AMDAL Document Structure in Indonesian Law: The Three-Component Framework and Content Requirements Under PP 22/2021
Indonesia's Environmental Impact Assessment (Analisis Mengenai Dampak Lingkungan or AMDAL) represents one of the most comprehensive environmental documentation frameworks in Southeast Asia. Under Government Regulation Number 22 of 2021 (Peraturan Pemerintah Nomor 22 Tahun 2021), the AMDAL system establishes rigorous requirements for document structure, content, and preparation procedures. This analysis examines the complete regulatory framework governing what must be included in AMDAL documents, how they must be organized, and the mandatory timelines for their preparation and assessment.
1.0 The Three-Component Document Framework
PP 22/2021 establishes that a complete AMDAL submission consists of three distinct but interconnected documents. Pasal 26 provides the foundational structure:
Pasal 26 - AMDAL Document Composition:
Amdal sebagaimana dimaksud dalam Pasal 22 ayat (1) terdiri atas:
a. Formulir Kerangka Acuan;
b. Andal; dan
c. RKL-RPL.
This translates to: AMDAL consists of (a) Terms of Reference Form; (b) Andal (Environmental Impact Analysis); and (c) RKL-RPL (Environmental Management Plan and Environmental Monitoring Plan).
These three components form a progressive documentation chain. The Formulir Kerangka Acuan (ToR Form) establishes the scope and methodology of the study. The Andal document presents the actual impact analysis based on that agreed scope. The RKL-RPL document specifies how identified impacts will be managed and monitored throughout the project lifecycle.
2.0 Preparation Stage Requirements
2.1 Spatial Plan Compliance Prerequisite
Before any AMDAL preparation can begin, the project location must comply with applicable spatial plans. Pasal 21 establishes this as an absolute prerequisite:
Pasal 21 ayat (2)-(4):
(2) Lokasi rencana Usaha dan/atau Kegiatan sebagaimana dimaksud pada ayat (1) wajib sesuai dengan rencana tata ruang.
(3) Kesesuaian lokasi rencana Usaha dan/atau Kegiatan dengan rencana tata ruang sebagaimana dimaksud pada ayat (2) dibuktikan dengan konfirmasi kesesuaian kegiatan pemanfaatan ruang...
(4) Dalam hal lokasi rencana Usaha dan/atau Kegiatan tidak sesuai dengan rencana tata ruang sebagaimana dimaksud pada ayat (3), dokumen Amdal tidak dapat dinilai dan dikembalikan kepada penanggung jawab Usaha dan/atau Kegiatan.
This provision means that if a project location does not conform to the spatial plan, the AMDAL document cannot proceed to assessment. The document will be returned to the proponent without evaluation. Spatial conformity must be proven through either a spatial utilization conformity confirmation (konfirmasi kesesuaian kegiatan pemanfaatan ruang) or spatial utilization conformity recommendation.
2.2 Initial Data Requirements
Pasal 25 specifies four categories of data that must be compiled before AMDAL preparation begins:
| Data Category | Indonesian Term | Description |
|---|---|---|
| Screening Results | Hasil penapisan | Determination of assessment authority jurisdiction |
| Project Description | Deskripsi rencana | Comprehensive project technical specifications |
| Environmental Baseline | Rona Lingkungan Hidup awal | Initial environmental conditions at and around project site |
| Public Participation Results | Hasil pengumuman dan konsultasi publik | Outcomes from public announcement and consultation |
These data requirements ensure that AMDAL preparation proceeds from a foundation of established facts rather than assumptions.
2.3 Author Certification Mandate
Pasal 23 establishes mandatory certification requirements for AMDAL authors:
Pasal 23 ayat (2):
Penyusunan Amdal wajib dilakukan oleh penyusun yang memiliki sertifikat kompetensi.
All AMDAL documents must be prepared by authors holding competency certificates. Project proponents may prepare documents themselves if they hold such certification, or they may engage certified third-party consultants. Regardless of who prepares the documents, Pasal 23 ayat (3) clarifies that responsibility remains with the project proponent.
3.0 Three Study Approaches
PP 22/2021 recognizes that projects vary significantly in their complexity and institutional context. Pasal 22 establishes three distinct study approaches:
3.1 Study Approach Matrix
| Approach | Indonesian Term | Application Context | Responsible Party |
|---|---|---|---|
| Single | Tunggal | One activity type under one ministry/agency | Individual project proponent |
| Integrated | Terpadu | Multiple interrelated activities within one ecosystem under multiple ministries | Multiple proponents jointly |
| Area | Kawasan | Multiple activities within designated zones | Area manager (Pengelola Kawasan) |
3.2 Single Study Approach (Pendekatan Tunggal)
The single approach applies when a project proponent plans to conduct one type of activity that falls under the supervision of a single ministry, agency, provincial government, or district/city government. This is the most common approach for straightforward industrial or commercial projects.
3.3 Integrated Study Approach (Pendekatan Terpadu)
When a proponent plans multiple activity types whose planning and management are interrelated within a single ecosystem, and these activities fall under more than one supervisory authority, an integrated study approach is required. This ensures that cumulative and interactive impacts across different activity types are properly assessed.
3.4 Area Study Approach (Pendekatan Kawasan)
For designated zones such as industrial estates, special economic zones, or port areas, the area manager serves as the responsible party for AMDAL preparation. This approach covers multiple activities that will be conducted by various businesses within the zone.
4.0 AMDAL Preparation Stages
Pasal 27 establishes four sequential stages for AMDAL preparation:
Pasal 27 ayat (1):
Penyusunan Amdal sebagaimana dimaksud dalam Pasal 21 ayat (1) dilakukan melalui tahapan:
a. pelaksanaan pelibatan masyarakat terhadap rencana Usaha dan/atau Kegiatan;
b. pengisian, pengajuan, pemeriksaan, dan penerbitan berita acara kesepakatan Formulir Kerangka Acuan;
c. penyusunan dan pengajuan Andal dan RKL-RPL; dan
d. penilaian Andal dan RKL-RPL.
4.1 Preparation Stage Flowchart
| Stage | Key Actions | Timeline/Requirements |
|---|---|---|
| 1. Public Participation | Project announcement, public consultation, stakeholder feedback collection | 10 working days for public feedback |
| 2. ToR Form Process | Form completion, submission, review by Tim Uji Kelayakan, agreement issuance | Max 10 working days for review |
| 3. Andal & RKL-RPL Preparation | Document preparation based on agreed ToR | 60-180 days depending on category |
| 4. Assessment | Administrative and substantive assessment, feasibility test | Max 50 working days |
Importantly, Pasal 27 ayat (2) clarifies that the ToR Form review (stage 2) and the Andal/RKL-RPL assessment (stage 4) together constitute the AMDAL feasibility test (uji kelayakan Amdal).
5.0 Formulir Kerangka Acuan (Terms of Reference Form)
5.1 Purpose and Function
According to LAMPIRAN II of PP 22/2021, the ToR Form serves to:
1. Formulate the scope and depth of the Andal study
2. Establish hypothetical significant impacts, study boundaries, timeframe, and methodology
3. Guide the Andal study to proceed effectively and efficiently within available budget, personnel, and time
5.2 ToR Form Content Requirements
The ToR Form contains three main sections:
Section A: General Information
- Project/activity name
- Proponent name and position
- AMDAL author credentials
- Project description with alternatives
- Project location
- Public participation results
Section B: Scoping (Pelingkupan)
- Activities potentially causing environmental impacts (by project phase)
- Planned management measures
- Environmental components potentially affected
- Potential impacts identification
- Potential impact evaluation
- Hypothetical Significant Impacts (Dampak Penting Hipotetik)
- Study area boundaries
- Study timeframe
Section C: Study Methods
- Data collection and analysis methods
- Impact prediction methods
- Holistic evaluation methods
5.3 Study Boundary Components
The study area boundary (batas wilayah studi) must incorporate four elements:
| Component | Indonesian Term | Definition |
|---|---|---|
| Project Boundary | Batas Proyek | Physical space where all project components will be located |
| Ecological Boundary | Batas Ekologis | Space where environmental impact dispersion occurs |
| Social Boundary | Batas Sosial | Area of social interactions around the project |
| Administrative Boundary | Batas Administratif | Smallest relevant administrative jurisdiction |
The final study boundary represents the overlay (tumpang susun) of these four boundaries.
6.0 Andal Document Structure
6.1 Nine Mandatory Sections
Pasal 39 ayat (2) specifies the nine elements that every Andal document must contain:
Pasal 39 ayat (2):
Dokumen Andal sebagaimana dimaksud pada ayat (1) memuat:
a. pendahuluan;
b. deskripsi rencana Usaha dan/atau Kegiatan beserta alternatifnya;
c. deskripsi rinci rona Lingkungan Hidup;
d. hasil dan evaluasi pelibatan masyarakat;
e. penentuan Dampak Penting hipotetik yang dikaji, batas wilayah studi, dan batas waktu kajian;
f. prakiraan Dampak Penting dan penentuan sifat penting dampak;
g. evaluasi secara holistik terhadap Dampak Lingkungan Hidup;
h. daftar pustaka; dan
i. lampiran.
6.2 Andal Section Content Matrix
| Section | Content Requirements |
|---|---|
| I. Introduction | Background, objectives, study executor identity, project summary, scoping summary |
| II. Project Description | Main and supporting activities, alternatives, impact source identification |
| III. Detailed Environmental Baseline | Geo-physical-chemical components, biological components, socio-economic-cultural components, public health conditions |
| IV. Public Participation Results | Announcement outcomes, consultation outcomes, stakeholder feedback evaluation |
| V. DPH, Boundaries, Timeframe | Hypothetical significant impacts, study area boundaries, study timeframe determination |
| VI. Impact Prediction | Impact magnitude prediction, significance determination using established criteria |
| VII. Holistic Evaluation | Integrated assessment of all significant impacts as interconnected system |
| VIII. References | Scientific and regulatory sources |
| IX. Annexes | ToR agreement, technical data, calculation summaries, Technical Approvals |
6.3 Environmental Baseline Components
The detailed environmental baseline (rona Lingkungan Hidup rinci) must address four main component categories:
| Component Category | Key Parameters |
|---|---|
| Geo-Physical-Chemical | Soil, water, air, climate, topography, geology |
| Biological | Flora, fauna, ecosystems, protected species |
| Socio-Economic-Cultural | Demographics, livelihoods, cultural sites, land use |
| Public Health | Baseline health conditions, disease patterns, health infrastructure |
7.0 RKL-RPL Document Structure
7.1 Seven Mandatory Elements
Pasal 40 ayat (2) specifies the seven elements required in every RKL-RPL document:
Pasal 40 ayat (2):
Dokumen RKL-RPL sebagaimana dimaksud pada ayat (1) memuat:
a. pendahuluan;
b. matrik RKL;
c. matrik RPL;
d. persyaratan dan kewajiban terkait dengan aspek Perlindungan dan Pengelolaan Lingkungan Hidup yang relevan terdiri atas pengolahan dan pembuangan Air Limbah, pemanfaatan Air Limbah untuk aplikasi ke tanah, pembuangan Emisi, Pengelolaan Limbah B3, dan/atau pengelolaan dampak lalu lintas;
e. pernyataan komitmen penanggung jawab Usaha dan/atau Kegiatan untuk melaksanakan ketentuan yang tercantum dalam RKL-RPL;
f. daftar pustaka; dan
g. lampiran.
7.2 RKL Matrix Elements
The Environmental Management Plan (RKL) matrix must include seven columns:
| Matrix Element | Purpose |
|---|---|
| Dampak Lingkungan yang Dikelola | Impact being managed |
| Sumber Dampak | Source of the impact |
| Indikator Keberhasilan | Success indicators (referencing quality standards) |
| Bentuk Pengelolaan | Management approach (technology, institution, socio-economic) |
| Lokasi Pengelolaan | Location where management will occur |
| Periode Pengelolaan | Period when management will be implemented |
| Institusi Pengelolaan | Institution responsible for management |
7.3 RPL Matrix Elements
The Environmental Monitoring Plan (RPL) matrix must include seven columns:
| Matrix Element | Purpose |
|---|---|
| Dampak yang Dipantau | Impact being monitored |
| Indikator/Parameter | Parameters to be measured |
| Sumber Dampak | Source of the impact |
| Metode Pengumpulan Data | Data collection methodology |
| Lokasi Pemantauan | Monitoring locations |
| Waktu dan Frekuensi | Timing and frequency of monitoring |
| Institusi Pemantau | Institution responsible for monitoring |
7.4 Technical Approval Requirements
The RKL-RPL must address specific technical requirements for:
| Technical Area | Coverage |
|---|---|
| Wastewater Treatment/Discharge | Baku Mutu Air Limbah compliance |
| Wastewater Reuse (Land Application) | Application to land requirements |
| Emissions | Baku Mutu Emisi compliance |
| B3 Waste Management | Hazardous waste handling requirements |
| Traffic Impact | Where applicable, traffic management measures |
8.0 Category Classification and Timelines
8.1 Three Category System
Pasal 41 establishes a three-tier category system for AMDAL preparation:
Pasal 41 ayat (2)-(3):
(2) Kategori sebagaimana dimaksud pada ayat (1) meliputi:
a. kategori A;
b. kategori B; atau
c. kategori C.
(3) Kategori sebagaimana dimaksud pada ayat (2) ditentukan berdasarkan kriteria:
a. kompleksitas rencana Usaha dan/atau Kegiatan;
b. dampak rencana Usaha dan/atau Kegiatan terhadap Lingkungan Hidup;
c. sensitifitas lokasi rencana Usaha dan/atau Kegiatan; dan/atau
d. kondisi daya dukung dan daya tampung Lingkungan Hidup di lokasi rencana Usaha dan/atau Kegiatan.
8.2 Category Determination Criteria
| Criterion | Category A (High) | Category B (Medium) | Category C (Lower) |
|---|---|---|---|
| Project Complexity | High complexity | Moderate complexity | Lower complexity |
| Environmental Impact | Significant impact | Moderate impact | Limited impact |
| Location Sensitivity | Sensitive location | Moderate sensitivity | Lower sensitivity |
| Carrying Capacity | Stressed conditions | Moderate conditions | Adequate capacity |
8.3 Preparation Timeline Matrix
Pasal 42 establishes maximum preparation timeframes:
| Category | Maximum Preparation Time | Notes |
|---|---|---|
| Category A | 180 days | For high complexity, significant impact projects |
| Category B | 120 days | For moderate complexity projects |
| Category C | 60 days | For lower complexity projects |
| Very Complex | Beyond 180 days | Requires proponent request and approval |
9.0 Technical Approval Requirements
9.1 Persetujuan Teknis Mandatory Attachments
Pasal 43 requires that Andal and RKL-RPL submissions include Technical Approvals:
Pasal 43 ayat (2)-(3):
(2) Pengajuan dokumen Andal dan dokumen RKL-RPL sebagaimana dimaksud pada ayat (1) harus dilengkapi dengan Persetujuan Teknis.
(3) Persetujuan Teknis sebagaimana dimaksud pada ayat (2) terdiri atas:
a. pemenuhan Baku Mutu Air Limbah;
b. pemenuhan Baku Mutu Emisi;
c. Pengelolaan Limbah B3; dan/atau
d. analisis mengenai dampak lalu lintas.
This means project proponents must obtain technical clearances for wastewater, emissions, B3 waste, and traffic (where applicable) before or concurrent with AMDAL submission.
10.0 Assessment and Feasibility Test
10.1 Eleven Feasibility Criteria
Pasal 47 establishes comprehensive criteria for the environmental feasibility test. The Tim Uji Kelayakan Lingkungan Hidup evaluates:
| Criterion | Assessment Focus |
|---|---|
| 1. Spatial Plan Compliance | Conformity with spatial planning requirements |
| 2. Environmental Policy Compliance | Alignment with environmental protection policies |
| 3. Defense/Security | No interference with national defense/security interests |
| 4. Impact Prediction | Accurate assessment across bio-geo-chemical, social, economic, cultural, spatial, and public health aspects |
| 5. Holistic Evaluation | Integrated assessment showing balance of positive and negative impacts |
| 6. Proponent Capability | Ability to manage negative impacts through technology, social, and institutional approaches |
| 7. Social Values | No interference with community values (emic view) |
| 8. Ecological Entities | No interference with key species, ecological importance, economic importance, or scientific importance |
| 9. Existing Activities | No interference with existing businesses/activities in vicinity |
| 10. Carrying Capacity | Compliance with environmental carrying capacity limits |
10.2 Assessment Timeline
Pasal 48 establishes the assessment timeline:
Pasal 48 ayat (1):
Jangka waktu penilaian substansi dokumen Andal dan dokumen RKL-RPL dan uji kelayakan Lingkungan Hidup... dilakukan paling lama 50 (lima puluh) hari kerja sejak dokumen Andal dan dokumen RKL-RPL dinyatakan lengkap dalam penilaian administrasi.
This means substantive assessment and feasibility testing must be completed within 50 working days of administrative completeness. This timeline includes time for any document revisions required during assessment.
10.3 Assessment Outcomes
The assessment process yields one of two outcomes:
| Outcome | Document Issued | Effect |
|---|---|---|
| Approval | Surat Keputusan Kelayakan Lingkungan Hidup | Constitutes Environmental Approval; prerequisite for Business Permit |
| Rejection | Surat keputusan ketidaklayakan Lingkungan Hidup | Project cannot proceed; reasons for rejection stated |
11.0 Compliance Implications
11.1 Critical Checkpoints
Project proponents should ensure compliance at key checkpoints:
| Checkpoint | Compliance Requirement |
|---|---|
| Before Preparation | Spatial plan conformity confirmation; certified AMDAL author engagement |
| ToR Form Stage | All scoping elements complete; public participation properly documented |
| Andal Preparation | All nine mandatory sections included; detailed baseline data adequate |
| RKL-RPL Preparation | RKL and RPL matrices complete; Technical Approvals obtained |
| Submission | All three documents complete; Technical Approvals attached |
| Assessment | Responsive to Tim Uji Kelayakan requests within 30-day revision window |
11.2 Common Deficiencies
Based on the regulatory requirements, common document deficiencies include:
- Incomplete environmental baseline data
- Inadequate public participation documentation
- Missing or incomplete Technical Approvals
- RKL-RPL matrices lacking required elements
- Study boundaries not properly defined
- Holistic evaluation insufficiently integrative
12.0 Regulatory Context
PP 22/2021 implements the requirements of Law Number 32 of 2009 on Environmental Protection and Management (Undang-Undang Nomor 32 Tahun 2009 tentang Perlindungan dan Pengelolaan Lingkungan Hidup) as amended by the Job Creation Law. The AMDAL document structure requirements are detailed in BAB II (Pasal 21-49) with procedural guidance provided in LAMPIRAN II.
Project proponents and environmental consultants should consult the complete regulation text and LAMPIRAN II for detailed format requirements. The official regulation is available through the BPK Legal Database at JDIH BPK.
This analysis examines PP 22/2021 as the governing framework for AMDAL document structure requirements in Indonesia. For specific project applications, consultation with environmental authorities and certified AMDAL consultants is recommended. Regulatory requirements may be further specified through implementing ministerial regulations.
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