Ex-post Evaluation

1. Outline of the Project

Country:

Indonesia

Project title:

The Project for Development of the Urban Fire Prevention and Fire Fighting System (Phase III)

Issue/Sector:

General Administration

Cooperation Scheme:

Grant Aid

Division in Charge:

Grant Aid Management Department

Total Cost:

466 million yen

Period of Cooperation

FY 1995

Partner Country’s Implementing Organization: Directorate of Urban Area (previously Directorate of Public Administration and Regional Autonomy), urban departments, city fire departments

Supporting Organization in Japan:

Related Cooperation:

1-1 Background of the Project

While the sudden economic growth in Indonesia sparked a rise in the number of multi-story and high-rise buildings, the cities are also very vulnerable to fires due to the concentrated population, leading to an expansion in the dense regions packed with small-scale residences and slum areas--areas mixing factories and residences, and warehouses storing dangerous substances in congested areas. It was an extremely important issue to establish fire prevention systems in the cities, but there was almost no progress in developing such a system in an organized approach due to sudden urbanization and inadequate budgets. Accordingly, the government of Indonesia established a plan to supply fire trucks which were appropriate to the weak regional fire prevention system even lacking fire hydrants, and requested the government of Japan to provide Grant Aid.

1-2 Project Overview
To improve disaster and fire prevention systems in the dense regions by providing 22 fire trucks targeting 11 key cities.

(1) Overall Goal
Damage from fires is reduced and the safety of the targeted areas is ensured.

(2) Project Purpose
A fire prevention system in congested areas is set up by supplying fire trucks.

(3) Outputs
1) Appropriate fire-fighting equipment (fire trucks) is provided to the targeted areas.
2) The spread of fire damage due to insufficient equipment is reduced.
3) Fire-fighting equipment is used and maintained appropriately and the maintenance budget is decreased.

(4) Inputs

Japanese Side:

Equipment (11 cities) 466 million yen

2. Evaluation Team

Members of Evaluation Team

Tomas Widodo,
Agus Wahyu Darmayanto (MCI)
PT. MITRAPACIFIC CONSULINDO INTERNATIONAL

Period of Evaluation

January 14, 2003 – February 22, 2003

Type of Evaluation:

Ex-post Evaluation by Overseas Office

3. Results of Evaluation

3-1 Summary of Evaluation Results

(1) Impact
Although it is difficult to quantify the impact, the fire trucks procured by the project are used frequently in the targeted areas to put out fires. They are also used to help neighboring cities, and help the fire extinguishing systems in a wide-spread area. In particular, the trucks with foam fire extinguishing apparatus are used to put out general fires, but they can also be used to put out fires involving dangerous substances such as gas filling stations. They can also be used as pumping trucks, so the efficiency of their utilization is higher than that of pumping trucks. It is the most appropriate vehicle for urban regions that are susceptible to fires, such as the targeted regions.

The impact achieved by the project cannot be specified due to the scale of the input as the project targeted eleven major cities in Indonesia including Jakarta city with such a small population of over 10 million. In addition, the local environment also has a great influence on the fire prevention system and fire extinguishing. The water supply is the most essential part of fire protection in the fire prevention system. Jakarta has almost no fire hydrants. The water supply comes from rivers and the ocean, but the water level of the seven to eight small rivers running through the city cannot be used, due to the shortage of water during the dry season. In some cases when trying to put out a fire, there are so many cars parked along the road and business quarters that the fire trucks cannot pass. Jakarta also has perpetual traffic jams, which are consistently worsening.

(2) Sustainability
Indonesia’s fire prevention system is not the same in all prefectures or cities, and depends on the attitude of the local governments. The government does not have an auxiliary system to complement the fire prevention equipments, instead the local government supplies fire trucks. Since there is no standard in stipulating the required fire-fighting capacity, the fire prevention system is conducted within financial resources of the local government.

After the project was completed, there was no change in the organization of the fire prevention units under the management of the local governments and fire departments, in terms of fire fighting and fire prevention. However, it was not possible to increase the number of firefighters due to Jakarta’s policy of “zero growth (status quo)” and thus there was some organizational restriction. There are 1,655 firefighters in Jakarta, 83 in Denpasar, 78 in Semarang, 282 in Surabaya, 24 in Pontianak, 53 in Yogyakarta, and 42 in Makasar. The number of fire fighters is not sufficient in all the cities.

It depends on the fire companies to complement for the shortage of fire fighters. In reality, they request the community fire brigade volunteers for backups. Under these circumstances, the sustainability is low.

Through the project, fire trucks were provided to eleven major cities. Among the 22 trucks equipped, only one truck which is a fire-retardant foam apparatus in Jakarta is out of use due to a power takeoff problem. However, there are no problems with the other 21 trucks as they are able to use them appropriately due to the similar operation of the existing trucks.

The fire departments are completely responsible for the maintenance of the trucks. Each fire department has its own maintenance division, and conducts routine equipment inspections. Jakarta’s fire department’s plant has a vehicle repair division, an equipment repair division and a maintenance division, and handles repairs and overhauls.

The fire-fighting units’ budget depends on the scale of the unit and the financial resources of the local government, but in general 70% of the budget is allocated for personnel expenses, and about 20% goes to equipment maintenance and spare parts. Therefore, the budget for strengthening the fire fighting activities and system is limited.

3-2 Factors that promoted realization of effects

(1) Factors Concerning the Planning
The operation of the fire trucks procured was similar to the existing one. Hence, most of the trucks have continued to be used till today.

(2) Factors Concerning the Implementation Process
N/A

3-3 Factors that impeded realization of effects

(1) Factors Concerning the Planning
N/A

(2) Factors Concerning the Implementation Process
Reducing the length of time takes to put out a fire depends more on the scale of the fire, the availability of water and the quality of the fire than it does on firefighting equipment. The shortage of water during the dry season, traffic jams, the narrow roads, the building design and the high population density are all factors that inhibit the achievement of the overall goal.

3-4 Conclusion

The equipment donated in the project was operated almost without any problems. However it is difficult in general to quantify the direct impact on damage only by the equipment donated through the project. It rather depends on external conditions such as the scale of the fire, the availability of water, the quality of the fire, traffic jams, the width of roads and the design of buildings.

In terms of sustainability, although there are some future tasks as procuring spare parts, the firefighting equipment provided is maintained and used with no difficulty.

3-5 Recommendations

(1) To reduce damage from fire hazards, fire trucks should be equipped. In addition, it should be advisable to add more firefighters and organize community fire fighting volunteers to facilitate firefighting activities at local sites.

(2) Although there are no significant problems so far, it is crucial to improve the maintenance ability of cars and to foster mechanics on fire fighting equipment.

3-6 Lessons Learned

(1) Supplying firefighting trucks is not enough to strengthen the city fire prevention system. Therefore, with the rapid urbanization it is advisable to build up a fire prevention system including a firefighting system and to strengthen human resource training and maintenance.

(2) It would create an example to implement comprehensive assistance for one city with high urgency and to plan and design it as a model for city fire prevention in a recipient country.