Ambient Air Quality Standards in Indonesia: The WPPMU Three-Class Framework Under PP 22/2021
1.0 The Regulatory Framework: Air Quality Protection and Management Under PP 22/2021
Government Regulation PP 22/2021 establishes a comprehensive framework for air quality protection and management in Indonesia through its Chapter IV provisions on Perlindungan dan Pengelolaan Mutu Udara (Air Quality Protection and Management). Article 163 establishes the three core components of this framework: "Penyelenggaraan Perlindungan dan Pengelolaan Mutu Udara meliputi: a. perencanaan; b. pemanfaatan; dan c. pengendalian" (The implementation of Air Quality Protection and Management includes: a. planning; b. utilization; and c. control). This tripartite structure ensures that air quality management proceeds systematically from planning through implementation and enforcement.
Article 164 further specifies that air quality planning is conducted through four interconnected mechanisms: air inventory (inventarisasi udara), formulation and establishment of Ambient Air Quality Standards known as Baku Mutu Udara Ambien, designation of Air Quality Protection and Management Areas (WPPMU), and development of Air Quality Protection and Management Plans (RPPMU). These four planning elements work together to create a data-driven approach to air quality management. The air inventory identifies emission sources and baseline ambient air conditions. The ambient air quality standards establish the threshold values for acceptable air quality. The WPPMU system classifies geographic areas according to their designated uses and corresponding air quality requirements. The RPPMU then integrates these elements into actionable management plans at national, provincial, and regency/city levels.
This framework applies to all business activities requiring Environmental Approval and integrates with the broader environmental protection system. Activities with significant air quality impacts may trigger AMDAL requirements, while lower-impact activities may proceed under UKL-UPL or SPPL pathways. Non-compliance with air quality requirements triggers administrative sanctions under the enforcement framework established in PP 22/2021 (see Matrix 1.1 below).
Matrix 1.1: Four Elements of Air Quality Planning Under PP 22/2021
| No. | Planning Element | Indonesian Term | Purpose | Regulatory Basis |
|---|---|---|---|---|
| 1.1 | Air Inventory | Inventarisasi Udara | Identify emission sources and baseline ambient air quality | Pasal 164 huruf a |
| 1.2 | Ambient Air Quality Standards | Baku Mutu Udara Ambien | Establish threshold values for acceptable air quality | Pasal 164 huruf b |
| 1.3 | Air Quality Management Areas | WPPMU | Classify areas by designated use and quality requirements | Pasal 164 huruf c |
| 1.4 | Air Quality Management Plans | RPPMU | Develop integrated management plans at all government levels | Pasal 164 huruf d |
2.0 The WPPMU Classification System: Three Classes for Different Area Designations
Article 175 of PP 22/2021 establishes the Wilayah Perlindungan dan Pengelolaan Mutu Udara (WPPMU) classification system, which divides Indonesian territory into three distinct classes based on designated uses and corresponding air quality requirements. The regulation provides: "WPPMU sebagaimana dimaksud pada ayat (1) terdiri atas: a. WPPMU Kelas I, untuk peruntukan pelestarian dan pencadangan udara bersih; b. WPPMU Kelas II, untuk peruntukan kawasan permukiman, komersial, pertanian, perkebunan, dan/atau peruntukan lain yang mempersyaratkan kelas yang sama; dan c. WPPMU Kelas III, untuk peruntukan industri dan/atau peruntukan lain yang mempersyaratkan kelas yang sama."
Class I WPPMU represents the strictest air quality category, designated for clean air preservation and conservation areas. Article 175(4) specifically provides that pristine areas (kawasan pristine) must be categorized as Class I. This class applies to protected natural areas, conservation zones, and any location designated for maintaining the highest ambient air quality. Activities in Class I areas are limited under Article 187 to research and scientific purposes, environmental services, and other activities that do not alter the WPPMU function.
Class II WPPMU applies to residential, commercial, agricultural, and plantation areas where human populations live and work. This intermediate category balances economic activity with air quality protection, recognizing that these areas require cleaner air than industrial zones but cannot maintain pristine conditions. Class II areas can accommodate moderate emission-generating activities provided they comply with applicable emission standards and do not degrade air quality below the class threshold.
Class III WPPMU covers industrial areas and other zones designated for activities that generate higher levels of air emissions. While this class permits the highest emission levels among the three categories, it still requires compliance with established emission standards and pollution control measures. The WPPMU framework is established at multiple geographic levels: national, cross-provincial, provincial, cross-regency/city, and regency/city, ensuring comprehensive coverage across Indonesia's administrative structure (see Matrix 2.1 below).
Matrix 2.1: Three-Class WPPMU Framework Under PP 22/2021
| No. | WPPMU Class | Indonesian Term | Designated Use | Permitted Activities | Pasal Reference |
|---|---|---|---|---|---|
| 2.1 | Class I | Kelas I | Clean air preservation and conservation | Research, environmental services, activities preserving function | Pasal 175(2)(a) |
| 2.2 | Class II | Kelas II | Residential, commercial, agricultural, plantation | Activities compatible with residential/commercial standards | Pasal 175(2)(b) |
| 2.3 | Class III | Kelas III | Industrial and equivalent uses | Industrial activities meeting emission standards | Pasal 175(2)(c) |
Matrix 2.2: WPPMU Geographic Levels
| No. | WPPMU Level | Indonesian Term | Geographic Scope | Establishing Authority |
|---|---|---|---|---|
| 2.4 | National WPPMU | WPPMU nasional | Entire national territory | Menteri |
| 2.5 | Cross-Provincial WPPMU | WPPMU lintas provinsi | Areas spanning multiple provinces | Menteri |
| 2.6 | Provincial WPPMU | WPPMU provinsi | Within single province | Gubernur |
| 2.7 | Cross-Regency/City WPPMU | WPPMU lintas kabupaten/kota | Areas spanning multiple regencies/cities | Gubernur |
| 2.8 | Regency/City WPPMU | WPPMU kabupaten/kota | Within single regency/city | Bupati/Wali kota |
3.0 Ambient Air Quality Standards: Parameter Framework and Status Determination
Article 174 establishes the framework for Baku Mutu Udara Ambien (Ambient Air Quality Standards), specifying that these standards are formulated considering both scientific and socioeconomic factors. The regulation provides: "Baku Mutu Udara Ambien sebagaimana dimaksud dalam Pasal 164 huruf b disusun dan ditetapkan dengan mempertimbangkan: a. hasil inventarisasi udara; dan b. aspek kesehatan, sosial, ekonomi, dan lingkungan" (Ambient Air Quality Standards are formulated and established considering: a. air inventory results; and b. health, social, economic, and environmental aspects).
The standards consist of two essential components under Article 174(2): parameter types (jenis parameter) and parameter values (nilai parameter). The parameter types include both physical measurements such as particulate matter concentrations and chemical parameters such as sulfur dioxide, nitrogen dioxide, carbon monoxide, and ozone levels. The parameter values establish the maximum acceptable concentrations for each parameter, with values set according to the WPPMU class designation. Class I areas have the strictest limits, while Class III areas permit higher concentrations consistent with industrial activities.
Article 184 establishes the framework for determining ambient air quality status by comparing monitoring results against WPPMU standards. The regulation states: "Status Mutu Udara ambien sebagaimana dimaksud pada ayat (1) terdiri dari: a. tercemar; dan b. tidak tercemar" (Ambient air quality status consists of: a. polluted; and b. not polluted). When monitoring reveals that ambient air quality is polluted (tercemar), the relevant authority must establish target air quality (Mutu Udara sasaran) considering economic factors and the development of emission control technology.
When WPPMU has not yet been established for a particular area, Article 184(5) provides that air quality status is determined by comparing monitoring results directly against the Baku Mutu Udara Ambien national standards. This transitional provision ensures that air quality assessment can proceed even in areas awaiting WPPMU designation. Environmental damage criteria thresholds, established separately from ambient standards, indicate levels above which air quality is considered damaged and remediation is required (see Matrix 3.1 below).
Matrix 3.1: Ambient Air Quality Status Framework
| No. | Status Category | Indonesian Term | Determination Method | Response Required | Pasal Reference |
|---|---|---|---|---|---|
| 3.1 | Not Polluted | Tidak tercemar | Monitoring results meet WPPMU standards | Continue monitoring | Pasal 184(2)(b) |
| 3.2 | Polluted | Tercemar | Monitoring results exceed WPPMU standards | Establish target air quality | Pasal 184(2)(a) |
| 3.3 | Target Setting | Mutu Udara sasaran | Set for polluted areas considering economic and technology factors | Implement improvement measures | Pasal 184(3)-(4) |
| 3.4 | Pre-WPPMU Status | Status tanpa WPPMU | Compare against Baku Mutu Udara Ambien directly | Apply national standards | Pasal 184(5) |
Matrix 3.2: Key Air Quality Parameters and Damage Thresholds
| No. | Parameter | Unit | 24-Hour Threshold | 1-Hour Threshold | Notes |
|---|---|---|---|---|---|
| 3.5 | Particulate Matter PM₁₀ | μg/m³ | 150 | - | Physical parameter |
| 3.6 | Particulate Matter PM₂.₅ | μg/m³ | 65 | - | Fine particulate |
| 3.7 | Total Suspended Particulate | μg/m³ | 230 | - | Physical parameter |
| 3.8 | Sulfur Dioxide (SO₂) | μg/m³ | 365 | - | Chemical parameter |
| 3.9 | Nitrogen Dioxide (NO₂) | μg/m³ | - | 200 | Chemical parameter |
| 3.10 | Carbon Monoxide (CO) | mg/m³ | - | 30 | Chemical parameter |
| 3.11 | Ozone (O₃) | μg/m³ | - | 235 | Chemical parameter |
4.0 Air Pollution Control Framework: Prevention, Mitigation, and Recovery
Article 188 establishes the tripartite structure for air pollution control, providing: "Pengendalian Pencemaran Udara sebagaimana dimaksud pada ayat (1) meliputi: a. pencegahan; b. penanggulangan; dan c. pemulihan dampak Pencemaran Udara" (Air Pollution Control includes: a. prevention; b. mitigation; and c. recovery from air pollution impacts). This framework ensures comprehensive management covering all phases from preventing pollution to addressing its consequences.
Prevention mechanisms under Article 189 include six distinct approaches: Baku Mutu Emisi (Emission Standards) establishing maximum allowable emissions for each source; Technical Approval (Persetujuan Teknis) for emission standard compliance; disturbance standards covering noise, odor, and vibration; internalization of air quality management costs; emission quotas and trading systems; and Indonesian National Standards for household products releasing residues to air. Article 190 specifies that Emission Standards are formulated considering best available technology and apply to both stationary sources (sumber Emisi tidak bergerak) and mobile sources (sumber Emisi bergerak).
Article 191 differentiates stationary source emission standards based on impact level. Activities with low emission impact (dampak Emisi rendah) apply the Ministerial-established standards directly. Activities with high emission impact (dampak Emisi tinggi) must obtain Technical Approval demonstrating their ability to meet emission standards. For activities operating within zones requiring detailed RKL-RPL, the zone manager must require Technical Approval for emission standard compliance as part of the environmental management documentation.
Disturbance standards under Article 207 cover three categories of non-air-pollutant emissions: noise (kebisingan), odor (kebauan), and vibration (getaran). These standards are established considering human health, physical safety, building preservation, best available technology, and economic capability. Business operators generating these disturbances must conduct disturbance testing through registered laboratories or certified personnel. This comprehensive approach ensures that air quality management addresses all atmospheric impacts, not solely chemical pollutants (see Matrix 4.1 below).
Matrix 4.1: Six Prevention Mechanisms for Air Pollution Control
| No. | Prevention Mechanism | Indonesian Term | Application | Pasal Reference |
|---|---|---|---|---|
| 4.1 | Emission Standards | Baku Mutu Emisi | Maximum allowable emissions per source | Pasal 189 huruf a |
| 4.2 | Technical Approval | Persetujuan Teknis | High-impact activities requiring compliance verification | Pasal 189 huruf b |
| 4.3 | Disturbance Standards | Baku mutu gangguan | Noise, odor, vibration limits | Pasal 189 huruf c |
| 4.4 | Cost Internalization | Internalisasi biaya | Pollution control costs in production budgets | Pasal 189 huruf d |
| 4.5 | Emission Quotas/Trading | Kuota Emisi | Market-based emission allocation | Pasal 189 huruf e |
| 4.6 | Product Standards (SNI) | Standar Nasional Indonesia | Household products releasing residues | Pasal 189 huruf f |
Matrix 4.2: Emission Source Categories and Standards
| No. | Source Category | Indonesian Term | Standard Application | Technical Approval Required |
|---|---|---|---|---|
| 4.7 | Stationary - Low Impact | Sumber tidak bergerak dampak rendah | Ministerial standards directly | No |
| 4.8 | Stationary - High Impact | Sumber tidak bergerak dampak tinggi | Specific technical approval | Yes |
| 4.9 | Mobile - Automotive Products | Produk industri otomotif | Type-specific standards | Accredited laboratory testing |
| 4.10 | Mobile - Road Transport | Alat transportasi darat berbasis jalan | Operational emission testing | Certified personnel testing |
| 4.11 | Mobile - Non-Road | Alat transportasi darat berbasis nonjalan | Specific emission standards | Certified personnel testing |
5.0 Mitigation and Recovery: Response Obligations and Timelines
Articles 213-217 establish mandatory response obligations when air pollution occurs. Article 213 specifies: "Penanggung jawab Usaha dan/atau Kegiatan yang melakukan Pencemaran Udara wajib melaksanakan penanggulangan" (Business operators causing air pollution must implement mitigation). Mitigation activities include providing public information about the pollution, stopping pollution sources, and implementing other measures consistent with scientific and technological developments. The critical timeline under Article 214 requires that mitigation be conducted within 24 hours of pollution detection.
Recovery obligations under Article 216 extend beyond immediate mitigation to address lasting environmental impacts. The regulation provides that every person causing air pollution must conduct recovery of pollution impacts, which includes cleaning pollutant elements from environmental media and implementing other recovery measures according to current science and technology. Article 217 establishes a 30-day deadline for initiating recovery activities from the date pollution is detected, significantly longer than the 24-hour mitigation deadline reflecting the more complex nature of recovery work.
When business operators fail to conduct mitigation within 24 hours or recovery within 30 days, Articles 214 and 217 authorize government intervention. The relevant authority (Minister, Governor, or Regent/Mayor according to jurisdiction) may designate third parties to conduct mitigation or recovery activities, with all resulting costs charged to the operator causing the pollution. This enforcement mechanism ensures environmental protection even when operators are unwilling or unable to respond appropriately.
Government response provisions under Article 215 address air pollution resulting from disasters (bencana), establishing that both central and regional governments shall conduct mitigation for disaster-caused pollution. Article 218 further provides that when the pollution source is unknown or the responsible party cannot be identified, the relevant government authority conducts recovery according to the geographic scope of impacts: the Minister for cross-provincial impacts, the Governor for cross-regency/city impacts, and the Regent/Mayor for impacts within a single regency/city (see Matrix 5.1 below).
Matrix 5.1: Air Pollution Response Timelines and Obligations
| No. | Response Type | Indonesian Term | Timeline | Responsible Party | Pasal Reference |
|---|---|---|---|---|---|
| 5.1 | Mitigation | Penanggulangan | Within 24 hours | Business operator | Pasal 214(1) |
| 5.2 | Recovery | Pemulihan dampak | Within 30 days | Business operator | Pasal 217(1) |
| 5.3 | Third-Party Mitigation | Penanggulangan pihak ketiga | After 24-hour deadline | Government-designated party | Pasal 214(2) |
| 5.4 | Third-Party Recovery | Pemulihan pihak ketiga | After 30-day deadline | Government-designated party | Pasal 217(2) |
| 5.5 | Disaster Response | Penanggulangan bencana | As required | Government authorities | Pasal 215 |
Matrix 5.2: Government Authority for Unknown Source Pollution Recovery
| No. | Impact Scope | Responsible Authority | Geographic Coverage | Pasal Reference |
|---|---|---|---|---|
| 5.6 | Cross-Provincial | Menteri | Multiple provinces affected | Pasal 218(2)(a) |
| 5.7 | Cross-Regency/City | Gubernur | Multiple regencies/cities within province | Pasal 218(2)(b) |
| 5.8 | Single Regency/City | Bupati/Wali kota | Limited to one regency/city | Pasal 218(2)(c) |
Related Articles
This article is part of the Environmental Law Series covering PP 22/2021. Related topics include:
- Environmental Approval System - The permit framework governing air quality approvals
- AMDAL Requirements - When significant air impacts trigger environmental impact assessment
- Administrative Sanctions - Enforcement for air quality violations
- Wastewater Management Framework - Companion water quality framework
Official Sources
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