with different patterns and productivity (Musaad
et al., 2016). Survey of 39 farmers revealed seven (7) main results, namely (1) Generally, farmers
in Fakfak Regency own lands in 3 different areas with an average cultivated area of 4.8 hectares
per farmer; (2) Nutmeg fruits in Fakfak Regency can be harvested twice a year. The first harvest
season called as “The Big Harvest” usually starts from around October to February. Meanwhile, thesecond harvest usually starts around April to June with the quantity of nearly half of the firstseason; (3) Farmers usually start the harvest from lands in seacoast area and continue up to themountain area; (4) On the average, nutmeg farmers can produce around 30,000 fruits per hectareduring “The Big Harvest”; (5) Nutmeg fruits in Fakfak Regency are processed into nutmeg spices.
Farmers usually count harvested fruits while separating seeds and mace to be used for nutmeg
spices and leave out flesh on the ground as natural fertilizer for the trees; (6) Nutmeg seeds andⒸ ISERD

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mace will be dried separately before sold to the buyers; (7) Depends on the cultivation areas,
weight of dried seeds and dried mace per 1,000 fruits vary from 8-15 kg and 1-1.5 kg, respectively.
Local Government Support for Nutmeg Industry
Indonesian central government under the 5-Year Strategic Plan of Ministry of Agriculture 20152019 aimed to realize sustainable agriculture and bioindustry system that produces varieties ofhealthy foods and high added value products from regional resources (Secretariat General ofIndonesian Ministry of Agriculture, 2014). Through the support of this strategic plan, the local
government has been conducting the various support programs based on two main objectives,
namely, to preserve the sustainability of the Papuan nutmeg and to increase their local production.
In relation to the former objective, the local government conducted three programs, such as
Certification of Geographic Indication Commodity for Papuan nutmeg, Issuance of the Local
Regulation, and Distribution of Papuan nutmeg varieties. On the other hand, in relation to the latter
objective, farm rehabilitation and extensification of nutmeg cultivating lands have been intensively
conducted with the assistance of Regional Estate Crops Office of Fakfak Regency. Specifically,
these support programs can be categorized into three different stages: cultivation, processing, andsales.
In the cultivation stage, farm rehabilitation and extensification are the main programs. Local
government started the programs by spreading information through radio broadcasting. Then, local
extension workers from Regional Estate Crops Office will do on-site counseling and training byconducting one-day seminar and making sample plot in selected villages. Due to budget limitation,
on-site activities are conducted in 10-13 selected villages annually. Leaders of the selected villages
will propose several farmers as participants of the programs. Selected farmers will receive supportof seedlings and fertilizer to be used in their own lands. Pesticides were also distributed to farmers
whose lands have been infected by diseases. In the farm rehabilitation, farmers are encouraged toreduce numbers of trees, replace old trees with young seedlings, and clean up their cultivated lands.
Meanwhile, in the extensification program farmers are obligated to implement proper cultivation
method in newly opened lands.
In the processing stage, the local government put efforts to preserve the quality of nutmeg
spices. As nutmeg spices from Fakfak Regency are mostly exported to international market, priceof nutmeg spices highly depends on its quality. Recently, the local government has set the quality
standard of Fakfak’s nutmeg spices, which mainly includes appropriate harvesting period anddrying method, determination of moisture content, and grading classification for nutmeg seeds andmace. Under the supervision of Industrial and Trade Office of Fakfak Regency, wholesaler
companies are required to undergo quality control before shipping nutmeg spices.
In the sales stage, through the Certification of Geographic Indication Commodity program
managed by the central government, the local government has been working to certify nutmegs
produce in Fakfak Regency. During the certification, 300 farmers were randomly selected to checkthe whole production processes, from seedlings selection to cultivation, harvest, and processing
methods. Through these processes, the local government was able to clarify and legally issue theLocal Regulation (PERDA) regarding the quality standard of their nutmeg products.
Implementation of Local Government Support in Farmers’ Level
To analyze the implementation of the support programs in farmers’ level, the second survey was
conducted through structured questionnaires and in-depth interviews with 9 farmers from 2
different areas. Selected farmers were asked to evaluate their own condition in each stage using
specified scoring methods. Table 1 shows results of farmers’ evaluation towards their personal
condition.
Farmers in central Fakfak own 9.8 hectares of cultivated areas which are 5 times bigger thanin eastern Fakfak (1.8 hectares). The interview also confirmed that farmers in central Fakfak
generally have cultivated lands in three different areas, seacoast, semi-mountainous, andmountainous areas. Meanwhile, farmers in eastern Fakfak mostly own lands in seacoast area only.
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Table 1 Farmers’s evaluation towards personal condition
Nutmeg cultivation areas
Average distances from city center (km)Number of surveyed farmers (persons)Average cultivated land areas (ha)Average harvested land areas (ha)Personal evaluation on nutmeg cultivation
Satisfaction towards own cultivation 1)
Percentage of nutmeg trees infected by diseases2)

Knowledge and skills of nutmeg cultivation method 3)
a. Adjusting planting spaces
b. Adjusting distribution of male/female ratioc. Preventing disease infection
Personal evaluation on nutmeg harvesting
Importance during harvesting process (%) 4)
Time effectivenessQuality of harvested fruits
Personal evaluation on nutmeg processing
Knowledge and skills of nutmeg spices processing method 3) 5)
Knowledge and skills of nutmeg flesh processing method 3)
Personal evaluation on nutmeg sales
Satisfaction towards own sales condition 1) 6)

Central Fakfak
12
4
9.8
3.0

Eastern Fakfak
40
5
1.8
1.4

3.5

4.6

1.8

1.0

2.0
2.0
1.0

1.2
0.8
1.6

25
75

100
0

2.0

1.2

1.8

1.6

2.0

1.9

Source: Author's calculation based on survey data in 2016 and 2017.
1) Questions were answered using 5-level scoring system (1-very bad, 2-bad, 3-average, 4-good, 5-very good).
2) Question was answered using 5-level scoring system (1-0%, 2-25%, 3-50%, 4-75%, 5-100%).
3) Questions were answered using 3-level scoring system (0-not understand, 1-understood, 2-understood & implemented).
4) Numbers showed are percentage of respondents.
5) Knowledge and skills about nutmeg spices processing method consist of the following items: a) Conducting postharvest treatment, b) Drying processes of nutmeg seeds, c) Drying processes of nutmeg mace, d) Separating seeds skin,and e) Classifying grade of nutmeg spices. Respondents were asked to answer each item using 3-level scoring system,and numbers showed are the average score of all items from all respondents.
6) Satisfaction towards own sales condition consists of satisfaction towards the following items: a) Sales quantity, b)
Current price, and c) Current buyers. Respondents were asked to answer each item using 5-level scoring system, andnumbers showed are the average score of all items from all respondents.

In the cultivation stage, farmers in central Fakfak felt less satisfied on their own cultivation(3.5/5.0 points). This is because some of them realized that they spent less time to manage theirlands, especially in mountainous areas. It is also confirmed that there has been disease infection
found in central Fakfak (around 25%), while there is none in eastern Fakfak (0%). However, theinterview revealed that farmers in central Fakfak have not received any support on disease
infection. Although some farmers have personally tried to prevent further infection by burning
infected trees, collective actions are necessary before diseases infections spread to other areas.
Moreover, to evaluate farmers’ understanding and awareness in proper cultivation method,
farmers were asked whether they know and apply ideal spacing and male-female ratio in planting
nutmeg trees. The survey clarified that farmers in Fakfak Regency face difficult barriers inapplying the proper method. There are beliefs in society that cutting nutmeg trees means cutting thehands of their ancestors since trees were inherited throughout generations, hence farmers havehesitated to apply the proper method when cutting trees is required. However, despite of thiscondition, the survey also showed that farmers in central Fakfak have understood and been trying
hard to implement the method in their lands (2.0 points). Although it is still difficult to cut old trees,
some farmers have felt that applying proper method (e.g. at least cleaning their lands) has increased
their production. The assistance of local extension worker who lives in same village also helpsⒸ ISERD

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farmers to get information. Despite of no formal program from the local government, farmers feltthat there is a person available for consulting their problems. Hence farmers’ awareness andmotivation increase when they fully understand the importance of conducting the proper method.
On the other hand, farmers in eastern Fakfak still have resistance to apply the proper method.
One of the reasons is because they have not actually seen the results of applying proper method in
nearby areas. Moreover, farmers refused to use seedlings distributed in the programs because they
could not trust and guarantee that those seedlings would properly bear fruit. They also did not use
the fertilizer and pesticide because they were afraid that trees would depend on those chemicalmaterials once it was given. Thus, it can be highlighted that besides dealing with traditional custom,
it is important for the local government to gain trust from farmers and provide proof of benefits ofthe programs.
In the processing stage, there are clear differences in both areas in relation to harvestingprocess. Seventy-five percent of farmers in central Fakfak pay attention to quality when harvesting
fruits, while 100% of eastern Fakfak farmers consider more on time efficiency. The survey also
confirmed that farmers in central Fakfak have properly applied processing method (2.0 points).
Although there is barely significant support on processing method from local government, farmers
in central Fakfak have closer access to the market and local government offices. Thus, once
information is received, farmers regularly share it with their fellow farmers during village gathering,which helped them to get updated to the current condition. Moreover, farmers in central and eastern
Fakfak mentioned that they have received training on nutmeg flesh processing method (1.8 and 1.6
points, respectively). In Fakfak Regency, farmers only use seeds and mace to produce nutmeg
spices. Every year there are about 2.4 million kilograms of nutmeg flesh being wasted and left tothe ground. To maximize the use of fresh fruits into more value-added products, the local
government has conducted training on nutmeg juice and syrup processing to housewives of nutmeg
farmers. However, interview revealed that producers still find it difficult to sell the processed
products to the market, hence some of them conduct order-based processing or only produced byorders and some were not really motivated to continue their productions.
On the other hand, all farmers gave same responses towards sales condition. Farmers were
unsatisfied with their current sales, including quantity, price, and buyers (2.0/5.0 and 1.9/5.0
points). Farmers had no bargaining power on sales and no access to information on where and how
their nutmeg spices were distributed once sold to buyers. Although the local government has
legally issued the Local Regulation for quality standard of nutmeg spices and conduct quality
control in wholesalers’ level, it seems that it has not been implemented in farmers’ level. Currently,
there is also no regulation for standard selling prices in local market.
Impact of Local Government Support in Farmers’ Level
To evaluate further the impact of local government support in farmers’ level, Table 2 shows theactual condition of nutmeg production of 4 farmers in central Fakfak. Farmers were asked to record
their production between October 2016 to September 2017 to calculate their actual cost and income.
Farmers O and P live in the same village. Farmer O was known for his hard work in managing
his land. Before formally participated in the farm rehabilitation program, he has been implementing
approximately 5x5m planting spaces in his own land. Aside from nutmeg cultivation, farmer O also
plants other crops such as taro and coconut trees. He learned that by giving enough spaces, plants
grow bigger and less diseases. Hence, with high motivation to sustain his nutmeg production, he
implemented the same method to his nutmegs and was able to maximize his production and reach
30,000 fruits per hectare regardless of relatively small cultivated area than other farmers in central
Fakfak. Meanwhile, farmer P started implementing proper method after receiving support programs.
The interview revealed that before implementing proper method, he barely cleaned his lands, hence
his production was rather small. Despite of owning 3 hectares of cultivated areas, his production
only reached around 20 to 30 thousand fruits per year. However, in 2016 he was able to produce
50,000 fruits. Thus, among all farmers, farmer P gave a very positive response to the support
programs. He stated that he was able to get more knowledge and improve his production throughthe programs and have felt the benefits of the programs himself.
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Table 2 Profile of selected farmers in Central Fakfak (Production Year 2016)
Nutmeg Farmers (age years old)O (41)P (47)Y (41)A (46)

Number of household members (persons)

5

5

6

7

Total areas of nutmeg cultivated lands (ha)

1

4

10

24

Targeted buyers of nutmeg products

Middlemen

Middlemen

Middlemen

Wholesaler

Selling price of fresh fruits (IDR/piece)

350

350

350

500

Selling price of dried seeds (IDR/kg) 1)

40,00045,00060,00065,000

Selling price of dried mace (IDR/kg)

110,000

110,000

108,000

Support programs received from local
government

Farm
rehabilitation

Extensification;
Farm
rehabilitation

Nutmeg fruits yield (pieces)

30,00050,00090,000
Selected highproducing
farmer;Extensification
164,850

Harvested land areas (ha)

1

3

5

Yield per hectare (pieces/ha)

390,000
12

30,00016,66732,97032,500Total sales (IDR/year)

13,350,000

24,000,000

91,491,750

240,630,000

Total production cost (IDR/year)

1,419,750

4,523,750

35,950,000

100,498,750

Hired labor cost (IDR/year)--

28,848,750

97,500,000

Firewood cost (IDR/year) 2)

960,000

3,360,000

5,120,000-

Tools and machinery (IDR/year)

333,750

883,750

1,901,250

2,868,750

Transportation cost (IDR/year)

126,000

240,000--

Taxes (IDR/year)-

40,00080,000130,000

Net profit (IDR/year)

11,930,250

19,476,250

55,541,750

140,131,250

Net profit per hectare (IDR/year)

11,930,250

6,492,083

11,108,350

11,677,604

Net profit per family member (IDR/year)
2,386,050
3,895,250
9,256,958
20,018,750
Source: Author's calculation based on survey data in 2016 and 2017.
1) Selling price of dried seeds shown on the table is price of SS grade dried seeds. SS grade is the classification of mixed
dried seeds with skin, the most common type of dried seeds sold in the local market.
2) Firewood cost was calculated from the time spent by farmers to gather firewood for drying nutmeg seeds. Firewood
cost for farmer A was included in hired labor cost.

Farmer Y was categorized as one of high producing farmers (a total yield of 164,850 fruits),
who reached more than an average yield of 30,000 fruits per hectare. Thus, during the certification
program he was selected as one of High-producing Farmers (i.e. farmers whose lands produce
good quality of nutmegs and chosen as seedlings resources) for his good production. Hence, thegovernment has issued instructions to use seedlings from high-producing farmers to be distributedin the support programs. However, interview revealed that before being chosen as high-producing
farmer, farmer Y has never actually received any program. He has been personally implementing
proper method (i.e. 5x5m planting spaces) by learning from experience and sharing knowledge
with other farmers who have participated in the program. Unlike other farmers who mostly conduct
all activities by family members, farmer Y hires laborers during harvest season to maximize his
production, while tries to manage lands on his own by conducting weekly cleaning with his family.
On the other hand, farmer Y seems to be unsatisfied with the program. He stated that regardless of
being selected as high-producing farmer, he cannot get higher price when selling his nutmeg
products. Thus, at this moment farmer Y has not personally felt any benefit of the program.
Farmer A was the only surveyed farmer who has not participated in any program. However,
he was one of the biggest land-owners in Fakfak Regency and his family was known as the early
generation of Fakfak’s nutmeg farmers. He owns 12 hectares of cultivated lands and currently is
expanding his cultivation by opening new lands in privately owned wild forest. Despite of notparticipating in any program, farmer A manages to conduct proper method by himself. His father
used to travel outside Fakfak Regency to learn about agriculture and try new method in his lands.
Thus, farmer A took after his father and continued implementing the methods. Because of theirⒸ ISERD

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hard work and high production, his family was able to connect with local wholesaler and gain trust
to regularly supply nutmeg spices to this buyer. Farmer A stated that he is satisfied with his current
production and sales, since he has been able to sell all his products in higher price than average. His
good relationship with the buyer also helps him to get the latest information of nutmegs’ market
regardless of no support from the local government.
Based on cost and profit calculation, it is clarified that farmers earn significant incomes fromnutmeg production. The bigger the lands are cultivated; the more incomes can be earned. For
farmer O and P, nutmeg production has become an important source of household income,
combined with incomes from other on-farm activities (i.e. vegetables, fruits, and livestock). As forfarmer Y, with his good production, he was able to earn stable incomes and reach the same level ofIndonesia’s middle-class households with incomes between IDR 36-120 million per year (Deloitte,2016). Moreover, with large cultivation areas, farmer A can be categorized as the high-income
farmer. Hence, by conducting proper methods, there is a high potential for nutmeg farmers inFakfak Regency especially those who have more than 5 hectares cultivating areas to earn as muchas incomes of the middle-class households in Indonesia.
CONCLUSION
This study has clarified that nutmeg industry in Fakfak Regency has been intensively developed by
the support of the local government. Although there are difficulties to instantly shift from a longstanding tradition to proper cultivation methods, there are farmers who showed positive attitude
towards development and willing to improve their productions. It has also been confirmed thataccess to information and proofs of the benefits are very important to increase farmers’
understanding and awareness to implement proper methods themselves. In the future, the following
actions are essential to enhance the development of nutmeg industry in Fakfak Regency. First, it isimportant for the local government to ensure farmers receive necessary information. Increasing
support through assistance of local extension worker and providing opportunities to exchange
knowledge with other farmers can be effective ways to provide information. Second, farmers will
be highly motivated to improve their production when they can personally prove that their efforts
in production can also benefit their sales. Not only in cultivation stage, through cooperation withother related offices, the local government should intensively expand their support to processing
and sales stages. Third, setting a legal sales regulation is highly necessary to ensure that properquality standard and fair price in sales activities are applied from farmers to wholesalers’ level.
Lastly, due to the small number of respondents in this study, it is necessary to broaden the scope of
this research and conduct further analysis. Comparison study with other areas where the local
government support has also been implemented should be conducted to analyze necessary
improvements on the current support programs.
ACKNOWLEDGEMENTS
The authors acknowledge The Japan Food Chemical Research Foundation and Doctoral Research
Funding Program from Tokyo University of Agriculture Research Institute (NRI) for financially
supporting this research. We also convey sincere gratitude to the director and staffs of Regional
Estates Crops Office of Fakfak Regency for their kind assistance during the surveys, i.e. Mr.
Abdulrahim Patamasya, Mrs. Irian Jati, and Mr. George Waruma.
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