30% by 2029: Indonesia's Producer Packaging Waste Reduction Targets

Indonesia's Extended Producer Responsibility (EPR) system establishes one of Southeast Asia's most ambitious packaging waste reduction targets: a 30% reduction by 2029 compared to baseline waste generation levels. This target, mandated by PERMENLHK 75/2019, applies to manufacturers, importers, food service businesses, and retailers across three key sectors. The regulation represents a fundamental shift in waste management policy, moving responsibility from municipal governments to the businesses that introduce packaged products into the market. This article examines the regulatory architecture of Indonesia's producer waste reduction targets, the methodology for establishing baselines, the specific materials targeted for reduction, and the implementation roadmap that guides compliance from 2020 through 2029.

The Legal Architecture of Producer Waste Reduction

The foundation for Indonesia's producer waste reduction targets originates from UU 18/2008 on Waste Management, which established the principle that producers bear responsibility for packaging waste. Pasal 15 of that Law states that producers are obligated to manage packaging and products that generate waste.

PP 81/2012 on Management of Household Waste and Household-Type Waste provided the implementing framework. Pasal 15 of PP 81/2012 established the legal requirement for staged EPR implementation:

"Penggunaan bahan baku produksi dan kemasan yang dapat diurai oleh proses alam, yang menimbulkan sesedikit mungkin sampah, dan yang dapat didaur ulang dan/atau diguna ulang sebagaimana dimaksud dalam Pasal 12 sampai dengan Pasal 14 dilakukan secara bertahap persepuluh tahun melalui peta jalan."

Translation: The use of production raw materials and packaging that can be decomposed by natural processes, that generate as little waste as possible, and that can be recycled and/or reused as referred to in Articles 12 through 14 shall be implemented in stages every ten years through a roadmap.

This provision mandated that the Minister of Environment develop a "peta jalan" (roadmap) for implementing producer waste reduction obligations in 10-year cycles. PERMENLHK 75/2019 fulfilled this mandate by creating the first EPR roadmap covering 2020-2029.

The regulation was formally titled "Peraturan Menteri Lingkungan Hidup dan Kehutanan Republik Indonesia Nomor P.75/MENLHK/SETJEN/KUM.1/10/2019 tentang Peta Jalan Pengurangan Sampah oleh Produsen" (Ministerial Regulation on the Roadmap for Waste Reduction by Producers). It was issued on October 22, 2019, providing producers with three months to prepare before the 2020 implementation period began.

The 30% Reduction Target: Core Provision

PERMENLHK 75/2019 Pasal 2 establishes the quantitative target that defines Indonesia's EPR system:

"(1) Peraturan Menteri ini mengatur tentang Peta Jalan pengurangan Sampah oleh Produsen periode tahun 2020 sampai dengan tahun 2029.

(2) Peta jalan sebagaimana dimaksud pada ayat (1) dilaksanakan untuk mencapai target pengurangan sampah oleh Produsen sebesar 30% (tiga puluh persen) dibandingkan dengan jumlah timbulan Sampah di tahun 2029."

Translation: (1) This Ministerial Regulation governs the Roadmap for Waste Reduction by Producers for the period 2020 through 2029. (2) The roadmap as referred to in paragraph (1) is implemented to achieve a producer waste reduction target of 30% (thirty percent) compared to waste generation levels in 2029.

This provision creates a fixed-period target structure. The 30% reduction is measured against projected waste generation levels in 2029, not against current or past generation rates. This approach requires producers to offset projected growth in packaging waste while achieving absolute reductions.

The target structure accounts for business growth. A manufacturer that projects 100 tons of packaging waste in 2029 based on business-as-usual practices must reduce that figure to 70 tons through EPR measures. This prevents producers from claiming credit for reductions that simply reflect business contraction or market changes unrelated to environmental performance.

The 30% figure aligns with Indonesia's national waste reduction goals. PERPRES 97/2017 on the National Policy and Strategy for Household Waste Management established targets of 30% waste reduction and 70% waste handling by 2025. PERMENLHK 75/2019 extends this framework specifically to producer-generated packaging waste through 2029.

Defining "Produsen": Who Bears EPR Obligations?

PERMENLHK 75/2019 Pasal 1(2) provides a broad definition of "Produsen" that extends beyond traditional manufacturing:

"Produsen adalah pelaku usaha yang memproduksi barang yang menggunakan kemasan, mendistribusikan barang yang menggunakan kemasan dan berasal dari impor, atau menjual barang dengan menggunakan wadah yang tidak dapat atau sulit terurai oleh proses alam."

Translation: Producers are business actors that produce goods using packaging, distribute goods using packaging derived from imports, or sell goods using containers that cannot or are difficult to decompose through natural processes.

This definition creates three categories of responsibility:

1. Manufacturers who produce packaged goods
2. Importers/distributors who bring packaged goods into Indonesia
3. Retailers who sell goods using non-biodegradable containers

The definition strategically captures the entire supply chain. Manufacturers bear primary responsibility for packaging design and material selection. Importers assume responsibility for foreign products entering the Indonesian market. Retailers bear responsibility for packaging added at the point of sale, such as shopping bags and food service containers.

The inclusion of importers addresses a critical gap in EPR systems that focus solely on domestic manufacturers. Indonesia imports substantial quantities of packaged consumer goods. By assigning EPR obligations to importers and distributors, PERMENLHK 75/2019 ensures that foreign products face the same waste reduction requirements as domestically manufactured goods.

Three Producer Sectors: Manufacturing, Food Service, and Retail

PERMENLHK 75/2019 Pasal 3 categorizes producers into three sectors, each with specified subsectors:

"(1) Produsen sebagaimana dimaksud dalam Pasal 2 meliputi pelaku usaha dan/atau kegiatan di bidang:
a. manufaktur;
b. jasa makanan dan minuman; dan
c. ritel."

Translation: Producers as referred to in Article 2 include business actors and/or activities in: (a) manufacturing; (b) food and beverage services; and (c) retail.

Manufacturing Sector

Pasal 3(2) identifies three manufacturing subsectors:

"Bidang manufaktur sebagaimana dimaksud pada ayat (1) huruf a meliputi:
a. industri makanan dan minuman;
b. industri barang konsumsi (consumer goods); dan
c. industri kosmetik dan perawatan tubuh (personal care)."

Translation: The manufacturing sector as referred to in paragraph (1) letter a includes: (a) food and beverage industry; (b) consumer goods industry; and (c) cosmetics and personal care industry.

These three subsectors represent the largest sources of consumer packaging waste in Indonesia. Food and beverage manufacturers produce bottles, cans, cartons, wrappers, and labels. Consumer goods manufacturers produce packaging for household products, cleaning supplies, and other FMCG items. Cosmetics and personal care manufacturers produce bottles, tubes, jars, and dispensers for shampoos, lotions, cosmetics, and toiletries.

Manufacturing EPR obligations focus on upstream interventions: designing packaging for recyclability, selecting materials that minimize environmental impact, reducing packaging weight and volume, and incorporating recycled content into new packaging.

Food and Beverage Services Sector

Pasal 3(3) specifies five food service subsectors:

"Bidang jasa makanan dan minuman sebagaimana dimaksud pada ayat (1) huruf b meliputi:
a. rumah makan; b. kafe; c. restoran; d. jasa boga; dan e. hotel."

Translation: The food and beverage services sector as referred to in paragraph (1) letter b includes: (a) eateries; (b) cafes; (c) restaurants; (d) catering services; and (e) hotels.

This sector generates substantial packaging waste through takeout and delivery services, single-use plates and utensils, beverage containers, and in-room dining operations in hotels. The COVID-19 pandemic significantly increased packaging waste from this sector as delivery and takeout services expanded.

Food service EPR obligations emphasize reduction at the point of service: eliminating single-use plastics, providing reusable dining ware for dine-in service, implementing deposit-return systems for takeout containers, and offering customers options to decline unnecessary packaging and utensils.

Retail Sector

Pasal 3(4) identifies three retail subsectors:

"Bidang ritel sebagaimana dimaksud pada ayat (1) huruf c meliputi:
a. Pusat Perbelanjaan;
b. Toko Modern; dan
c. Pasar Rakyat."

Translation: The retail sector as referred to in paragraph (1) letter c includes: (a) Shopping Centers; (b) Modern Stores; and (c) Traditional Markets.

Pusat Perbelanjaan (Shopping Centers) are defined in Pasal 1(3) as areas consisting of one or several buildings, erected vertically or horizontally, sold or rented to business actors or self-managed for trading goods.

Toko Modern (Modern Stores) are defined in Pasal 1(4) as stores with self-service systems selling various types of retail goods in the form of minimarkets, supermarkets, department stores, hypermarkets, or wholesale stores.

Pasar Rakyat (Traditional Markets) are defined in Pasal 1(5) as markets built and managed by government, local government, private sector, state-owned enterprises, or regional-owned enterprises, with business premises in the form of shops, kiosks, stalls, and tents owned/managed by small and medium traders with small-scale businesses and capital.

The inclusion of traditional markets recognizes that EPR obligations must extend beyond modern retail chains. Traditional markets generate substantial packaging waste through plastic shopping bags, produce wrapping, and vendor-provided containers.

Retail EPR obligations focus on point-of-sale packaging: reducing or eliminating plastic shopping bags, providing reusable bag alternatives, minimizing wrapping and padding materials, and establishing collection systems for packaging waste generated within retail premises.

Four Target Materials: Plastic, Aluminum, Glass, and Paper

PERMENLHK 75/2019 Pasal 4 identifies the packaging materials targeted for reduction:

"(1) Pengurangan Sampah dilakukan terhadap produk, kemasan produk, dan/atau wadah yang:
a. sulit diurai oleh proses alam;
b. tidak dapat didaur ulang; dan/atau
c. tidak dapat diguna ulang.

(2) Produk, kemasan produk, dan/atau wadah sebagaimana dimaksud pada ayat (1) meliputi:
a. plastik;
b. kaleng alumunium;
c. kaca; dan
d. kertas."

Translation: (1) Waste reduction is conducted for products, product packaging, and/or containers that: (a) are difficult to decompose through natural processes; (b) cannot be recycled; and/or (c) cannot be reused. (2) Products, product packaging, and/or containers as referred to in paragraph (1) include: (a) plastic; (b) aluminum cans; (c) glass; and (d) paper.

Plastic

Plastic packaging represents the primary target of Indonesia's EPR system. Indonesia is one of the world's largest sources of marine plastic pollution, with an estimated 0.48-1.29 million metric tons of plastic entering oceans annually from Indonesian sources. Plastic packaging includes bottles, bags, wrappers, films, containers, and polystyrene foam.

The regulation targets plastic packaging that is "sulit diurai oleh proses alam" (difficult to decompose through natural processes). This encompasses most conventional plastics, which persist in the environment for hundreds of years. Priority plastics include polyethylene (PE), polypropylene (PP), polyethylene terephthalate (PET), and polystyrene (PS).

Aluminum Cans

Aluminum beverage cans represent a significant component of packaging waste despite their recyclability. Aluminum production requires substantial energy, making recycling economically attractive. However, Indonesia's informal waste sector collects only a portion of aluminum cans, with many ending up in landfills or the environment.

The regulation specifically targets "kaleng alumunium" rather than all aluminum packaging. This focus reflects the beverage industry's widespread use of aluminum cans for carbonated drinks, energy drinks, and beer. Aluminum food containers and foil packaging fall under broader EPR obligations.

Glass

Glass packaging includes bottles and jars used for beverages, condiments, cosmetics, and pharmaceuticals. While glass is recyclable and inert in the environment, glass production requires substantial energy, and broken glass poses safety hazards in waste streams.

Glass beverage bottles in Indonesia have historically operated under informal reuse systems, where bottles are collected, washed, and refilled. However, the shift toward single-use packaging has undermined these systems. EPR obligations aim to restore reuse systems or establish recycling infrastructure for glass packaging.

Paper

Paper packaging includes cardboard boxes, paperboard cartons, labels, and wrapping paper. While paper is biodegradable and widely recyclable, paper production involves deforestation concerns, water consumption, and chemical processing.

The regulation targets paper packaging that "tidak dapat didaur ulang" (cannot be recycled). This includes wax-coated paper, laminated paper-plastic composites, and paper contaminated with food residues. Pure paper and cardboard are generally not EPR priorities, but composite materials that combine paper with plastics or aluminum (such as drink cartons) fall under EPR obligations.

Baseline Timbulan Sampah: Establishing the Measurement Reference

The effectiveness of the 30% reduction target depends entirely on accurate baseline establishment. PERMENLHK 75/2019 Pasal 1(10) defines "Baseline Timbulan Sampah":

"Baseline Timbulan Sampah adalah angka timbulan sampah yang disusun berdasarkan tingkat, status, kecenderungan, dan proyeksi timbulan sampah dalam periode waktu tertentu, dan dijadikan faktor pembanding atas capaian pengurangan sampah."

Translation: Baseline Waste Generation is the waste generation figure compiled based on level, status, trends, and projections of waste generation over a specific time period, and used as a comparison factor for waste reduction achievements.

This definition creates a sophisticated baseline methodology that accounts for business growth and market trends. Baselines are not simply historical generation rates but projected future rates based on business plans, market growth, and production capacity.

The baseline methodology involves four components:

1. Tingkat (Level): Current waste generation rates per unit of production or sales
2. Status (Status): Current business scale, production capacity, and market position
3. Kecenderungan (Trends): Historical growth patterns and market trajectory
4. Proyeksi (Projections): Forecasted business expansion and waste generation through 2029

This approach prevents producers from gaming the system. A company cannot establish an artificially high baseline by temporarily increasing packaging waste and then claiming credit for reverting to normal levels. Baselines must reflect legitimate business-as-usual projections.

PERMENLHK 75/2019 Pasal 10(1)(b) requires producers to establish baselines as part of their EPR planning process. The baseline becomes the reference point against which annual progress is measured. Producers must document the methodology used to establish baselines and provide supporting data to environmental authorities.

The 2020-2029 Roadmap: Staged Implementation

PERMENLHK 75/2019 Pasal 5 references the detailed implementation roadmap:

"Peta jalan pengurangan Sampah oleh Produsen sebagaimana dimaksud dalam Pasal 2, Pasal 3, dan Pasal 4 tercantum dalam Lampiran I yang merupakan bagian tidak terpisahkan dari Peraturan Menteri ini."

Translation: The roadmap for waste reduction by producers as referred to in Articles 2, 3, and 4 is contained in Attachment I, which is an inseparable part of this Ministerial Regulation.

Lampiran I (Attachment I) provides sector-specific roadmaps that break the 30% target into annual milestones. The roadmap structure follows a staged approach:

Phase 1 (2020-2022): Preparation and Pilot Programs
- Baseline establishment and documentation
- EPR planning document submission
- Pilot programs for waste collection and recycling
- Initial reduction targets of 3-5% per sector

Phase 2 (2023-2025): Scaling and Infrastructure Development
- Expansion of collection and recycling infrastructure
- Partnership development with waste banks and recyclers
- Intermediate reduction targets of 10-15% per sector
- Annual monitoring and reporting requirements

Phase 3 (2026-2029): Full Implementation and Target Achievement
- Complete infrastructure deployment
- Achievement of 30% reduction target by 2029
- Transition to second EPR cycle (2030-2039)
- Evaluation and adjustment of target methodologies

This staged approach recognizes that building EPR infrastructure requires time. Early years focus on planning, baseline establishment, and pilot programs. Middle years emphasize infrastructure scaling and partnership development. Final years drive full implementation and target achievement.

Three Reduction Methods: Limitation, Recycling, and Reuse

PERMENLHK 75/2019 Pasal 6 specifies three methods for achieving waste reduction targets:

"(1) Pengurangan Sampah sebagaimana dimaksud dalam Pasal 4 dilakukan melalui:
a. pembatasan timbulan Sampah;
b. pendauran ulang Sampah; dan
c. pemanfaatan kembali Sampah."

Translation: (1) Waste reduction as referred to in Article 4 is conducted through: (a) limitation of waste generation; (b) recycling of waste; and (c) reuse of waste.

Pembatasan Timbulan Sampah (Waste Generation Limitation)

Pasal 6(2) defines waste generation limitation:

"Pembatasan timbulan Sampah sebagaimana dimaksud pada ayat (1) huruf a dilakukan dengan cara:
a. menggunakan produk, kemasan produk, dan/atau wadah yang mudah diurai oleh proses alam dan yang menimbulkan Sampah sesedikit mungkin; dan/atau
b. tidak menggunakan produk, kemasan produk, dan/atau wadah yang sulit diurai oleh proses alam."

Translation: Limitation of waste generation as referred to in paragraph (1) letter a is conducted by: (a) using products, product packaging, and/or containers that are easily decomposed by natural processes and that generate as little waste as possible; and/or (b) not using products, product packaging, and/or containers that are difficult to decompose by natural processes.

This method emphasizes source reduction. Producers achieve reductions by eliminating unnecessary packaging, switching to biodegradable or compostable materials, reducing packaging weight and volume, or eliminating packaging entirely where feasible.

Examples include:

• Replacing plastic shopping bags with paper bags or reusable bags
• Switching from polystyrene foam to biodegradable alternatives
• Reducing bottle weight through lightweighting technology
• Eliminating secondary packaging where primary packaging is sufficient
• Offering bulk purchasing options that minimize per-unit packaging

Pendauran Ulang Sampah (Waste Recycling)

Pasal 6(3) defines waste recycling:

"Pendauran ulang Sampah sebagaimana dimaksud pada ayat (1) huruf b dilakukan dengan cara:
a. menggunakan bahan baku produksi yang dapat didaur ulang; dan/atau
b. menggunakan bahan baku produksi hasil daur ulang."

Translation: Waste recycling as referred to in paragraph (1) letter b is conducted by: (a) using production raw materials that can be recycled; and/or (b) using recycled raw materials in production.

This method emphasizes circular economy principles. Producers design packaging for recyclability and incorporate recycled content into new packaging. This creates demand for recycled materials and closes the loop on packaging waste.

Examples include:

• Designing PET bottles for easy recycling by avoiding mixed materials
• Using recycled PET (rPET) content in new bottle production
• Designing aluminum cans for closed-loop recycling
• Using recycled cardboard in shipping boxes
• Establishing collection systems to capture packaging waste for recycling

Pemanfaatan Kembali Sampah (Waste Reuse)

Pasal 6(4) defines waste reuse:

"Pemanfaatan kembali Sampah sebagaimana dimaksud pada ayat (1) huruf c dilakukan dengan cara menggunakan bahan baku produksi yang dapat diguna ulang."

Translation: Waste reuse as referred to in paragraph (1) letter c is conducted by using production raw materials that can be reused.

This method emphasizes reusable packaging systems. Producers design packaging for multiple use cycles, establish deposit-return systems to recover packaging, and implement refill programs that allow consumers to reuse containers.

Examples include:

• Glass beverage bottle deposit-return systems
• Reusable plastic crates for product distribution
• Refillable cosmetic and personal care containers
• Reusable shopping bags provided by retailers
• Standardized container systems that enable cross-brand reuse

Producer Obligations: Collection, Processing, and Residue Management

Achieving waste reduction targets requires producers to establish collection and processing infrastructure. PERMENLHK 75/2019 Pasal 7 mandates:

"(1) Pendauran ulang dan pemanfaatan kembali Sampah sebagaimana dimaksud dalam Pasal 6 ayat (3) dan ayat (4) wajib disertai dengan penarikan kembali Sampah dari produk, kemasan produk, dan/atau wadah untuk didaur ulang dan/atau dimanfaatkan kembali.

(2) Penarikan kembali Sampah sebagaimana dimaksud pada ayat (1) wajib disertai dengan penyediaan fasilitas penampungan."

Translation: (1) Waste recycling and reuse as referred to in Article 6 paragraphs (3) and (4) must be accompanied by taking back waste from products, product packaging, and/or containers for recycling and/or reuse. (2) Taking back waste as referred to in paragraph (1) must be accompanied by provision of collection facilities.

This provision creates a "take-back" obligation. Producers cannot simply claim recycled content or design for recyclability; they must establish systems to physically collect packaging waste from consumers for recycling or reuse.

Pasal 7(3) specifies facility requirements:

"Fasilitas penampungan sebagaimana dimaksud pada ayat (2) harus memenuhi ketentuan:
a. terlindung dari air hujan dan panas;
b. menggunakan wadah tertutup yang diberi label atau tanda; dan
c. dibedakan bahan, bentuk dan/atau warna wadah."

Translation: Collection facilities as referred to in paragraph (2) must meet requirements: (a) protected from rain and heat; (b) using covered containers with labels or markings; and (c) differentiated by material, shape, and/or container color.

These technical standards ensure proper waste segregation and storage. Different packaging materials require different collection and processing methods. Proper facility design prevents contamination that renders materials non-recyclable.

Pasal 7(4) allows producers to partner with existing waste management entities:

"Dalam menyediakan fasilitas penampungan, Produsen dapat melakukan kerja sama dengan:
a. bank sampah yang terdaftar di Pemerintah dan/atau Pemerintah Daerah;
b. tempat pengolahan sampah dengan prinsip pembatasan timbulan, pendauran ulang, pemanfaatan kembali (TPS 3R); atau
c. pusat daur ulang."

Translation: In providing collection facilities, Producers may cooperate with: (a) waste banks registered with central and/or local government; (b) waste processing facilities with principles of generation limitation, recycling, and reuse (TPS 3R); or (c) recycling centers.

This provision enables producers to leverage Indonesia's existing waste management infrastructure rather than building entirely new systems. Waste banks, TPS 3R facilities, and recycling centers already operate in many Indonesian communities. Producer partnerships can provide these facilities with reliable material flows and financial support.

Pasal 8 addresses residue management:

"(1) Terhadap residu hasil pendauran ulang dan/atau pemanfaatan kembali sebagaimana dimaksud dalam Pasal 7 ayat (1) dilakukan kegiatan:
a. pengolahan; dan/atau
b. pemrosesan akhir Sampah."

Translation: (1) For residues resulting from recycling and/or reuse as referred to in Article 7 paragraph (1), activities are conducted for: (a) processing; and/or (b) final waste processing.

Even efficient recycling and reuse systems generate residues: materials that cannot be recycled due to contamination, mixed materials that cannot be separated, or components with no recycling market. Producers bear responsibility for properly managing these residues, either through additional processing (such as energy recovery) or proper disposal in accordance with environmental regulations.

Planning, Implementation, Monitoring, and Reporting Requirements

PERMENLHK 75/2019 establishes a comprehensive management cycle for EPR compliance. Pasal 9 mandates that producers undertake:

"a. perencanaan; b. pelaksanaan; c. pemantauan; d. evaluasi; dan e. pelaporan."

Translation: (a) planning; (b) implementation; (c) monitoring; (d) evaluation; and (e) reporting.

Planning Requirements

Pasal 10(1) specifies eight planning elements:

"Perencanaan sebagaimana dimaksud dalam Pasal 9 huruf a meliputi:
a. menetapkan penanggung jawab kegiatan;
b. menetapkan Baseline Timbulan Sampah;
c. menentukan target dan waktu pencapaian pengurangan Sampah;
d. mengidentifikasi produk, kemasan produk, dan/atau wadah yang diproduksi dan/atau digunakan pada usaha dan/atau kegiatannya;
e. mendata jenis dan jumlah produk, kemasan produk, dan/atau wadah yang tidak dapat atau sulit terurai oleh proses alam, tidak dapat didaur ulang, dan/atau tidak dapat diguna ulang;
f. menentukan cara pengurangan Sampah sebagaimana dimaksud dalam Pasal 6;
g. rencana uji coba pengurangan Sampah; dan
h. rencana komunikasi, informasi dan edukasi."

Translation: Planning as referred to in Article 9 letter a includes: (a) establishing the activity manager; (b) establishing the Baseline Waste Generation; (c) determining targets and timeline for achieving waste reduction; (d) identifying products, product packaging, and/or containers produced and/or used in their business and/or activities; (e) inventorying the types and quantities of products, product packaging, and/or containers that cannot or are difficult to decompose naturally, cannot be recycled, and/or cannot be reused; (f) determining waste reduction methods as referred to in Article 6; (g) planning waste reduction trials; and (h) planning communication, information, and education.

These planning requirements create accountability structures. Element (a) requires designation of a responsible manager, ensuring that EPR obligations receive executive-level attention within organizations. Element (h) recognizes that EPR success depends on consumer behavior change, requiring producers to invest in public education.

Pasal 10(5) requires formal planning documentation:

"Perencanaan sebagaimana dimaksud pada ayat (1) disusun dalam dokumen dengan format sebagaimana tercantum dalam Lampiran II yang merupakan bagian tidak terpisahkan dari Peraturan Menteri ini."

Translation: Planning as referred to in paragraph (1) is compiled in a document with the format contained in Attachment II, which is an inseparable part of this Ministerial Regulation.

Lampiran II (Attachment II) provides standardized templates for EPR planning documents. Standardization enables environmental authorities to efficiently review submissions and compare performance across producers.

Pasal 12 establishes submission requirements:

"(1) Dokumen perencanaan sebagaimana dimaksud dalam Pasal 10 dan Pasal 11 disampaikan kepada Menteri melalui Direktur Jenderal dengan tembusan kepada gubernur atau bupati/wali kota sesuai dengan kewenangannya."

Translation: (1) Planning documents as referred to in Articles 10 and 11 are submitted to the Minister through the Director General with copies to governors or regents/mayors according to their authority.

This creates a tiered submission structure. The Ministry of Environment and Forestry (specifically the Directorate General responsible for waste management) receives and reviews all planning documents, while provincial and district governments receive copies for regional coordination.

Monitoring Requirements

Pasal 13 establishes monitoring obligations:

"(2) Pemantauan sebagaimana dimaksud pada ayat (1) dilakukan dengan cara:
a. mencatat jenis dan jumlah produk dan kemasan produk yang diproduksi dan/atau digunakan pada usaha dan/atau kegiatannya;
b. mencatat jenis dan jumlah produk dan kemasan produk yang tidak dapat atau sulit terurai oleh proses alam, yang telah dikurangi, termasuk cara yang dipilih dalam melakukan pengurangannya; dan
c. mencatat jenis dan jumlah residu hasil pendauran ulang Sampah dan/atau pemanfaatan kembali Sampah.

(3) Pemantauan sebagaimana dimaksud pada ayat (2) dilakukan paling sedikit 1 (satu) kali dalam 6 (enam) bulan."

Translation: (2) Monitoring as referred to in paragraph (1) is conducted by: (a) recording the types and quantities of products and product packaging produced and/or used in their business and/or activities; (b) recording the types and quantities of products and product packaging that cannot or are difficult to decompose naturally that have been reduced, including the methods chosen for reduction; and (c) recording the types and quantities of residues from waste recycling and/or waste reuse. (3) Monitoring as referred to in paragraph (2) is conducted at least once every six (6) months.

These monitoring requirements create data trails that document EPR performance. Semi-annual monitoring enables producers to track progress toward annual targets and adjust implementation strategies as needed. Environmental authorities can use monitoring data to verify reported achievements and identify compliance issues.

Coordination Mechanisms for Commercial Zones and Franchise Operations

PERMENLHK 75/2019 recognizes that individual EPR compliance may be impractical for certain business models. Pasal 11 establishes coordination mechanisms:

"(1) Produsen yang menjalankan usaha dan/atau kegiatannya pada kawasan komersial, penyusunan dokumen perencanaan sebagaimana dimaksud dalam Pasal 10 ayat (5) dikoordinasikan oleh pengelola kawasan."

Translation: (1) For producers conducting business and/or activities in commercial zones, the preparation of planning documents as referred to in Article 10 paragraph (5) is coordinated by the zone manager.

This provision addresses shopping centers, food courts, and commercial complexes where dozens or hundreds of individual businesses operate. Rather than requiring each tenant to submit separate EPR planning documents, the zone manager (typically the mall or complex operator) coordinates EPR planning for all tenants.

This approach creates economies of scale. Zone managers can establish centralized waste collection systems, negotiate bulk contracts with recyclers, and implement consistent waste management policies across all tenants. Individual businesses benefit from shared infrastructure while meeting EPR obligations.

Pasal 11(2) extends coordination to franchise operations:

"Produsen waralaba yang usaha dan/atau kegiatannya wajib SPPL, penyusunan dokumen perencanaan sebagaimana dimaksud dalam Pasal 10 ayat (5) dapat dikoordinasikan oleh perusahaan induk."

Translation: Franchise producers whose business and/or activities require SPPL may have planning document preparation as referred to in Article 10 paragraph (5) coordinated by the parent company.

Franchise operations present similar coordination challenges. A fast-food chain may operate hundreds of franchised locations across Indonesia. Rather than requiring each franchisee to develop independent EPR plans, the parent company can develop standardized EPR systems applicable to all locations.

SPPL (Surat Pernyataan Kesanggupan Pengelolaan dan Pemantauan Lingkungan Hidup) is an environmental declaration required for businesses with minimal environmental impacts. Most franchise restaurants, cafes, and retail stores fall under SPPL requirements. Pasal 11(2) enables parent companies to coordinate EPR planning for SPPL-level franchisees while allowing larger franchisees subject to UKL-UPL or AMDAL requirements to develop independent plans.

Labeling Requirements: Communicating Packaging Attributes

PERMENLHK 75/2019 Pasal 10(3) establishes labeling requirements for packaging:

"Setiap produk, kemasan produk, dan/atau wadah sebagaimana dimaksud pada ayat (1) huruf d yang dipilih sebagai bagian dari cara pengurangan Sampah, wajib dilekatkan label yang menerangkan bahwa produk dan/atau kemasan produk tersebut:
a. dapat dikomposkan;
b. dapat didaur ulang; dan/atau
c. dapat diguna ulang."

Translation: Each product, product packaging, and/or container as referred to in paragraph (1) letter d selected as part of waste reduction methods must be affixed with a label explaining that the product and/or product packaging: (a) can be composted; (b) can be recycled; and/or (c) can be reused.

This labeling requirement serves three functions:

1. Consumer Education: Labels inform consumers about proper disposal methods, increasing participation in recycling and composting programs.
2. Waste Sorting: Labels enable waste collectors and processors to quickly identify materials suitable for recycling, composting, or reuse systems.
3. Accountability: Labels create verifiable claims about packaging attributes, enabling environmental authorities to verify that packaging actually possesses the attributes claimed by producers.

The regulation does not specify label design standards, leaving implementation details to subsequent technical guidance. However, the provision establishes the legal requirement for labeling, creating the foundation for standardized recycling symbols and instructions.

Regional Policy Coordination: Local Bans and EPR Plans

Indonesian local governments possess authority to enact stricter environmental regulations than national standards. Many provincial and district governments have banned single-use plastic bags, polystyrene foam containers, or other packaging materials. PERMENLHK 75/2019 Pasal 10(4) requires producers to incorporate local bans into EPR planning:

"Dalam hal Pemerintah Daerah telah menetapkan kebijakan pelarangan penggunaan produk, kemasan produk, dan/atau wadah tertentu, Produsen yang melakukan usaha dan/atau kegiatan di wilayah administratif tersebut wajib menyesuaikan ke dalam perencanaannya."

Translation: In cases where local governments have established policies prohibiting the use of certain products, product packaging, and/or containers, producers conducting business and/or activities in that administrative region must adjust their planning accordingly.

This provision prevents conflicts between EPR obligations and local bans. A producer cannot claim EPR credit for switching to recyclable plastic bags if the local government has banned plastic bags entirely. EPR plans must demonstrate compliance with local regulations in each jurisdiction where producers operate.

This creates complexity for national producers operating across multiple provinces and districts. A manufacturer distributing products throughout Indonesia must track local packaging bans in dozens of jurisdictions and adjust packaging accordingly. However, this complexity reflects federalism principles in Indonesian environmental law, where local governments possess authority to impose stricter standards based on local conditions.

Conclusion: From Voluntary CSR to Mandatory EPR

PERMENLHK 75/2019's packaging waste reduction targets represent a fundamental policy shift in Indonesian waste management. Prior to this regulation, producer waste management activities occurred primarily as voluntary corporate social responsibility programs. Producers could choose whether to participate, what materials to target, and what level of effort to invest.

The 30% reduction target by 2029 transforms this voluntary framework into a mandatory compliance obligation. Producers subject to EPR requirements must establish baselines, develop reduction plans, implement collection and recycling systems, and report progress annually. The regulation creates legal accountability for packaging waste that previously fell entirely on municipal governments and informal waste collectors.

The target structure balances ambition with feasibility. A 30% reduction over 10 years represents approximately 3% annual improvement—achievable through incremental changes in packaging design, material selection, and collection infrastructure. The staged implementation roadmap provides time for producers to develop systems, build partnerships, and scale operations.

The regulation's effectiveness ultimately depends on enforcement. PERMENLHK 75/2019 establishes the legal framework and reduction targets, but achieving the 30% target requires environmental authorities to review EPR plans, verify monitoring data, audit reported achievements, and impose consequences for non-compliance. As Indonesia enters the middle phase of the 2020-2029 roadmap, attention must shift from planning to implementation, from voluntary participation to mandatory compliance, and from aspirational goals to measurable outcomes. The 30% target provides a clear benchmark against which Indonesia's EPR system will be evaluated, both domestically and internationally, as one of Southeast Asia's most comprehensive attempts to assign producer responsibility for packaging waste.

Official Regulation: PERMENLHK 75/2019 - https://peraturan.bpk.go.id/Details/133334

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