AMDAL Exemptions in Indonesian Environmental Law: The Ten Categories That Bypass Full Impact Assessment Under PP 22/2021
1.0 The Exemption Framework in Environmental Assessment
Government Regulation PP 22/2021 establishes a comprehensive framework for environmental assessment through AMDAL (Environmental Impact Assessment), UKL-UPL (Environmental Management and Monitoring Efforts), and SPPL (Environmental Capability Statement). While AMDAL is required for activities with significant environmental impacts, Pasal 10 establishes ten specific categories where activities are exempted from full AMDAL requirements.
These exemptions do not eliminate environmental oversight. Most exempted activities still require UKL-UPL or SPPL documentation. The exemptions recognize situations where adequate environmental assessment has already been conducted at a higher planning level, where activities support environmental protection, or where emergency circumstances demand rapid response.
1.1 Exemption Categories Overview
| Category | Indonesian Reference | Core Trigger | Follow-up Document |
|---|---|---|---|
| (a) RDTR with KLHS | Pasal 10(1)a | Detailed spatial plan with strategic assessment | UKL-UPL or SPPL |
| (b) Forest Plan with KLHS | Pasal 10(1)b | Forest management plan with strategic assessment | UKL-UPL or SPPL |
| (c) Government Master Plan | Pasal 10(1)c | Government program with master plan + KLHS | UKL-UPL or SPPL |
| (d) Protected Area Activities | Pasal 10(1)d | Exempted activities in protected areas | UKL-UPL or SPPL |
| (e) Government Research | Pasal 10(1)e | Non-commercial government research | UKL-UPL or SPPL |
| (f) Area AMDAL Coverage | Pasal 10(1)f | Within area with area-wide AMDAL | UKL-UPL or SPPL |
| (g) RKL-RPL Rinci Coverage | Pasal 10(1)g | Within area requiring detailed RKL-RPL | RKL-RPL Rinci |
| (h) Disaster Emergency | Pasal 10(1)h | Disaster emergency response | None required |
| (i) Environmental Recovery | Pasal 10(1)i | Government environmental restoration | None required |
| (j) Protected Area Determination | Pasal 10(1)j | Obtained exemption from authority | UKL-UPL or SPPL |
Pasal 10 ayat (1) establishes:
Kewajiban memiliki Amdal sebagaimana dimaksud dalam Pasal 5 ayat (2) dikecualikan bagi rencana Usaha dan/atau Kegiatan yang: [ten categories listed]...
2.0 KLHS-Based Exemptions: Strategic Assessment at Planning Level
Three exemption categories rely on Kajian Lingkungan Hidup Strategis (KLHS) or Strategic Environmental Assessment conducted at the planning stage, eliminating the need for project-level AMDAL.
2.1 Category (a): RDTR with Comprehensive KLHS
| Element | Requirement |
|---|---|
| Location | District/city (kabupaten/kota) |
| Planning instrument | Rencana Detail Tata Ruang (RDTR) |
| Environmental integration | KLHS conducted comprehensively |
| Methodology | Holistic, integrative, thematic, spatial approaches |
| Follow-up | UKL-UPL or SPPL |
Activities located in districts/cities with detailed spatial plans (RDTR) that have been prepared with comprehensive Strategic Environmental Assessment (KLHS) are exempted from AMDAL. The rationale is that environmental considerations have already been integrated at the spatial planning level.
Pasal 10 ayat (1) huruf a provides:
lokasi rencana Usaha dan/atau Kegiatannya berada pada kabupaten/kota yang memiliki rencana detail tata ruang yang telah dilengkapi dengan kajian Lingkungan Hidup strategis yang dibuat dan dilaksanakan secara komprehensif dan rinci sesuai dengan ketentuan peraturan perundang-undangan...
2.2 Category (b): Forest Management Plan with KLHS
| Element | Requirement |
|---|---|
| Location | Forest area (kawasan hutan) |
| Planning instrument | Rencana Kelola Hutan |
| Environmental integration | KLHS conducted comprehensively |
| Definition | Plan for forest management units per forestry planning |
| Follow-up | UKL-UPL or SPPL |
Forest areas with comprehensive forest management plans that include KLHS are exempted. The forest management plan (rencana kelola hutan) is defined in the explanatory notes as a plan for forest management units prepared based on forest arrangement and forestry planning, considering community aspirations, participation, cultural values, and environmental conditions.
2.3 Category (c): Government Master Plans with KLHS
| Element | Requirement |
|---|---|
| Proponent | Government and/or Regional Government |
| Planning instrument | Rencana Induk (Master Plan) |
| Scope | Policy, plan, and/or program |
| Environmental integration | KLHS conducted comprehensively |
| Follow-up | UKL-UPL or SPPL |
Government programs at national or regional level that operate under master plans with comprehensive KLHS are exempted. This recognizes that strategic infrastructure and development programs often conduct environmental assessment at the program level rather than project level.
2.4 KLHS Methodology Requirement
Pasal 10 ayat (2) specifies:
Kajian Lingkungan Hidup strategis yang dibuat dan dilaksanakan secara komprehensif dan rinci sebagaimana dimaksud pada ayat (1) huruf a, huruf b, dan huruf c diselenggarakan dengan pendekatan holistik, integratif, tematik, dan spasial.
For KLHS-based exemptions to apply, the strategic assessment must be conducted using four mandatory approaches:
| Approach | Indonesian Term | Purpose |
|---|---|---|
| Holistic | Holistik | Comprehensive consideration of all environmental aspects |
| Integrative | Integratif | Integration across sectors and stakeholders |
| Thematic | Tematik | Focus on relevant environmental themes |
| Spatial | Spasial | Consideration of geographic and spatial dimensions |
3.0 Protected Area Exemptions: Category (d) and Sub-Categories
Category (d) addresses activities conducted in or directly bordering protected areas (kawasan lindung). This exemption recognizes that certain activities in protected areas are already subject to strict environmental controls by the protected area management regime.
3.1 Six Sub-Exemption Categories
Pasal 10 ayat (3) establishes protected area sub-exemptions:
| Sub-Category | Scope | Key Condition |
|---|---|---|
| Mining/Oil/Gas/Geothermal Exploration | Exploration only | No supporting activities at AMDAL scale |
| Scientific Research | Non-commercial | Does not disturb protected function |
| Conservation Support | Activities supporting preservation | Supports protected area function |
| Defense/Security | National defense activities | No significant environmental impact |
| Low-Impact Activities | Any activity | Clearly no significant impact |
| Indigenous Cultivation | Traditional use by penduduk asli | Fixed area, strict supervision |
Pasal 10 ayat (3) states:
Rencana Usaha dan/atau Kegiatan yang dikecualikan sebagaimana dimaksud pada ayat (1) huruf d meliputi: a. eksplorasi pertambangan, minyak dan gas bumi, dan panas bumi yang tidak diikuti dengan Usaha dan/atau Kegiatan pendukung yang skala/besarannya wajib Amdal; b. penelitian dan pengembangan nonkomersial di bidang ilmu pengetahuan yang tidak mengganggu fungsi kawasan lindung; c. kegiatan yang menunjang/mendukung pelestarian kawasan lindung; d. kegiatan yang terkait kepentingan pertahanan dan keamanan negara yang tidak memiliki Dampak Penting terhadap Lingkungan Hidup; e. kegiatan secara nyata tidak memiliki Dampak Penting terhadap Lingkungan Hidup; dan/atau f. budidaya yang diizinkan bagi penduduk asli dengan luasan tetap dan tidak mempengaruhi fungsi lindung kawasan dan di bawah pengawasan ketat.
3.2 Indigenous Community Cultivation Provisions
The indigenous cultivation exemption (sub-category f) reflects Indonesia's recognition of traditional community rights within protected areas. However, strict conditions apply:
| Requirement | Specification |
|---|---|
| Beneficiary | Penduduk asli (indigenous/local residents) |
| Area limitation | Fixed area (luasan tetap) |
| Impact restriction | Does not affect protected function |
| Oversight | Under strict supervision (pengawasan ketat) |
4.0 Area-Wide AMDAL Coverage: Categories (f) and (g)
Two exemption categories address activities within areas that have already undergone area-wide environmental assessment, such as industrial estates, special economic zones, and ports.
4.1 Category (f): Tenant in Area AMDAL Coverage
| Element | Requirement |
|---|---|
| Location | Within area with AMDAL kawasan |
| Area types | Industrial estates, SEZ, ports, free trade zones |
| Coverage requirement | Activity within scope of area AMDAL |
| Environmental approval | Area has Persetujuan Lingkungan kawasan |
| Follow-up | UKL-UPL or SPPL |
The explanatory notes clarify that this exemption applies specifically to tenants in industrial areas, special economic zones, port areas, and free trade zones where area-wide AMDAL has been completed and the tenant's activities fall within the scope of that assessment.
Penjelasan Pasal 10 huruf g states:
Pengecualian ini hanya berlaku untuk tenant yang berada di kawasan industri, kawasan ekonomi khusus, kawasan pelabuhan dan perdagangan bebas yang telah dilengkapi dengan Amdal kawasan serta rencana Usaha dan/atau Kegiatan milik tenant telah di lingkup di dalam Amdal kawasan.
4.2 Category (g): RKL-RPL Rinci Requirement
| Element | Requirement |
|---|---|
| Location | Within area with area AMDAL |
| Regulatory basis | Peraturan requiring detailed RKL-RPL |
| Follow-up document | RKL-RPL Rinci (not UKL-UPL/SPPL) |
| Form | Pernyataan Kesanggupan Pengelolaan Lingkungan Hidup |
| Validation | By area manager (pengelola kawasan) |
Category (g) differs from (f) in that activities must prepare detailed Environmental Management and Monitoring Plans (RKL-RPL Rinci) rather than standard UKL-UPL or SPPL. This detailed RKL-RPL constitutes the Environmental Approval for the business and becomes a prerequisite for business permits within the area.
5.0 Government Activity Exemptions: Categories (e) and (i)
Two exemption categories specifically address government activities in research and environmental recovery.
5.1 Category (e): Government Research Activities
| Element | Requirement |
|---|---|
| Proponent | Government and/or Regional Government |
| Purpose | Research (penelitian) |
| Commercial limitation | Non-commercial only |
| Follow-up | UKL-UPL or SPPL |
Government research activities conducted for scientific purposes without commercial intent are exempted from AMDAL. However, they still require appropriate environmental documentation (UKL-UPL or SPPL).
5.2 Category (i): Environmental Recovery Activities
| Element | Requirement |
|---|---|
| Proponent | Government and/or Regional Government |
| Purpose | Environmental function recovery (pemulihan fungsi Lingkungan Hidup) |
| Location | Areas not burdened by business permits |
| Follow-up | None required |
Environmental recovery activities by government are fully exempted from environmental documentation requirements. The explanatory notes provide examples:
| Recovery Type | Description |
|---|---|
| Natural materials recovery | Recovery not requiring permits using natural materials |
| B3 contaminated land | Recovery of land contaminated by B3 waste |
| Unknown source recovery | Recovery where pollution source/perpetrator is unknown |
6.0 Emergency and Discretionary Exemptions: Categories (h) and (j)
6.1 Category (h): Disaster Emergency Response
| Element | Requirement |
|---|---|
| Trigger | Kondisi tanggap darurat bencana |
| Scope | Activities during disaster emergency |
| Follow-up | None required |
| Rationale | Immediate response priority |
Disaster emergency response activities are fully exempted from both AMDAL and follow-up documentation requirements, recognizing the need for immediate action during emergencies.
6.2 Category (j): Protected Area Authority Determination
| Element | Requirement |
|---|---|
| Location | In or bordering protected areas |
| Activity scope | Not meeting AMDAL scale/size thresholds |
| Mechanism | Application to protected area authority |
| Determination | Exemption from protected area manager |
| Follow-up | UKL-UPL or SPPL |
Category (j) provides a discretionary pathway for activities not otherwise covered. Activities in or bordering protected areas that do not meet AMDAL scale/size requirements may apply for exemption determination from the authority responsible for managing the protected area.
7.0 Follow-Up Documentation Matrix
Not all exemptions eliminate environmental documentation requirements. The regulation establishes a clear hierarchy of follow-up requirements.
7.1 Documentation Requirements by Category
| Exemption Categories | Follow-up Document | Regulatory Basis |
|---|---|---|
| (a), (b), (c), (d), (e), (f), (j) | UKL-UPL or SPPL | Pasal 11(1) |
| (g) | RKL-RPL Rinci | Pasal 11(2) |
| (h), (i) | None required | Pasal 11(4) |
Pasal 11 establishes:
(1) Rencana Usaha dan/atau Kegiatan sebagaimana dimaksud dalam Pasal 10 ayat (1) huruf a sampai dengan huruf f, dan huruf j wajib memiliki UKL-UPL atau SPPL sesuai dengan ketentuan peraturan perundang-undangan. (2) Rencana Usaha dan/atau Kegiatan sebagaimana dimaksud dalam Pasal 10 ayat (1) huruf g wajib memiliki RKL-RPL rinci berdasarkan Persetujuan Lingkungan kawasan... (4) Rencana Usaha dan/atau Kegiatan sebagaimana dimaksud dalam Pasal 10 ayat (1) huruf h dan huruf i tidak memerlukan dokumen Lingkungan Hidup.
7.2 RKL-RPL Rinci Special Provisions
For category (g) activities, the detailed RKL-RPL has specific characteristics:
| Aspect | Requirement |
|---|---|
| Legal status | Constitutes Environmental Approval (Persetujuan Lingkungan) |
| Form | Pernyataan Kesanggupan Pengelolaan Lingkungan Hidup |
| Validation | Validated by area manager (pengelola kawasan) |
| Purpose | Prerequisite for business permits in area |
8.0 Practical Application Framework
8.1 Decision Tree for Exemption Determination
| Step | Question | If Yes | If No |
|---|---|---|---|
| 1 | Does location have RDTR/Forest Plan/Master Plan with comprehensive KLHS? | Exemption (a), (b), or (c) applies | Continue to Step 2 |
| 2 | Is activity in/bordering protected area meeting sub-exemption criteria? | Exemption (d) applies | Continue to Step 3 |
| 3 | Is activity government research (non-commercial)? | Exemption (e) applies | Continue to Step 4 |
| 4 | Is location within area with area-wide AMDAL? | Exemption (f) or (g) applies | Continue to Step 5 |
| 5 | Is activity disaster emergency response? | Exemption (h) applies | Continue to Step 6 |
| 6 | Is activity government environmental recovery? | Exemption (i) applies | Continue to Step 7 |
| 7 | Can exemption determination be obtained from protected area authority? | Exemption (j) may apply | No exemption - standard AMDAL process |
8.2 Key Implementation Considerations
| Factor | Consideration |
|---|---|
| KLHS quality | Exemptions (a), (b), (c) depend on KLHS being truly comprehensive |
| Scope verification | Area AMDAL exemptions require verification that activity falls within assessed scope |
| Protected area authority | Categories (d) and (j) require coordination with protected area managers |
| Documentation timing | Follow-up documents must be prepared before business permit issuance |
Conclusion
Indonesia's AMDAL exemption framework under PP 22/2021 provides ten pathways for activities to bypass full environmental impact assessment while maintaining environmental oversight through alternative mechanisms. The exemptions recognize that environmental assessment can occur at multiple levels - from strategic planning through KLHS, to area-wide AMDAL, to project-specific documentation.
Critically, most exemptions do not eliminate environmental documentation requirements. Seven of ten categories still require UKL-UPL or SPPL preparation. Only disaster emergency response and government environmental recovery activities are fully exempted from documentation requirements.
For business operators, understanding these exemptions can significantly streamline the environmental approval process. Activities in areas with comprehensive planning (KLHS-backed spatial plans) or existing area-wide AMDAL coverage benefit from exemptions, though compliance with follow-up documentation requirements remains mandatory. Violations of environmental requirements, even for exempted activities, remain subject to administrative sanctions.
Official Sources
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