Japan's Official Development Assistance (ODA) aims at creating value through cooperation between development partners and recipient countries. As the target of ODA is a huge country with many elements and stakeholders, it is difficult to identify the issues to be addressed, and hence, the ODA's mission can often be very ambiguous and complicated. To create value and reach desired targets in the case of ambiguous missions, in this paper, we have developed a model for program integration management and key criteria for program profiling management. We also discuss the role of development partners. For this purpose, this paper analyzes the case of regional development through value addition in the agriculture sector in Lam Dong Province of the Socialist Republic of Vietnam, supported by the Japan International Cooperation Agency (JICA). Through the case study, it becomes clear that program owner needs to conduct many attempts and to monitor the change of their own situation to tackle with such deadlocked difficult problems. The changes are caused by the impact of attempts and general circumstance. We also discuss the necessity of innovative actions to breakthrough the deadlocked problems, and supports from outsiders such as development partners are helpful to realize the innovation.Keywords: ODA, Ambiguous Mission, Complexity 3S-Model, Scenario Development, Innovation