Jakarta Coastal Development Strategy End-Of-Project Review Final ...

Jakarta Coastal Development Strategy
End-Of-Project Review
Final Mission Report
12 April 2012
Programme Water Mondiaal

Programme Partners voor Water
End-Of-Project review of the JCDS project Page 2/33
Table of Content
Acknowledgements
1 Introduction
2 The Mission’s Terms of Reference
3 Background
4 Approach and Methods
5 Findings and Assessment

• General
• Integration and Synchronisation
• Technical/Engineering
• Environment
• Social
• Institutions
6 Recommendations
Annexes
A. List of people/institutions visited
B. Mission Agenda
C. Minutes of Meetings
Acknowledgements
The End-Of-Project (EOP) Review report could not have been prepared without the
dedicated efforts of many officials and individuals, above all the various stakeholders in
Indonesia who provide the mission with a wealth of insights and experiences on the
flooding problem, urban water and sanitation issues in Jakarta.
The Mission merits a special appreciation to the Jakarta Coastal Defence Strategy project
team, who shared their knowledge and experiences with us. We are particular grateful to
the team leader whose expertise helped us to understand the problem, and for
introducing the team with the flood problems in the coastal area and organised a field
trip to visit the most critical parts of the Jakarta coast.
The Royal Netherlands Embassy in Jakarta provided the team with an excellent organised
mission agenda to allow us to visit and discuss the issues in a most effective and efficient
way.
Partners for Water/Agentschap NL officials who initiated and financed this mission were
very helpful in providing us the necessary information, preparatory and logistical support,
guidance during preparation and implementation of the review mission. We appreciate
the very open discussions we had during the introduction and preparatory phase of our
mission.
We are particularly indebted to the officials and individuals, both in the Netherlands and
Indonesia who have commented on the draft version of this report and provide us
additional input in order to develop, refine and finalise this report.
We hope that this report may form a sound basis for follow-up actions.
1 Introduction
1. A bilateral cooperation framework between the Government of Indonesia (GoI) and

the Government of the Netherlands (GoN) was agreed under the umbrella of
Partners for Water and is a valuable example for other countries coopering with the
Netherlands in the ‘Water Mondiaal’ and ‘Water OS’ programmes. A 4 Parties
Memorandum of Understanding (4PMoU) between Indonesian and Dutch ministries
was signed in 2007 specifying fields of collaboration within the water sector between
the two countries, among others flood management.
2. Within the bilateral cooperation framework a project digest was formulated in

November 2009 by the National Development Agency (Bappenas) with the following
components for collaboration:
a. A strategic plan providing realistic solutions for the future coastal defence of
Jakarta as a first step and serving as a pilot project;
b. Expand the pilot to a master plan for coastal management and protection,
covering the entire north coast of the island of Java.
3. From September 2010 to September 2011 the Jakarta Coastal Development Strategy
(JCDS) project was carried out. The formulation of the strategy of JCDS is based on
the so-called Triple-A concept. The results of the project are documented in three
reports, i.e. an Atlas, Agenda and Aturan-main (= Rules-of-the-game), consistent

with the Triple-A concept. The last version of the reports dated 30 September 2011.
4. The Atlas Report analyses the relevant facts, trends and underlying factors in a
comprehensive development context, as experienced by the stakeholders. The
Agenda Report describes the Strategic Direction that integrates technical
interventions and additional measures, which enhance the effectiveness, feasibility
and sustainability of the strategic direction. The Aturan-main (=Rules-of-the-game)
Report defines the mechanisms for implementation of the Agenda based on effective
multi-stakeholder participation in planning, investment and implementation,
including public-private partnership (PPP).
5. Three alternative Scenarios for the coastal defence system of Jakarta have been
elaborated. These three scenarios were merged into one development strategy that
contains basic elements of the three individual scenarios. The basic principles, the
key elements, additional measures, a phasing plan and a cost estimate were
presented in the Agenda. Each description is followed by an assessment of the
broader implications, and concluded with an evaluation of the effectiveness,
feasibility and sustainability of the proposed combined Scenario.
6. During his visit to Indonesia in July 2011, the Dutch vice-minister of Development
Cooperation committed a contribution of 4 million euro to the next stage of the
coastal defence of Jakarta. Early November 2011, during the meeting in the Hague
with representatives of some of the Indonesian authorities involved in the Jakarta
coastal development issue, it was intended to start the definition of the next stage,
or even to prepare the Terms of Reference for that stage. However, 'Water Mondiaal'
considers it a necessity to perform an End of Project (EOP) Review before moving to
the next stage. The aim of the EOP is to verify the sufficiency and consistency of the
existing approach, and when necessary or useful, to come up with suggestions for
complementary or alternative solutions.
7. The results of the EOP Review will provide a basic reference to define the scope of
the next phase or project(s), based on which a Terms of Reference (TOR) can be
formulated. In this way strategic and essential issues that were not addressed yet
during the previous phase can be identified and included in the TOR of the next
phase.
8. In view the urgency of having adequate measures to safeguard an acceptable flood

risk situation in the year 2025, as well as of the complexity of the problems to be
solved, it is worthwhile to review the results of the JCDS from another angle than the
mainly technological focus applied so far. The JCDS project projected solutions for
adequate reduction of flood risk, however, the financial, operational and institutional
feasibility of these solutions still require verification, confirmation or even
improvement. In addition, the focus of JCDS should be converted from 'hydraulics'
to 'economics, institution and operation'.
9. The EoP Review mission was composed of

a. Ir. Piet Dircke (Mission leader),
b. Ir. Jan T.L. Yap, MSc. – Water Resources and Capacity Building Specialist,
c. Ir. Budihardjo Sukmadi, MSI – Former Vice Governor of DKI Jakarta Province,
d. Ir. Arie Djunardi Djoekardi, MA – Former Vice Minister of Environment,
e. Ir. Widagdo, Dipl. HE – Former Director of Rivers, lakes and reservoirs, Director
General for Water Resources, Ministry of Public Works.
10. The Mission was fielded in Indonesia to carry out visits, interviews and discussions
during the period 23 – 28 January 2012 (Full Mission) and continue during the period
30 January 2012 – 3 February 2012 (part of the Mission).
11. The results of the field visits, interviews, findings and analyses of the findings are
reported in this document, including conclusions and recommendations.
2 The Mission’s Terms of Reference

12. Goal:
Strengthen the financial, operational, and institutional feasibility of the JCD Strategy
for adequately reducing the flood risks from the sea.
13. Objectives:
1. Review results of the JCDS;
2. When appropriate, identify more effective alternatives or complementary
measures and approach;
3. Identify major components of follow-up activities;
4. Recommend on complementary or alternative solutions for the implementation
of the JCDS results.
14. Expected results:

The EOP Review will result in clarity on the following items:
1. Financial, operational and institutional suitability of the JCDS results as the
departure points for a process of coastal development programme for Jakarta;
2. Possible steps needed to enhance the viability of the process.
15. Scope of Work:

The scope of work consists of a critical review of the results of the JCDS project. The
scope of work consists, but is not limited to, the following activities:
• review of the documents produced under the JCDS project, viz. the Atlas,
Agenda and Aturan Main;
• interview key staff of institutions concerned (stakeholders) on their vision of
the results of the JCDS project as well as on the follow up;
• on the basis of its objective review and assessment propose suggestions or
alternatives for follow up on the results of the JCDS project;
• receive and elaborate reactions of these key staff on its assessment,
alternatives and suggestions;
• elaboration and translation to English of the contributions of the three
Indonesian Top Experts;
• produce a final End-Of-Project Review Mission report;
• report to Agentschap NL and to the Netherlands Embassy in Jakarta.
3 Background
Population Growth and Land Use.
16. Indonesia's capital Jakarta lays in the metropolitan area comprising of DKI Jakarta
(the capital area), parts of Bogor District (West Java Province), parts of Tangerang
District (Banten Province) and Depok and Bekasi District (West Java Province),
hereinafter JABODETABEK. This metropolitan area has a population of about 16
million and is expected to grow to about 30 million by 2030. The percentage of
population below the poverty line is about 20%.
17. Jakarta's population growth is putting huge pressure on the urban environment.
Traffic is gridlocked, air quality is at crisis point and Jakarta's rivers are choked with
human waste and garbage. Poor sanitation also creates serious health threats.
Population pressure converted half the city’s small lakes (waduk) into residential or
commercial areas, leading to severe reductions on retention capacity and increases

in peak flow discharges. At present less than 10% of DKI Jakarta area can be defined
as open and green areas, while such area should cover 30%, according to
government regulations.
18. As the built-up area expands, its water retention capacity for direct rainfall reduces
while overflow of the 13 rivers and streams increases a runoff from the upper
watersheds increase due to deforestation and overbuilding in the Bogor and Puncak
areas. The upper watershed runoff has increasing sediment loads due to erosion and
landslides from the deforested build-up areas and, in turn, this exacerbates the
damage of flooding downstream. About 150,000 ha of the city are below 2m above
sea level: clearly, floods that coincide with high tide are further exacerbated by back-
up of the flow of rivers and drains.
Land subsidence due to uncontrolled groundwater abstraction
19. The World Bank supported JABOTABEK Water Resources management Study (1993-
1995) under the Integrated Urban Infrastructure Development Project (IUIDP)
reported that rapid urbanization along with severe uncontrolled and over-extraction
of groundwater in areas not connected to the municipality water supply distribution
system leads to continuous subsidence of the ground surface. Over pumping of the
shallow and deep aquifers underlying the area causes land subsidence that, in turn,
exacerbates local flooding due to poor and impeded internal drainage and reduction
of outlet capacity. Failure to address groundwater abstraction controls could
exacerbate local flooding and traffic disruption from normal rainfall in the medium
term and require expensive “pumped polder” systems and large outlet infrastructure
over large areas.
20. The Dutch assisted “Non-structural Jakarta Flood Management” Project revealed that
the coastal area in north Jakarta has reached a very critical level in terms of land
subsidence. Recent subsidence measurements indicate that a 2.5 cm/year
subsidence rate was too conservative and recommends that the value should be
considered much higher. Most experts assume a rate of 7.5 – 10 cm/year, but the
latest figures show that locally subsidence rates may reach 15 – 25 cm/year. This
will bring the northern parts of Jakarta some 4 to 5 metres below sea level in the 15
– 20 years to come. When subsidence is not stopped, by 2100 north Jakarta will sink
at least another 5-6 meters from 2010.
21. This will leads to impeded drainage even for normal rainfall and permanent
inundations from the sea even at low tides. These areas will become unsuitable for
human settlements, unless a polder concept is being applied for these areas.
Urban Drainage and Flood Issues
22. JABOTABEK suffers from increasing damaging flooding. It lies in the downstream
area of Cisadane and Ciliwung rivers’ watershed and is also transacted by 11 minor
streams which all discharge into the Jakarta Bay. Some of these rivers act as major
drains that carry the sewage and storm drainage flows generated in the urban area
as well as flood runoff from the watersheds. These normal and flood discharges are
also a major source of pollution in Jakarta Bay as they carry waste and pollutants
from storm drains that also serve as open sewers due to the absence of a sewerage
system in most of JABOTABEK, with possible exception of part of the Jakarta Central
Business District (CBD), whose effluents discharge into the larger open drains and
rivers.
23. From its beginnings Jakarta has been prone to flooding due to its unfavourably low
location on the coast of the Java Sea. It is located within the river basin of several
rivers transporting large amounts of water. Over the years the water contains more
and more silt and sediments, while the peak flows becoming higher and skewed.
Most of these changes in flow pattern are due to developments in the upstream parts
of the river basins. For the past decade, climate change has probably also
contributed to a change in river flows due to higher rainfall intensity and thus higher
peak flows.
24. These changes in rainfall pattern and river flow characteristic together with land
subsidence in North Jakarta have created a major challenge for the drainage system
of DKI Jakarta. Because of land subsidence the natural outflow into the sea does not
exist anymore at many sea-outfalls. Although technically speaking engineering
solutions for the banjir (flood) problem may be identified, these will require
enormous amounts of funding, apart from the question of their social and
environmentally feasibility.
25. The reduction of open space and green area also affected the drainage flow pattern
in DKI Jakarta. The direct runoff within the city is much higher than originally
estimated for the design of the drainage system. In addition, the drainage system
itself is very much affected by land subsidence leading to low and ineffective
performance of the system.
26. Any structural solution and adjustment of the physical infrastructure to appropriate
protection levels will require careful economic, financial and social trade-offs. If
financial and social constraints require a lower standard, then an enforceable system
of non-structural flood control measures (flood insurance, flood proofing, and flood
zoning) which, to date have been inconceivable and/or for which no appropriate
urban and regional institution exists, should be seriously considered.
27. The Ministry of Public Works and DKI are required to maintain flood control
infrastructure, but actual budgetary allocations are substantially lower than what is
needed to maintain the system. This has resulted in huge sediment and solid waste
build-up in floodways and drains, reducing protection levels from 25 years to less
than five years. DKI’s flood control systems are also adversely affected by weak
enforcement of spatial plans and building regulations and uncontrolled abstraction of
groundwater. With assistance from donors, including the Government of the
Netherlands (GoN), the backlog of maintenance dredging will be addressed during
the next ten years. In addition, new canals will be constructed to increase
conveyance capacity of the urban drainage system.
28. The issue of sustainable of any design standard is a major problem where no agency
accepts or is allocated operational responsibility for maintenance and/or inadequate
Operation and Maintenance (O&M) funding is provided. Maintenance neglect and lack
of a sustainable fiscal framework for O&M is as large a cause of flooding through
under-capacity as any physical or land-use control reason.
Astronomic Tide
29. Whenever the Java Sea rises during the monthly lunar tidal cycle, water rushes
inland and inundates parts of Muara Baru, which like 40 percent of Jakarta, and most
of North Jakarta, lies below sea level. Within 10 years from now it will be at the
mercy of an upswing in the tides unless city and national government officials finally
do something about it. International experts predict tides will surge far inland
without a proper sea defence system in place. The areas of the city most vulnerable
to tidal flooding are Muara Baru, Muara Karang, Penjaringan, Pademangan, Tanjung
Priok, Pluit, Koja and Kapuk Muara. Most are industrial areas surrounded by densely
populated villages.
30. Astronomic tidal fluctuation in the Bay of Jakarta has an 18.6 year cycle. On
November 26, 2007 the astronomic cycle peaked in conjunction with annual spring
tides and resulted in damaging floods from the sea that were largely unexpected. So
far, it was assumed by the local government and community that Jakarta was only
threatened by rain induced floods. A recent study on Flood Hazard Mapping clearly
showed that from 2007 Jakarta will be severely threatened by floods from the sea as
well. Although the astronomic tidal cycle will retreat in the coming years after
reaching its peak in 2007, the inundations from the sea will continue because of the
ongoing land subsidence in the northern part of the city. Moreover, flooding will still
occur when rain induced floods coincide with high spring tides. The cycle will start
rising again in about 4 years from now and tidal floods will become particularly
severe again. This extreme tide is also described in “Tidal Dynamics” by Fergus J.
Wood (1986) as “Extreme Proxigean Spring Tides” that may cause severe flooding
along the coast. The peak of the next tidal cycle is expected in 2025 to occur.
31. Continuous subsidence of the northern part of Jakarta combined with, and the
expected rising limb of the astronomic tides over 4 years from now ultimately leading
to the next Proxigean tidal period in 2025-2026, and the sea level rise as result of
climate change, and changing rainfall pattern and intensity due to climate change,
will cause disastrous flooding in North Jakarta. Although the predicted figures for the
sea level rise in the Bay of Jakarta is still far from accurate, some allowance for this
phenomenon should be taken into consideration.
32. While many engineering design studies have been done in the past, these have not
considered the outfall difficulties and resulting backwater impact on internal drains
that arise from the large tidal fluctuation in the Jakarta Bay and river estuaries. As
has been pointed out in the JCDS study to protect the coastal area of DKI will require
very large quantities of outfall pumping and huge low-lift pumping stations. These
will increase costs and require failsafe and fully reliable operation.
Urban Development and Management
33. As the past flood protection and control measures were often strongly lacking behind
the rapid growth of the city – parts of them being implemented when the city
population and built area were extended already two to three times – comprehensive
water and urbanization planning should be aimed for. Continuous future development
of DKI Jakarta will require large flood control and flood risk management
investments. Although many small and large water infrastructure improvements are
in the course of being and/or being implemented in Jakarta, the overall aim of a
holistic approach for DKI Jakarta urban development should be to tackle the problem
based on a comprehensive cultural, water catchment area and urban development
plan.
34. Future DKI Urban Planning and Management now become more important to 21st
century democratic Jakarta than it was in implementing the competing colonial and
nationalist visions of the 20th. This has been realized by the municipal governments
of DKI since the last decade. This can be seen in the carefully crafted “Strategic Plan”
being the basis to frame development of the spatial plan of Jakarta 2030. Lingering
effects of the economic crisis limited the city’s financial capacity to address
longstanding infrastructure needs.
35. To accommodate the continuous population growth of the city, and the demands of
new commercial development, every piece of land was used to its maximum. This
has led to the disappearance of open and green spaces previously functioning as
detention or temporary storage for overland flow during heavy rainfall. Further loss
of open and green spaces came about through the conversion of government owned
parks to other land uses, such as schools, mosques, parking lots and commercial
facilities.
36. A large scale new development plan for the city was a plan for a new waterfront city
located along the North Jakarta coast, comprising of a total area of about 2,700
hectares reclaimed from the Jakarta Bay. The Jakarta Waterfront Project was a
national undertaking, and was approved through the Presidential Decree No
52/1995, that placed responsibility for the development within the DKI Governor’s
office. It involved the creation of a new area of high-rise buildings, including
revitalisation of the historic areas in North Jakarta and expansion of the recreational
facilities along the northern coast. It was intended to be developed by private
developers applying state of the art infrastructure technology.
37. The plan for the 2,700 hectares, as scheduled for development in the 1985-2005
spatial plan was to use nearly 50% of the land for residential development, 15% for
commercial and industrial uses, approx. 5% to expand the port facilities, 14% for
general facilities, and the remaining 16% for green areas, including the creation of a
mangrove forest to protect the coastline against erosion. Work on the North Jakarta
land reclamation began in 1996.
38. The city’s 1985-2005 spatial plan drawn up in the early 1980s was revised again in
1997. The revised plan was to guide the development of Jakarta until 2010 and
included some reconsiderations of the basic assumptions of the initial 1985 plan, for
example existing population density was given due consideration when planning new
developments. Private investments are now actively being encouraged for the
development of new reclaimed areas along the North Coast and are expected to
continue for the next decades to come. However, a concerted coordination effort is
essential for all on-going and future public and private coastal development
activities.
39. The Spatial Plan Jakarta 2030 underscore the problems of limited water supply,
annual flooding, inadequate garbage and sewage management, and the continuing
challenge of providing enough decent and affordable housing for low income families.
But what is notable about this plan is its emphasis placed on the environmental
deficiencies in the JABOTABEK area, particularly DKI Jakarta, that involve more than
just poor infrastructure service. A lack of open space and massive air and water
pollution problems topped the list. Like problems in most metropolitan cities, the
plan observes that Jakarta faces a problem of limited open space” largely because it
is being crowded out by economic activities. Air and water pollution, including
industrial waste, are cited as related environmental deficiencies.
40. The rapid loss of the open spaces and green areas means that even mid storm
events result in excess water that cannot be naturally absorbed or retained. A
system of key flood gates exists in some of the urban area canals and retention
ponds. However, these suffer from blockage and may not be properly operated in a
regional manner as they were designed for a smaller colonial Jakarta and are not
operationally adapted to the present land-use or present urban flood hydrology.
Recent storms in the last decade thus brought out the consequences of a failure to
follow a logical urban development zoning plan in a natural floodway area. Certainly,
a more integrated operation of the floodwater regulation network is required,
especially one that reflects a consensus between upstream and downstream
communities.
41. Due to watershed degradation and urbanisation, the flood peaks and damages may
continue to increase while internal and main drain outflow congestion becomes
worse, as outlined earlier. While many rightly point to watershed degradation as a
major contributing factor to flooding, field conditions seem to imply that diversion of
flood flows out of the Ciliwung River near Bogor to the Cisadane River may not
greatly reduce flood damage from rainfall and poor internal drainage within the
Jakarta urban area. Although, a Western Diversion Canal (West Banjir Canal) was
constructed in 1919 and the Cengkareng Floodway in 1982, the growth of the city
has greatly outstripped its service area. Furthermore, these floodways, rivers and
major drains have a reduced capacity due to a combination of river bed
aggradations, siltation and solid waste dumping. Floodway encroachment through
unauthorised development and squatting further reduce capacity and increase the
physical, social and economic costs of flooding. Thus a combination of physical
factors, neglect and, inaction have contributed to duration, frequency and spatial
extent of flooding in the DKI Jakarta area.
42. Recently, an Eastern Diversion Canal (East Banjir Canal) was constructed to protect
certain areas in the North-Eastern part of Jakarta. This may lead to reduction of flood
damages in those areas. Maintaining its service level is key.
Institution and Management Issues
43. The Ministry of Public Works (MPW) and DKI are responsible for managing Jakarta’s
flood control system. MPW is responsible for floodways that cross provincial
boundaries, while the Public Works Department of DKI (DPU-DKI) is responsible for
drains and retention basins within its boundaries. A MPW flood control project unit
was established in 1965 to undertake planning, implementation and O&M for
JABOTABEK.
44. A basin management unit, Balai Besar Cisadane-Ciliwung was set up in 2006 under
DGWR in MPW. This new agency is responsible to operate and maintain flood drains,
detention ponds, pumping plants, etc and carry out flood warning. Its funding is from
central government (APBN) budgets while DKI Jakarta, Banten and West Java
governments have limited involvement or control.
45. The Project Concept Note prepared in 2007 for the Jakarta Emergency Dredging
Initiative (JEDI), listed the following institutional root causes of flooding in the
JABOTABEK area
• Lack of enforcement of regulations on groundwater abstraction. DKI prohibits
groundwater abstraction without a license. In practice, this regulation is not
enforced.
• Lack of enforcement of spatial plans and building regulations. Regulation of
buildings according to a spatial plan (based on floodplain management) is not
carried out or enforced. Furthermore, new housing developments within and
around Jakarta have not been regulated by a spatial plan designed to ensure
retention of adequate green areas that would have stored and absorbed normal
flood runoff. The increased paving resulting from extensive build-up of housing
and roads further reduces soil capacity to store rainfall and exacerbates runoff
within the city. The lack of enforcement of building regulations also contributes
the land subsidence, riverbank encroachment, and the rapid disappearance of
waduk.
• Limited coverage of solid waste collection services. At present, the Cleaning
Department of DKI Jakarta collects less than 40% of solid waste that is
generated within its boundaries. In the absence of alternative options for waste
disposal, the remainder is discarded in uncontrolled dumpsites or into the city’s
canals and lakes, thereby clogging floodways and drains.
• Insufficient funding for operations and maintenance. Actual O&M budgets of
MPW and DPU-DKI are substantially lower than budgets required to properly
maintain the infrastructure (in 2002, NEDECO estimated that spending by DKI on
routine maintenance was less than 10% of the required amount).
• Limited technical expertise. The organizations responsible for flood control
systems in Greater Jakarta lack the technical expertise to manage these systems
according to the standards needed for a metropolitan area of Jakarta’s size. At
present, there are no structural systems for annual inspections of flood control
systems, flood preparation drills, or collection of flood data (such as post-flood
mapping). In addition, flood warning and disaster management systems are not
well developed or effectively operated.
• Lack of enforcement of forest law and regulations. After many years of illegal
logging, most forests in the Ciliwung River Basin have disappeared. A planned
reforestation program, which would mitigate erosion along the river and its
tributaries, has not been implemented.
• Insufficient funding for investments in new flood control infrastructure. Because
of budget constraint, national and sub-national governments spend available
funds almost exclusively to operations and maintenance.
• Lack of coordination between authorities responsible for water resources
management. No platform exists for the coordination of the planning, operation
and maintenance of the entire flood control system among the various national
and sub-national governments responsible for water resources management
(including activities closely related thereto, such as solid waste management).
• Lack of incentives for interregional coordination. At present, provinces,
kabupaten and kota in upstream areas do not have financial or other incentives
to mitigate floods that mainly affect citizens outside their jurisdictions.
• Absence of political leadership to address the above issues in integrated manner.
This is perhaps the important constraint to the mitigation of Jakarta’s annual
floods.
46. Although many of these issues have been given more attention in the various project
initiatives during the last years, many of these institutional arrangements that has
been included or initiated needs further development, facilitation and guidance to
become a sustainable institutional instrument and platform for collaboration and
coordination.
4 Approach and Methods

47. The approach and methods applied for the mission’s review is in accordance to the
Scope of Works as specified in the Terms of Reference. It consists of the following
activities
• review of the documents produced under the JCDS project, viz. the Atlas, Agenda
and Aturan Main;
• interview the JCDS consultants, key staff of institutions concerned (stakeholders)
and other relevant resource persons on their vision of the results of the JCDS
project as well as on the follow up;
• receive and elaborate reactions of these key staff on its assessment, alternatives
and suggestions;
• Review and assess the results of the interviews and findings during the Mission’s
visit to the field and the key stakeholders;
• on the basis of its objective review and assessment propose suggestions or
alternatives for follow up on the results of the JCDS project;
• produce a final End-Of-Project Review Mission report;
• report to Agentschap NL and to the Netherlands Embassy in Jakarta.
A list of institutions visited and officials interviewed is attached in Annex A.

48. The interviews and discussions with the stakeholders are mainly based on the
following issues:
• How far is the JCDS study complete,
• What items/aspects are missing in the study,
• Suggestions on next steps to be taken,
• Constraints of the presents approach,
• How to raise the level of JCDS results from “Hydraulics” to “Economics”,
• What factors affect the financial, operational & institutional feasibility of the
implementation phase?
• What options for implementation mechanisms can be considered in addition to or
instead of governmental assignments?
• Who is the legal owner of the future flood management system as proposed by
the JCDS study?
• Is the PPP concept a viable option for public infrastructure such as flood defence
and management systems? How to attract the private sector to invest in these
Public Infrastructure?
• Who should operate and manage the flood defence assets/structures after
completion of the works, including operation and maintenance?
• Who should be actively involved and/or supervise the Master Plan Studies
activities? Which organisation should take the lead? Input for the organisation
structure? Are there existing Project Management Units (PMUs) and/or Project
Implementation Units (PIUs) or other existing organisations that are potential
embryos for the required organisations?
5 Findings and Assessment
The results of the interviews and discussions with the selected key stakeholders are
presented below, together with an assessment of the issue.
GENERAL
49. Much appreciation for the reports produced by the JCDS team.
All the key stakeholders appreciate the JCDS Reports, especially the Atlas. The
Agenda gives a clear message of the urgency of the situation, while the Aturan Main
gives suggestions on how to proceed further particularly in view of the many ongoing
and planned sector master plans for DKI Province. Unfortunately, many of the key
stakeholders received the reports just recently in January 2012, except for DKI.
50. The Aturan Main is mainly considered as an overview of normative

procedures.
During the discussions with the stakeholders it appears that some consider the
Aturan Main as an academic and normative document, since the procedures as
described in the report have not been tested in the field. The question “how to make
all these happen” is still not clear, e.g. how to do, who is doing what, who should
take initiative and who should lead. The realisation and implementation of these
procedures may be more difficult and complicated, as it involved cross sectoral and
even cross administrative boundaries. Experiences to arrive at sustainable structures
so far are very limited, if any at all.
51. Ownership at the various key stakeholders is low, except from DKI and
perhaps Bappenas.
Participatory approaches were mentioned in the report, however evident are not
included in the report that support the participatory processes, e.g. signed
declaration by the key stakeholders. Perhaps, only workshop/presentation/Q&A
sessions were used to inform the status of the project. According to Menko, they
were not “involved” but “informed” in January 2012.
52. Status of the JCDS Reports and project are unclear.

The mission didn’t find a formal project completion report. Any project can only be
considered complete when a project completion report is submitted and approved by
the client. There is confusion about the next steps and on who should take decision
on the next steps. The report mentioned a steering committee. In addition, the
composition of the steering committee is not reported in any of the reports.
Bappenas will soon arrange a steering committee meeting to discuss the JCDS
reports.
53. Owner of the computer models and data collected during the previous and
next phases of the JCD project should be decided upon.
So far, the developed models and data are fragmented but mainly controlled by the
consultants. There is a request from Puslitbang Air in Bandung (Hydraulic research
Agency of MPW), PUSAir on behalf of the GoI to own the developed material and
collected data and the results of the data processing. This is essential for future
operation and maintenance and management of the coastal defence assets. It is
suggested to appoint PUSAir, as the owner the material, data and information.
Obviously, a transfer programme to acquaint PUSAir staff with the models, data and
other information bases is necessary.
54. Statements in the JCDS reports that the various solutions are feasible and
sustainable without economic analysis is premature.
Feasibility and sustainability of investments depends on many aspects, not only
financial and technical, but also on the institutional aspects, in particular related to
operation and management of the investments, including maintenance. In general,
many large investments in infrastructure projects were based on feasibility and
sustainability analysis on paper only. During the operation phase, however, the
realized projects fail to perform as expected because of weak institutional
arrangements that should take over the infrastructure after construction is
completed. Particularly public infrastructure is very sensitive to the capacity of the
organisation in charge of O&M. Capacity to manage, financial capacity, organisational
capacity including human resources.
These aspects have also received limited attention during this JCDS study.
Institutional arrangement is essential before taken up next activities, as has been
stressed by several stakeholders. Experiences learned that especially when many
institutions and government administrations are involved, arranging an institution
that has the overall responsibility including O&M, is very complicated. Since these
issues were not addressed during the JCDS study, the statements on feasibility and
sustainability of components of the proposed infrastructure are considered
premature.
55. A Zero-option or do-nothing scenario is missing.

Although this may be not feasible from political point of view, a do-nothing scenario
should be addressed as a benchmark when comparing various future options to
underscore the need for urgent actions.
56. Other possible options to solve the flood problems in North Jakarta need to
be addressed, even if they are (for the time being) not considered feasible
from e.g., political point or other of views.
More options could be generated, apart than those reported in the reports. And those
considered should be well documented, even if rejected. Possible options to reduce
or mitigate flood damage, such as the creation of compartments in the Jakarta Bay
or others could be considered. Other more “soft” solutions, such as controlled or
elegant retreat to a more sustainable controlled defence line may be considered
taking the necessary socio-economic issues such as well managed, organised and
social acceptable relocation of the community, etc. into consideration.
57. The existing sea-wall/flood protection system needs routine monitoring to

reduce the impact of sudden failure and short term repair work should be
carried out.
During the field visit by (part of) the Mission it was observed that at some locations,
under seepage carrying soil particles. This may lead to undermining of the existing
seawall, ultimately leading to collapse of the seawall. This also implies that under
seepage (piping) is a highly potential failure mechanism of the existing seawall that
could occur before a failure due to overtopping. This requires urgent attention and
close observations. Where possible repair works should be carried out.
INTEGRATION AND SYNCHRONISATION
58. Integration and synchronisation with other sectoral master plans is

essential, especially with those that are closely related with and/or affected
by the flood defence system for the coast of DKI Jakarta in the Jakarta Bay.
The Japanese government supported the study on the Metropolitan Priority Areas
(MPA) executed by the Coordinating Ministry for Economic Affairs (Menko Ekon).
Upon informed about the JCDS study in November 2012, Menko Ekon has decided
that JCDS should be part of MPA (and thus of MP3EI). In addition, a recent Master plan for
Acceleration and Expansion of Indonesia Economic Development (MP3EI) 2011 –
2025 was completed and endorsed in May 2011. This is an umbrella national master
plan of which the MPAs are part of it. The MP3EI includes the economic development
in the DKI Jakarta Province. Menko Ekon stressed that any plans related to economic
development of the DKI Jakarta Province should be in line with the MP3EI. Further
development of sewerage and drainage systems in DKI Jakarta is being addressed in
the MPA. This includes reforming the flood control system, solid and liquid waste
disposal systems, and developing new sources for clean water supply.
Other ongoing or upcoming master plans include, DKI Jakarta Spatial Plan 2030,
Transportation systems (road and railways, Mass Rapid Transport systems, etc.) in
and around DKI, Water Supply and Sanitation, Urban Drainage and Flood
Management, Reclamation of the coastal area of DKI Jakarta, other regional master
plans (West Java, Banten) etc., and the Java Economic Corridor plan as outlined in
the MP3EI. All stakeholders agree that there should be a link between the JCD
initiative and the other master sectoral and regional plans.
Some stakeholders suggest, instead of a JCD master plan, to develop an integrated
master plan for the development of Jakarta Bay (and North Jakarta) where the
coastal defence system is instrumental to the development of the area. Other
stakeholders suggest an Urban Drainage and Flood Master Plan that includes flooding
from the sea, because of some hydraulic inter-relation between river flows and
downstream condition in the Jakarta Bay.
59. An overall Integrated Flood Management Plan for DKI Jakarta could be
considered.
Ideally, an overall Integrated Flood Management plan for DKI Jakarta should be
developed that includes (1) urban drainage from local rainfall, (2) river floods from
the rivers flowing through the area, and (3) flooding from the sea. In this way the
drainage and flood issues can be integrated into one comprehensive flooding master
plan for DKI Jakarta. From hydraulic point of view these flood management
components are linked to each other. Example, water level control in the bay of
Jakarta influences the performance of the city drainage system and the rivers flowing
into the bay (Lower Boundary of the flows). This Integrated Flood Management (IFM)
Master plan should also connect the elements relevant to drainage and flood with the
other sectoral and regional master plans.
An additional role of an IFM Master Plan could be to integrate elements for all other
sectoral and regional plans. This integrated and comprehensive flood management
master plan is worth to be considered that take the whole water cycle into
consideration.
60. On the long term there is a need for an overall outline plan for future flood
protection of the North coast of Java. This has been requested before by the
State Agency for National Development (Bappenas). This has not been addressed in
the JCDS study yet. The requested overall plan should be conceptual only without
too much engineering details. It should give an overall big picture of the future north
coast of Java.
TECHNICAL/ENGINEERING
61. The Technical analysis presented in the Agenda is considered a wake-up

call. The options are clear and straightforward with good indications of the
costs. Focus was too much placed on technical engineering solutions.
All the stakeholders expressed their opinion that the study is more focussed on the
hydraulic engineering. The “soft” elements, such as social, institutional, operation
and maintenance, operational cost recovery, financing, organisation and human
resources, etc., were insufficiently addressed. In general, engineering solutions often
fail to operate successfully, exactly because these “soft” elements were not given
proper attention, if any at all. Results are often low quality structures, in poor
condition and neglect because of organisational and budgetary reasons. In case of
the proposed coastal defence system, poor operation and maintenance is considered
a clear and high risk for failure of the system, leading to a disaster that will be much
larger than under current conditions.
62. The urgency to have a protection system ready by 2025 was not clearly
described in this report.
The previous study explained the critical year of 2025 from hydraulic & tidal point of
view. The year 2025 is used as a milestone in the roadmap of the coastal
development. Menko thought that the year 2025 coincide with the end of the MP3EI
Programme. The Mission suggests including the tidal analysis to explain the year
2025 as a critical year. In this way, the sense of urgency to have a protection system
in place could be enhanced and stressed.
63. The next phase should address some additional construction phase aspects
of the structures, e.g. source of borrow material for the future sea dike,
location to dispose contaminated dredged spoil during construction,
including the related environmental impacts, qualification of contractors,
quality control during construction, etc.
Environmental issues were discussed at KLH and the Ministry of Marine Affairs and
Fisheries. Huge amounts of and clay material will be needed for construction of the
sea dike. The unit rates should reflect the distance to the borrow area for suitable fill
material. Most likely, the deposits in the Jakarta Bay are heavily contaminated. If
dredging works are required, an analysis of the dredged spoil should be carried out,
based on which additional measures should be developed to minimise the risk of
environmental degradation in and around the disposal area of the contaminated
dredged spoil.
64. Construction aspects of offshore construction works are complicated and

minimal experience, if any exists in Indonesia to construct these types of
works. Proper construction practices according to international established quality
standards are considered essential to guarantee the intended long term service level
of the flood defence system. International partnerships between national and
international contractors are most probably required, based on a joint venture (risk
sharing) concept, or others. Are the existing regulations sufficient to cover these
types of complicated construction works? How can the quality of the construction
works be assured? Are the existing Indonesian standards for engineering design and
construction of civil works sufficient? If not, what standards should be applied?
65. Land-subsidence is the root cause of vulnerability of the coastal area of DKI
Jakarta to flooding from the sea.
All the key stakeholders agree on this fact. Also that the main cause of this
subsidence is most probably uncontrolled deep groundwater extraction. The absence
of effective regulatory institutions, not only for land-use control, but also for
groundwater extraction, poor incentive mechanisms coupled with poor urban
sanitation is causing both a degradation of groundwater quality, saline intrusion into
the aquifer in addition to land subsidence. Even after groundwater extraction is
completely stopped, settlement of the sub-soil will most probably continue for some
time due to secondary consolidation effects.
66. The core problem of land-subsidence and groundwater extraction is

lack of reliable, clean and affordable water supply for this area.
Groundwater extraction and land subsidence can only be stopped if an adequate,

affordable and reliable (both in quantitative and qualitative sense) alternative water
supply system is developed in addition to the current (inadequate and insufficient)
water supply system.
Potential water source from the Jatiluhur Reservoir in West Java could provide the
need for clean water for DKI Jakarta, including the northern area. Studies have been
carried out to construct a second conveyance system from the Jatiluhur Reservoirs
since 1977. Until to date, 45 years later, these plans are still being studied. Although
groundwater constitutes about 20% of the current Jakarta water supply, replacement
of these groundwater sources and natural urban growth will imply a 100% increase
in surface water imports from West Java and Banten by 2020. Taking the history of
slow clean water supply development for DKI into consideration, a rapid increase in
bulk water supply for this area from Jatiluhur or the Cisadane River and the many
house connections in this area within 5 to 10 years from now is considered a major
challenge , even if the now planned ADB projects are implemented and turn out to
be successful.
Identifying other sources for bulk water for North Jakarta to accelerate the process
should be considered, for example desalinisation or reuse of river/drainage water.
67. Any new structural solution and adjustment of the physical infrastructure to
appropriate flood protection levels will require careful economic, financial
and social trade-offs.
If financial and social constraints require a lower service level, then an enforceable
system of non-structural flood control measures (flood insurance, flood-proofing and
flood zoning) should be developed which, to date have been inconceivable and/or for
which no appropriate urban and regional institution yet exists!
ENVIRONMENT
68. Interventions in the Jakarta Bay by the JCD works should not disturb
existing development plans of Tanjung Priok Harbour.
According to Bappenas, Tanjung Priok harbour will expand to Kali Baru under Pelindo
2. There are possibilities that the harbour will further develop to become a deep sea
harbour. Future coastal defence works should consider these possibilities and if
possible it should enhance the harbour development plans. Close collaboration and
coordination with the Tanjung Priok Harbour Authority (Pelindo 2) is essential in any
future planning of Jakarta Bay development.
69. Impact of the future coastal interventions should take Coastal Morphology
into consideration.
Sediments of the rivers flowing into the Jakarta Bay and the longitudinal drift along
the coast are most probably in natural balance. The Ministry of Marine Affairs and
Fisheries and the State Ministry of the Environment (KLH) stressed that any
disturbance in the sediment balance of the coastal zone needs careful analysis,
especially since it may influence the entrance channel of the harbour Tanjung Priok
(sedimentation?) and failure of coastal structures due to coast erosion. The impact
may reach areas outside the project areas.
70. River water quality and sanitation management are essential elements for
the coastal defence system.
Menko Ekon pointed out that the problem is not only flooding but also public health is
an important aspect to take into consideration during the next phases. Failure to do
so may lead to a situation that could be worse than the current situation, taking into
consideration the discharge of the rivers flowing into the bay that bring liquid and
solid waste and also (contaminated) sediments. Together with proper water supply
for the northern part of Jakarta in order to halt land-subsidence because of
uncontrolled groundwater abstraction, a well designed and implemented Water
Supply and Sanitation Master Plan is essential.
71. Creating a fresh water lake in the Jakarta Bay as raw water source for clean
water purposes is a myth.
There were strong indications that most of the key stakeholders expect that the JCD
system designed as a completely closed system will create a fresh water lake in the
enclosed bay area. Taken the sanitation condition, the water quality of the rivers
flowing into the bay, the contamination of the accumulated deposits in the bay over
the years, it is considered most unlikely that the water quality in the enclosed bay
meet the quality standard of bulk water for clean water supply. At least not within
the coming 50 years.
SOCIAL
72. It is essential that all proposed solutions and mitigation measures

incorporate a social and poverty alleviation dimension to ensure some
equity in the distribution of benefits of future investments.
The Ministry of Marine Affairs and Fisheries is concerned about the social impact on
the community living in the coastal area currently protected by the seawall as result
of the various development scenarios as proposed to be taken up in the next phase.
Example, the fisheries community, the fishing load and unloading facilities, and the
fish processing infrastructure. How to maintain the community jobs and income,
including the supporting and logistic facilities and labour. Should they be
compensated, relocated or giving opportunities for re-schooling to prepare
themselves for other profession? The same concern was also expressed by the State
Ministry of the Environment (KLH).
73. Give special attention to Sunda Kelapa Harbour. Maintain its cultural
heritage function.
This is a cultural heritage area of DKI Jakarta and a famous tourist attraction. Almost
all stakeholders visited expressed the need to maintain the current status of Sunda
Kelapa Harbour. Its function should remain intact and if possible enhanced by the
development in the Jakarta Bay area.
74. Reduce the vulnerability of the urban poor living in coastal flood prone
areas.
These segments of the poor in North Jakarta are most vulnerable to flooding. Flood
impacts this group mainly in terms of public health, economic activity and material
losses. Loss of life is another potential impact including due to infection by water-
borne diseases and water pollution. Given the high population density in these areas,
even small-scale floods may cause substantial damage and human suffering. Both
the incorporation of people-centered approaches to community-based management
of disaster risk, and the integration of disaster-risk management strategies into
social-economic development planning, is critical for effective flood management. To
ensure preparedness of these communities, in-situ flood management approaches
should include participatory flood planning and management that involve the lowest
public institution and the community. Communities should be empowered to develop
their own hazard mapping and evacuation strategy. These strategies should be given
proper attention. Community leaders together with community-based organisations
and organisers can perform a critical service in reducing community risks and
vulnerability and increase the community resiliency to disasters.
INSTITUTIONS
75. Institutional aspects were weakly addressed in the JCDS study. This is one
of THE most essential components to be given due attention in the next
phases of the project.
This component is in general often neglected in many of the previous drainage and
flood protection projects or initiatives for DKI Jakarta. This institution or organisation
to be established represents the Legal Owner of the Flood Defence System. The
Legal Owner should take over the system as soon as it is completed, and is
responsible for proper operation of the system and keeping the service level of the
system at the agreed design level. This can only be achieved through proper
maintenance, including budgeting and cost recovery mechanisms by applying a
sustainable fiscal framework and O&M organisation. This institution or organisation
should be established at the start of the next phase and should be involved in all
future development phases of the coastal defence system as owner. The owner or its
representatives should be involved during programming, planning, detailed
engineering design, procurement of the works, construction, and operation of
maintenance of the completed work. Setting up an O&M organisation after the
construction work as proposed in the Aturan Main is TOO LATE!
76. The issue of sustainability of any engineering design standard is a major

problem where no agency accepts or is allocated operational responsibility
for maintenance and/or inadequate O&M funding is provided.
Experiences clearly showed that maintenance neglect and lack of a sustainable fiscal
framework and organization for Operation & Maintenance is as large a cause of
flooding through under-capacity as any physical or land-use control reason! This is
an essential aspect that has to be given a high priority in the next phase of the
project and beyond. The Mission believes that new flood defence infrastructure
without proper maintenance will only increase the vulnerability of the area it intends
to protect.
77. Establishment of an agency, organisation, institution or committee (inter-

government) with management authority in programming and planning
development, regulating, operating and maintaining the coastal defence
infrastructure, including the river mouths flowing into the Jakarta Bay and
non-structural flood control programmes is essential before embarking on
the new phase of development programming, planning, preparation,
detailed engineering design, construction, operation and maintenance.
This new institution is responsible—under a project funding approach—to operate

and maintain flood defence system in the coastal areas, drains, detention ponds,
pumping plants, etc and, carry out flood warning. The Mission’s opinion is that
without such an agency, the difficult political-economic and sustainability issues
presented by the technical solutions cannot be overcome in the long-run. Moreover,
a viable policy of cost recovery for O&M, flood warning, flood relief and disaster
management must be instituted if physical structures are to maintain their design
capacity and functionality under changing demographics, poverty alleviation and
economic development scenarios.
78. A Presidential Decree to establish such an institute is required.

On request of Bappenas the mission has drafted the first draft outline of such a
decree and submitted to Bappenas 2 weeks after the field mission in Jakarta.
Internal review (Bappenas and Menko Ekon) will reveal the detailed content and the
procedures to approve the decree and its endorsement by the GoI. A Presidential
decree or regulation is required since the intervention in the Jakarta Bay cut across
many sectors, administration boundaries, ministries and departments. The role of the
new institution should be clearly defined, its responsibilities, authority and source of
operational funding during and reaching far beyond the project phase.
79. Sustainability of the Coastal Defence System depends on the capacity of the
institution in charge with operation and maintenance.
The key stakeholders and the Mission agree that the capacity of the institution in
charge with O&M, owner and asset manager, is essential and should be given due
attention from the very beginning of the project cycle. Capacity of the institution
includes capacity to manage including human resources required, monitor and
evaluate, maintain the service level, and financial capability to generate income
through a series of mechanisms, including government subsidies and the
development and application of fiscal and financial instruments to recover the O&M
cost and to do some investments to maintain and even improve the service level of
the system. A comprehensive capacity building programme should be developed
from the beginning of the next phase, with special emphasis placed on asset
management. Capacity building in this case includes legal and regulatory
instruments, organisational set-up and operational procedures, and human resources
management and development.
80. Encouragement of the private sector to invest in opportunities and, if

possible public infrastructure is essential and should be given special
attention in the next phase to arrive at PPP concepts.
Almost all stakeholders are of the opinion that development of the Jakarta Bay create
opportunities for private investors to participate in the development programme.
Obviously private investors are mainly interested in commercial based opportunities,
such as land reclamation. However, ways need to be identified how private investors
can be stimulated to participate as partner with the government to invest in public
infrastructure. Alternatively, fiscal and financial instruments should be developed
that the beneficiaries of the development of public infrastructure direct or indirectly
contribute in a full cost recovery scheme. The Mission suggests that PPP concepts for
the development and O&M for the future coastal defence system should be
elaborated in detail during the next phase. So far, PPP in public infrastructure in
Indonesia is rare.
81. Weak institutions will increase the risk of flood disasters in the area.
Weak performance of the institution/organisation in charge for supervision
engineering design, construction of physical works, and operation and maintenance
of a sophisticated flood defence system will increase the risk of failure of the system.
Instead of reducing the existing risk, we only increase the vulnerability of the
existing and the future developed area (encouraged as result of the new flood
defence infrastructure in the false believe that it will provide better protection) in the
Jakarta bay.
6 Recommendations
Based on the findings, discussions and experiences with large public infrastructure
development in Indonesia, the Mission recommends the following for consideration for
the preparation of the next phase:
82. Address the current status of the JCDS activities and its reporting.
83. From now on, key Indonesian stakeholders (government and non-government)
should be in the driver seat of the development of North Jakarta and the required
infrastructure to protect the area from flooding. A clear transparent participative
approach should be developed and applied. Essential drive is a “Political will” of all
stakeholders involved.
84. A project promoter, e.g. a prominent political authority or a commission of “wise”

people should be established who promote and championed the development of
North Jakarta. They should be supported by communication strategies for the various
stakeholders, e.g. legislatives at central and provincial levels, private investors,
NGOs, the press and the civil society. Example communicate opportunity for
development of the Jakarta Bay instead of the danger of flooding; those
development needs infrastructure, including flood protection.
85. Much more attention should be given to the institutional arrangement that is
required in order to operate and maintain the new and rehabilitated drainage and
flood infrastructure. A transition from Engineering to a Governance Model is essential
during the next phase.
86. Develop and implement a non-structural flood control program (floodplain zoning,
insurance and proofing, warning and flood relief) with strong institutions for
enforceable regulatory arrangements for both the rich and poor communities alike
in North Jakarta with priority for the needs of the highly vulnerable poor population
and its informal sector enterprises. Institute an effective and sustainable flood
preparedness (including local warning e.g. using air raid sirens), flood-fighting and
post-flood relief programmes.
87. Institute a GoI policy on beneficiary cost recovery (possibly based on an earmarking
a small portion of property taxes and n inflation-related national subsidy) which
ensures full or partial fiscal sustainability for O&M (including pumping costs) and
rehabilitation.
88. Given the enormous civil works investment for an integrated urban flood
management scheme, including a coastal defence system and considering the
stochastic nature of flood events, the difficult coordination, spatial planning and
regulatory arrangements needed for multiple regional governments, national
ministries and agencies, a national inter-ministerial body is needed led by the
Coordinating Ministry for Economic Affairs (Menko Ekon). Ensure appropriate
involvement of civil society and NGOs in the institutional and implementation
arrangements.
89. Follow a holistic and integrated approach for the development of North Jakarta, cross
sectoral, including land development and management, industrial development,
transport, water supply and sanitation, residential areas, landscape, recreation, etc.
90. The highest possible attention should be given to solving the land-subsidence
problem as soon as possible and to alternative provision of clean water for those
areas. Without adequate and prompt tackling of the subsidence problem (by stopping
ground water extraction and replacement by reliable and affordable water supply),
many of the planned investments for the development and protection of North
Jakarta will be a waste of money. Without stopping subsidence , North Jakarta will
subside far below mean sea level and become a very unsafe place to live, even if a
JCDS is installed. Although the frequency of a probable disaster may be low, the
impacts (in terms of economic damage and loss of lives) could be tremendous.
Population in North Jakarta will depend completely, not only on a perfectly designed
and constructed protection system, but also on a perfectly maintained, organized,
operated and funded system for many years to come.
91. Also high attention should be given to rapid introduction of adequate sanitation in
Jakarta and upstream to improve and safeguard sustainable water quality in the bay
in particular if a complete closure of the bay is considered. Given the environmental
(and also safety) consequences of a completely closed bay and the improbability to
have such a sanitation system in place in the years to come, this alternative has to
be studied thoroughly, alternatives should be considered, mitigation measures
applied and if possible this alternative should be avoided at all by making sure that
subsidence will stop as soon as possible!
92. Consider an integration and synchronisation of the various master plans (Sectoral
and regional) with the urban drainage and flood management, including flooding
from sea (JCD system) as element, instead of a JCD Master Plan. Synchronise the
implementation of the various plans. In the (near) future an Integrated Urban
Drainage and Flood Management Master Plan, including flooding from the sea (JCD
system) that is well integrated with the other plans.
93. Conduct a more detailed analysis of the viability of PPP schemes for the development
of North Jakarta, including investment in public infrastructure.
94. Find a modus operandi of a donor partnership between the Government of Indonesia,
international financial institutions and other bilaterial development partners for
project program preparation and implementation for the development of North
Jakarta.
95. Follow-up activities should not require lengthy preparation based on complex
environmental and social safeguard policies and be followed by “only institution-
building” activities taking several years. Therefore a strategy of initial investment in
emergency work in tandem with establishment of the crucial institution-building and
fiscal consolidation phase is proposed. While the major investments and non-
structural programs are being prepared, we propose that major investments are
considered in restoring the capacity of neglected floodways and key internal drainage
facilities (due to deferred maintenance) as part of the emergency programme. In
addition, attention could be given to: (a) improving flood warning and post-flood
relief programs especially for the poor people living in the flood prone areas; and (b)
improving flood gate and pumping station operation procedures and arrangements.
96. Taking the urgency of the current situation (under seepage of the existing seawall at
various locations) and the complexity of the problem (multi and cross sectoral,
institutional, cross government administration, participation of the private sector,
public health issues, environmental neglect, synchronisation of the many sectoral
and regional plans, etc.), consider to focus the next phase on the following parallel
components:
a. Emergency work to protect the area short term from flooding from the sea to
buy some time for a more comprehensive and holistic solution, and develop or
improve flood warning systems, preparedness and post-flood relief programs
for the poorer coastal communities. An essential element here is to restore a

fixed reference level for geodetic survey. This new reference level should be
placed in an area outside the land-subsidence area or should be installed/fixed
independent of any land-subsidence.
b. Continue and expand follow-up activities/studies/research for the development

of North Jakarta, engineering design, links with the various master plans,
environmental and coastal morphological analysis, control land-subsidence,
water quality, other options not yet elaborated e.g. controlled retreat, including
non-structural measures, flood proofing, early warning, etc. Also consider other
out-of-the-box concepts with multi-disciplinary dimensions such as land and
water management Jakarta Bay development, application of Sustainable Urban
Drainage Systems (SUDS), flood defence applying zoning (compartments) in
the bay with various protection levels, (semi-)closed system with storm surge
barriers to protect the bay during high surges/tides, etc. Also strategies to
move from a model based on “hydraulic engineering philosophy” to a
“governance” model based on an economic and commercial way of thinking.
Also important is to include a detailed Strategic Environmental Assessment
(SEA) for the Jakarta bay.
c. Institutional arrangement, responsibilities and authority, organisation,

management, asset management, financial capacity, human resources for
operation and management. Communication platform or dialogue, participatory
approaches, development of fiscal models for (full) cost recovery of O&M costs,
rehabilitation and new investments.
97. Consider to introduce innovative and creative thinking as competitive element, to

encourage generation of out-of-the-box solutions, in the procurement process for the
next phase.
98. We recommend that from the outset, a multi-disciplinary and independent

International Panel of Experts be appointed (urban planner, architect or landscape
architect, urban flood control engineer, sedimentation expert or geomorphologist,
hydrologist and modeling expert, urban financial analyst, sociologist, community
participation specialist, capacity building specialist, specialist with experience in non-
structural flood control, urban and project economist). The Panel or selected panel
members would visit Indonesia on a scheduled basis to review all project data,
planning reports, designs, etc. and provide input on best international practices as
well as professional evaluation. Ideally, the panel members will be funded through
various donor funding programmes.
99. Excellent collaboration among the Mission Team Members with transparent and open
discussions was the basis for real and pleasant team working. All the mission
members supported this mission report and are ready and available for any
preparatory activities as follow-up of this mission.
Jakarta/Rotterdam 12 April 2012

Mission members:
• Ir. Piet Dircke (Mission leader),

• Ir. Jan T.L. Yap, MSc.
• Ir. Budihardjo Sukmadi, MSI
• Ir. Arie Djunardi Djoekardi, MA
• Ir. Widagdo, Dipl. HE
Annex A
List of Officials/Institutions visited

List of Officials/Institutions visited
No Name Position Institution

1 Moh. Maliki Moersid Head International Cooperation Ministry of Public Works
2 Moh. Hasan Head Research Development Agency Ministry of Public Works
3 Taufik Widjoyono Head of Planning and International Cooperation Ministry of Public Works
4 Suprapto Technical Planning, Directorate of Rivers Ministry of Public Works

5 Moh. Amron Director General for Water Resources Ministry of Public Works
6 Achmad Harjadi Deputy Governor of DKI Jakarta, Spatial Planning DKI Jakarta
and Environment
7 Sarwo Handayani Head of BAPPEDA DKI Jakarta
8 Tauchid Tjakraamidjaja Head Regional Environmental Management Board DKI Jakarta
9 Eri Basworo Head Public Works Department DKI Jakarta

10 Peter de Vries Royal Netherlands Embassy RNE
11 M. Eko Rudianto Director of Spatial Planning for Marine, Coastal and Directorate General for Marine,
Small Islands Coastal and Small Islands
12 Louis Braam Consultant Bappenas for Public, Private Partnership Consultant for BAPPENAS
Transaction
13 Dedy Supriadi Priatna Deputy Minister for Infrastructure BAPPENAS
14 Budi W.Santoso Advisor to the Minister of Poverty Alleviation Coordinating Ministry of
Economic Affairs (Menko Ekon)
15 Purba Robert Sianipar Assistant to Deputy Minister for Water Resources Menko Ekon
Infrastructure
16 Edib Muslim Head Communication and Public Relation Division Menko Ekon
17 Heru Waluyo Koesworo Assistant Deputy Minister Regional and Sectoral State Ministry for Environment
Policy Assessment (KLH)
18 Arie Setiadi Murwanto Director PusAir PUSAIR
19 Fransisca Mulyantari Head Programming and Cooperation PUSAIR
Annex B
Mission’s Agenda
Coordinating Meeting Agenda

Monday, 23 January 2012
07.30 : Excursion to coast
13.00 : Meeting with JCDS team
Tuesday, 24 January 2012

08.30 - 09.45 : Moh. Maliki Moersid, Head International Cooperation MPW
10.00 - 12.00 : Moh. Hasan, Head Research Development Agency MPW
13.00 - 14.30 : Taufik Widjoyono, Head of Planning and International Cooperation MPW
15.00 - 16.30 : Moh. Amron, Director General for Water Resources MPW
Suprapto, Technical Planning, Directorate of Rivers MPW
Wednesday, 25 January 2012

09.00 -12.00 : Achmad Harjadi, Deputy Governor of DKI Jakarta, Spatial Planning and
Environment
Sarwo Handayani, Head of Bappeda DKI
Tauchid Tjakraamidjaja, Head Regional Environmental Management
Board DKI
Eri Basworo, Head Public Works Department DKI
14.00 - 17.00 : Peter de Vries, Royal Netherlands Embassy
Thursday, 26 January 2012

08.30 - 11.00 : M. Eko Rudianto, Director of Spatial Planning for Marine, Coastal and
Small Islands of the Directorate General for Marine, Coastal and Small
Islands
11.30 - 14.00 : Louis Braam, Consultant Bappenas for Public, Private Partnership
Transaction
14.30 - 16.00 : Dedy Supriadi Priatna, Deputy Minister for Infrastructure
Friday, 27 January 2012

12.00 - 14.00 : Elmar Bouma - INA
16.00 - 17.00 : Budi W.Santoso, Advisor to the Minister of Poverty Alleviation
Purba Robert Sianipar, Assistant to Deputy Minister for Water Resources
Infrastructure
Edib Muslim, Head Communication and Public Relation Division
Thursday, 2 February 2012

09.30 - 11.00 : Heru Waluyo Koesworo, Assistant Deputy Minister Regional and Sectoral
Policy Assessment (KLH)
Friday, 3 February 2012

09.30 - 11.00 : Arie Setiadi Murwanto, Director PusAir
Fransisca Mulyantari, Head Programming and Cooperation
Annex C
Minutes of Meeting
Minutes of Meeting
The Mission:
Goal:
Strengthen the financial, operational, and institutional feasibility of the JCD Strategy for
adequately reducing the flood risks from the sea.
Objectives:
5. Review results of the JCDS
6. When appropriate, identify more effective alternatives or complementary measures and
approach
7. Identify major components of follow-up activities
8. Recommend on complementary or alternative solutions for the implementation of the JCDS
results
Expected results:
The EOP Review will result in clarity on the following items:
3. Financial, operational and institutional suitability of the JCDS results as the departure points for a
process of coastal development programme for Jakarta,
4. Possible steps needed to enhance the viability of the process
Members of JCDS Review Mission:

1. Prof. Ir. Piet Dircke (Mission Leader)
2. Ir. Jan T.L Yap, MSc.
3. Ir. Widagdo Dipl, HE
4. Ir. Budihardjo Sukmadi, MSI
5. Ir. Arie Djunardi Djoekardi, MA
Discussions were focused around the following issues:

• How far the JCDS study is complete,
• What items/aspects are missing in the study
• Suggestions on next steps to be taken
• Constraints of the presents approach
• How to raise the level of JCDS results from “Hydraulics” to “Economics”
• What factors affect the financial, operational & institutional feasibility of the implementation
phase
• What options for implementation mechanisms can be considered in addition to or instead of
governmental assignments
• Who should operate and manage the flood defence assets/structures after completion of the
works, including operation and maintenance?
• Who should be actively involved and/or supervise the Master Plan Studies activities? Which
organisation should take the lead? Input organisation structure? PMU-PIU concept or existing
organisations that are potential embryos for the required organisations?
.
Tuesday, 24 January 2012
Ministry of Public Works (MPW)
1. Moh. Maliki Moersid, Head International Cooperation

2. Moh. Hasan, Head Research Development Agency
3. Taufik Widjoyono, Head Planning and International Cooperation (representing Secr. General)
4. Moh. Amron, Director General for Water Resources
5. Suprapto, Technical Planning, Directorate of Rivers
Points and issues during the meeting:

• Jakarta’s main issues: Urban floods, dikes, the sea, institutional coordination, waste water
and solid waste management, water supply, land subsidence, poverty, etc;
• Institution important issue to be taken up. Institutional arrangement should be considered
before the next activities. Example: Sunda Street Bridge;
• Social and Operational issues are essential. Communication strategy need to be developed;
• Integrated master plan, e.g. ongoing JUFM Project of the World Bank;
• Possible collaboration among Government of Indonesia, Government of Netherland and
Government of Japan?
• Linkages with Spatial Planning of the city/region/provinces. Metropolitan Priority Areas
(MPA);
• Make project attractive for private investors;
• MPW supports engineering design and construction of physical infrastructure;
• Change priority: Sell opportunities not the threat of flooding;
• Water supply important: consider desalinisation as option for North Jakarta;
• Potential financing architecture to invest in this project;
• To consider water board system;
• Involvement of senior government official/retired minister or president to give a strong
support to this project, promote and become the Project’s Champion, also for political
support;
• There’s an urgent need to issue a ministerial decree or PP about this project.
Wednesday, 25 January 2012
DKI Jakarta Province:
1. Achmad Harjadi, Deputy Governor DKI Jakarta, Spatial Planning and Environment
2. Sarwo Handayani, Head Bappeda
3. Tauchid Tjakraamidjaja, Head Regional Environmental Management Board
4. Eri Basworo, Head Public Works Department

• The Atlas is good, Bappeda could use it as a reference for other sectors;
• For the first stage, a new dike along existing coastline, Bappeda need the new design. Second
stage is proposed to re-design the existing one;
• It is important to have proper river water quality in order to prepare & implement this JCDS;
• Sanitation master plan should be a pre-requisite before construction of the new dike;
• Institution first before the activities and the institution should be involved during planning,
executing, Operation and Maintenance. New institution is required;
• Bappeda DKI is focusing on the improvement of River Water quality and improvement of the
fresh water supply especially from Jatiluhur (on land site), reclamation is under
reconstruction and some need re-planning. Establishment of a reliable database is needed;
• Campaign to keep this project alive (need figure/champion to give strong impression)
• Master plan for improvement: 1. Urban drainage system 2. Polders 3. Dam and Situ (main
focus) 4. Flood from sea 5. River widening;
• The need to establish technical unit or rehabilitation unit in east canal and also a unit to
supervise and monitor in order to guarantee the proper operation of the system;
• Law enforcement should be supported by all levels, not only at the top level;
• Convincing the community that a new dike is needed to protect Jakarta and that there is an
opportunity for economic development.
Thursday, 26 January 2012
Ministry for Marine Affairs and Fisheries:
1. M. Eko Rudianto, Director Spatial Planning for Marine, Coastal and Small Islands of the
Directorate General for Marine, Coastal and Small Islands.

• JCDS team needs to consider the social problem in North Jakarta such as fisherman and small
people who lives nearby. Those kinds of people are often neglected;
• Land subsidence in North Jakarta important issue and need to be solved urgently;
• Coastal environment degradation and resources depletion (mangrove and coral reefs
damage), land based marine pollution and over-fishing;
• Environmental impact analysis, material availability (sand availability), contaminated
sediment during dredging;
• According to marine and coastal law no. 26/2007 (spatial planning) and 27/2007
(management of coastal zone and small island), Government should set the rule 100m on
coastal meadow (the green zone/belt). Pantai Indah Kapuk residence area is supposed to be
a marine protected area;
• First thing to do: Clean water quality and coastal morphology are essential;
• Sedimentation movement should be taken as a consideration too because it will affect other
provinces and cities e.g. Tangerang and Bekasi. Maybe also affect sedimentation in the
entrance of Tanjung Priok harbour;
• Natural heritage Sunda Kelapa?
• MMAF suggest to communicate this JCDS project to Badan Koordinasi Penataan Ruang
Nasional;
• DG Marine, Coastal and Small islands (MMAF-Ministry of Marine Affairs and Fisheries)
suggested to be involved in the next phases of the project.
Date: Thursday, 26 January 2012
Louis Braam, Consultant Bappenas for Public, Private Partnership Transaction

• PPP Infrastructure’s Law and Regulation exist;
• Complex to realise PPPs, look for simple structures;

• In the Netherlands it is possible to have government subsidy and guarantee. In Indonesia it is
much more difficult, especially related with financial risk;
• Land reclamation can be managed and controlled through spatial planning;
• Supervision on quality and income through financial and ax instruments;
• Potential problems: Cash flow synchronisation and law enforcement;
• Essential are investment plans, realisation plans and management;
• Need Capacity Building programmes, economic inventarisation and stakeholders mapping;
• Institutional framework is essential for proper realisation of PPPs, examples laws and licenses
as control instruments;
• PPP in Public Infrastructure is not yet THE magic solution, it is much more complicated.
Date: Thursday, 26 January 2012
Bappenas (State Agency for Development Planning):
1. Dedi Supriadi Priatna, Deputy Minister for Infrastructure

• The big picture of java , the future plan of (north) coast of Java
• Initial study of Java, the overall plan
• Jakarta’s big concerned: Fresh water pond (recycle water)
• Tanjung Priok port will be expand to Kalibaru under Pelindo 2, should not affect the port
development, and if possible it should be integrated with this project
• Kepres or President Decree is the key for the Sunda strait development, so it is necessary to
prepare the draft for JCDS project. Draft should be ready within 2 weeks to support the
project
• Leading institutes are Bappenas and Menko, discussion will be initiated soon
• Coordination meetings will be organized soon and will discuss about the status report
Friday, 27 January 2012

Coordinating Ministry for Economic Affairs (Menko Ekon):
1. Budi W. Santoso, Advisor to the Minister for Poverty Alleviation

2. Purba Robert M. Sianipar, Assistant to Deputy Minister for Water Resources Infrastructure
3. Edib Muslim, Head Communication and Public Relation Division

a) Focal issue is Water Integrity: not only flood, but also the side effects it induced, such as
public health, water quality and social aspects of water usage;
b) Menko was not involved in the JCDS activities. It was informed only in November during the
water week in Amsterdam.
c) The information received on JCDS prompted Menko to request the ongoing MPA
(Metropolitan Priority Areas) studies to include the JCDS concepts into their plans,
d) The umbrella national master plan is the MP3EI 2011-2025, of which MPA is a component of.
This implies that the scheduled JCDS follow-up activities and implementation should be
scheduled for completion in 2025.
e) The JCDS is a strategic study. More detailed elaboration is required during planning phase
taking the time horizon of 2025 into consideration and should be in-line with the MP3EI and
MPA for Greater Jakarta.
f) Menko Ekon shall try to include the JCDS elements in the MP3EI program.
g) Institutional arrangement for implementation, operation and management of the JCD
infrastructure is essential, and is an urgent issue for clarification before proceeding.
h) The institution of organisation in charge with the preparation, planning, programming,
implementation, operation and management of the infrastructure should be a national
government institute, for example Menko or Bappenas. This will be finalised between
Bappenas and Menko. Most probably Menko will be assigned for this purpose.
i) JCDS programmes should be integrated with the other programmed and/or ongoing master
plans and program scheduling should be synchronised with the other programmes and
implementation schedules.
j) Uncontrolled groundwater exploitation is indicated as the main cause of land subsidence of
North Jakarta. Actions needed to control groundwater abstraction. Hopefully land
subsidence can be reduced or even stopped.
k) Take the function and role of the Sunda Kelapa harbour into consideration as a heritage area,
and to secure its survival.
l) Secured water supply for the northern area of Jakarta and the new reclaimed area is
essential.
m) Waste water and solid waste management is poor and need to be controlled in order to
create a healthy environment in the new reclaimed areas and future storage lakes.
n) Suggest to consider carefully whether the system in the Jakarta Bay will become a closed or
open system.
o) An assessment of things that need to be done should be made, including the institutional
arrangement, and role sharing between the government and private sector (PPP).
p) Menko should definitely be actively involved in the next activities related to JCDS.
q) It is better to have a team of prominent national statesman to promote and support the JCD
activities rather than a one-man champion,
r) Role of private sector essential in the implementation, operation and management phases.
Thursday, 2 February 2012
State Ministry of Environment (KLH)
1. Heru Waluyo Koesworo, Assistant Deputy Minister Regional and Sectoral Policy Assessment
• Basic is the Law on Spatial Planning 32/2009: Protection of the environment, and need for an
Strategic Environmental Assessment (SEA);
• SEA for DKI Province exists. Need a more detailed SEA for Jakarta Bay;
• Keys are Sustainability and Integration;
• In Jakarta Bay there are power plants, telecommunication cables. Power plants need Cooling
Water;
• Many sectors involved and influencing one another. There is no optimal solution. Need to
facilitate for the best compromise between the sectors;
• Land-subsidence: main cause is groundwater over-exploitation;
• Next phase include development of policy guidelines on environmental awareness in the

Jakarta Bay;
• Change of mindset required both at government and civil society levels;
• SEA should include institutional setting and its implementation during the various phases of
the project, including operation and management of the asset;
• Take social impacts of the interventions in the bay into consideration in the next phase;
• Sedimentation from the river: impact maybe small, but need analyses on river sediment and
coastal morphology as result of the new infrastructure;
• Next phase: KLH would like to become a member of the Steering Committee.
Friday, 3 February 2012
Hydraulic Research Centre (PusAir)
1. Arie Setiadi Murwanto, Director PusAir

2. Fransisca Mulyantari, Head Programming and Cooperation

• JCDS should be integrated in MPAs. Now all plans are fragmented;
• Presidential decree needed to integrate all the master plans;
• Institutional aspects received less attention. Essential element for next phase of the project.
Success or failure of the project strongly depends on the strength of the institution;
• Environmental analysis and social impacts in the ToR for the next phase;
• Coastal Morphology essential part in the next phase;
• Dumping of dredged spoil and borrow material for embankment construction;
• Input PUSAir in JCDS study in the development of the Atlas only;
• Who is the owner of the computer programmes, simulations and data collected in the
project? Should be an Indonesian institution at central level, e.g. PUSAir as central
knowledge centre.
• Handover, training of staff in operating the programmes essential. Should be addressed in
the next phase and part of the ToR;
• Involvement of PUSAir in next phase as Knowledge Management Centre of the Central
Government.

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Jakarta Coastal Development Strategy

Final Mission Report

Programme Water Mondiaal

2 The Mission’s Terms of Reference

4 Approach and Methods

5 Findings and Assessment

A. List of people/institutions visited

1. A bilateral cooperation framework between the Government of Indonesia (GoI) and

2. Within the bilateral cooperation framework a project digest was formulated in

reports, i.e. an Atlas, Agenda and Aturan-main (= Rules-of-the-game), consistent

8. In view the urgency of having adequate measures to safeguard an acceptable flood

9. The EoP Review mission was composed of

2 The Mission’s Terms of Reference

14. Expected results:

15. Scope of Work:

commercial areas, leading to severe reductions on retention capacity and increases

Land subsidence due to uncontrolled groundwater abstraction

Urban Drainage and Flood Issues

Urban Development and Management

Institution and Management Issues

4 Approach and Methods

A list of institutions visited and officials interviewed is attached in Annex A.

5 Findings and Assessment

50. The Aturan Main is mainly considered as an overview of normative

52. Status of the JCDS Reports and project are unclear.

55. A Zero-option or do-nothing scenario is missing.

57. The existing sea-wall/flood protection system needs routine monitoring to

INTEGRATION AND SYNCHRONISATION

58. Integration and synchronisation with other sectoral master plans is

61. The Technical analysis presented in the Agenda is considered a wake-up

64. Construction aspects of offshore construction works are complicated and

66. The core problem of land-subsidence and groundwater extraction is

Groundwater extraction and land subsidence can only be stopped if an adequate,

72. It is essential that all proposed solutions and mitigation measures

76. The issue of sustainability of any engineering design standard is a major

77. Establishment of an agency, organisation, institution or committee (inter-

This new institution is responsible—under a project funding approach—to operate

78. A Presidential Decree to establish such an institute is required.

80. Encouragement of the private sector to invest in opportunities and, if

84. A project promoter, e.g. a prominent political authority or a commission of “wise”

for the poorer coastal communities. An essential element here is to restore a

b. Continue and expand follow-up activities/studies/research for the development

c. Institutional arrangement, responsibilities and authority, organisation,

97. Consider to introduce innovative and creative thinking as competitive element, to

98. We recommend that from the outset, a multi-disciplinary and independent

Jakarta/Rotterdam 12 April 2012

• Ir. Piet Dircke (Mission leader),

List of Officials/Institutions visited

List of Officials/Institutions visited

No Name Position Institution

4 Suprapto Technical Planning, Directorate of Rivers Ministry of Public Works

9 Eri Basworo Head Public Works Department DKI Jakarta

Coordinating Meeting Agenda

Tuesday, 24 January 2012

Wednesday, 25 January 2012

Thursday, 26 January 2012

Friday, 27 January 2012

Thursday, 2 February 2012

Friday, 3 February 2012

Fransisca Mulyantari, Head Programming and Cooperation

Members of JCDS Review Mission:

Discussions were focused around the following issues:

Tuesday, 24 January 2012

Ministry of Public Works (MPW)