B3 Waste Classification in Indonesian Environmental Law: The Two-Category System Under PP 22/2021
1.0 The Classification Foundation: Two Hazard Categories and Three Source Types
Government Regulation PP 22/2021 on Environmental Protection and Management Implementation establishes a comprehensive B3 waste classification system in Chapter VII (BAB VII - Pengelolaan Limbah Bahan Berbahaya dan Beracun), creating a framework that every waste generator must understand. Article 276 paragraph 1 establishes the mandatory management principle: "Setiap Orang yang menghasilkan Limbah B3 wajib melakukan Pengelolaan Limbah B3 yang dihasilkannya" (Every Person generating B3 Waste must manage the B3 Waste they generate). This foundational obligation applies universally to all generators, regardless of business scale or sector. Article 276 paragraph 2 then establishes the two-category hazard classification: "Limbah B3 berdasarkan kategori bahayanya terdiri atas: a. Limbah B3 kategori 1; dan b. Limbah B3 kategori 2" (B3 Waste based on hazard category consists of: Category 1 B3 Waste; and Category 2 B3 Waste). Category 1 represents the higher hazard level with more stringent management requirements, while Category 2 represents moderate hazard with correspondingly less stringent but still regulated management. Beyond hazard categories, Article 276 paragraph 3 establishes three source types: non-specific source waste (sumber tidak spesifik), waste from expired, spilled, or off-specification B3 and B3 packaging, and specific source waste (sumber spesifik). Specific source waste is further subdivided into general specific source (sumber spesifik umum) and special specific source (sumber spesifik khusus). The combination of hazard category and source type determines the applicable waste code under LAMPIRAN IX and the specific management requirements. Understanding this dual classification system is essential for proper waste characterization and regulatory compliance. Once classified, B3 waste must be managed according to storage requirements and may trigger administrative sanctions if mishandled (see Matrix 1.1 and Matrix 1.2 below).
Matrix 1.1: Two B3 Waste Hazard Categories
| No. | Category | Indonesian Term | Hazard Level | Management Stringency | Article Reference |
|---|---|---|---|---|---|
| 1.1 | Category 1 | Limbah B3 kategori 1 | High | Most stringent storage, treatment, disposal requirements | Article 276(2)(a) |
| 1.2 | Category 2 | Limbah B3 kategori 2 | Moderate | Less stringent but still regulated management | Article 276(2)(b) |
Matrix 1.2: Three B3 Waste Source Types
| No. | Source Type | Indonesian Term | Description | Example Wastes | Article Reference |
|---|---|---|---|---|---|
| 1.3 | Non-Specific Source | Sumber tidak spesifik | Common across multiple industries | Halogenated/non-halogenated solvents, acids, bases | Article 276(3)(a) |
| 1.4 | Expired/Spilled B3 | B3 kedaluwarsa, tumpah, tidak memenuhi spesifikasi, bekas kemasan | B3 materials and packaging | Expired chemicals, off-spec products, used B3 containers | Article 276(3)(b) |
| 1.5 | Specific Source - General | Sumber spesifik umum | Industry-specific wastes | Plating sludge, paint waste | Article 276(4)(a) |
| 1.6 | Specific Source - Special | Sumber spesifik khusus | Process-specific wastes | Fly ash, bottom ash | Article 276(4)(b) |
2.0 The Six B3 Characteristics: Physical and Toxic Classification
Article 278 paragraph 2 defines the six characteristics that determine whether waste qualifies as B3: "Karakteristik Limbah B3 meliputi: a. mudah meledak; b. mudah menyala; c. reaktif; d. infeksius; e. korosif; dan/atau f. beracun" (B3 Waste characteristics include: explosive; ignitable; reactive; infectious; corrosive; and/or toxic). These six characteristics divide into two groups: five physical characteristics (explosive, ignitable, reactive, infectious, corrosive) that trigger immediate Category 1 classification, and one toxic characteristic (beracun) that requires quantitative testing to determine whether waste falls into Category 1, Category 2, or non-B3 status. LAMPIRAN X of PP 22/2021 provides detailed testing parameters for each characteristic. Explosive waste (mudah meledak) is determined through visual observation at 25 degrees Celsius and 760 mmHg pressure for materials capable of explosive reaction. Ignitable waste (mudah menyala) applies to materials with flash point at or below 60 degrees Celsius or capable of spontaneous ignition. Reactive waste (reaktif) includes materials demonstrating instability, violent water reaction, or cyanide/sulfide release at pH levels between 2.0 and 12.5. Infectious waste (infeksius) contains pathogens from medical or laboratory sources. Corrosive waste (korosif) has pH at or below 2.0 or at or above 12.5. Any waste exhibiting any of these five physical characteristics is automatically classified as Category 1 B3 waste without further testing. The toxic characteristic, however, requires sequential testing through TCLP, LD50, and potentially subchronic toxicology protocols to determine category placement (see Matrix 2.1 below).
Matrix 2.1: Six B3 Characteristics Under PP 22/2021
| No. | Characteristic | Indonesian Term | Code | Testing Method | Category If Positive | Article Reference |
|---|---|---|---|---|---|---|
| 2.1 | Explosive | Mudah meledak | E | Visual observation at 25 degrees C, 760 mmHg | Category 1 | Article 278(2)(a), LAMPIRAN X |
| 2.2 | Ignitable | Mudah menyala | I | Flash point at or below 60 degrees C or spontaneous ignition | Category 1 | Article 278(2)(b), LAMPIRAN X |
| 2.3 | Reactive | Reaktif | R | Instability, water reaction, cyanide/sulfide release at pH 2-12.5 | Category 1 | Article 278(2)(c), LAMPIRAN X |
| 2.4 | Infectious | Infeksius | X | Pathogen presence from medical/laboratory sources | Category 1 | Article 278(2)(d), LAMPIRAN X |
| 2.5 | Corrosive | Korosif | C | pH at or below 2.0 or at or above 12.5 | Category 1 | Article 278(2)(e), LAMPIRAN X |
| 2.6 | Toxic | Beracun | T | TCLP, LD50, subchronic testing | Category 1 or 2 | Article 278(2)(f), LAMPIRAN X |
3.0 The Testing Sequence: From Listed Waste to Characteristic Testing
Article 277 establishes that B3 waste as defined in Article 276 is the B3 waste listed in LAMPIRAN IX: "Limbah B3 sebagaimana dimaksud dalam Pasal 276 merupakan Limbah B3 sebagaimana tercantum dalam Lampiran IX yang merupakan bagian tidak terpisahkan dari Peraturan Pemerintah ini" (B3 Waste as meant in Article 276 is B3 Waste as listed in Annex IX, which is an integral part of this Government Regulation). LAMPIRAN IX contains approximately 150 waste codes, with roughly 89 classified as Category 1 and 61 as Category 2, spanning 57 annex pages. For waste generators, the first step in classification is checking whether the waste appears on this list. If the waste matches a listed code, the listed category applies without further testing. However, Article 278 paragraph 1 addresses waste falling outside LAMPIRAN IX: "Dalam hal terdapat Limbah di luar daftar Limbah B3 sebagaimana tercantum dalam Lampiran IX yang terindikasi memiliki karakteristik Limbah B3, Menteri wajib melakukan uji karakteristik untuk mengidentifikasi Limbah sebagai: a. Limbah B3 kategori 1; b. Limbah B3 kategori 2; atau c. Limbah nonB3" (If waste outside the B3 list in Annex IX is indicated to have B3 characteristics, the Minister must conduct characteristic testing to identify waste as: Category 1, Category 2, or non-B3). Article 278 paragraph 5 mandates sequential testing: "Uji karakteristik sebagaimana dimaksud pada ayat (3) dan ayat (4) dilakukan secara berurutan" (Characteristic testing is conducted sequentially). The testing sequence proceeds from physical characteristics through TCLP, LD50, and potentially subchronic toxicology testing, with any positive result at each stage triggering the corresponding classification (see Matrix 3.1 below).
Matrix 3.1: Sequential Testing Protocol for Unlisted Waste
| No. | Step | Test Type | If Positive Result | If Negative Result | Article Reference |
|---|---|---|---|---|---|
| 3.1 | Step 1 | Check LAMPIRAN IX | Use listed category (1 or 2) | Proceed to Step 2 | Article 277 |
| 3.2 | Step 2 | Physical characteristics (E, I, R, X, C) | Category 1 | Proceed to Step 3 | Article 278(3)(a), LAMPIRAN X |
| 3.3 | Step 3 | TCLP testing | Greater than TCLP-A: Category 1 | Proceed to Step 4 | Article 278(3)(b), LAMPIRAN XI |
| 3.4 | Step 4 | LD50 acute toxicity | At or below 50 mg/kg: Category 1 | Proceed to Step 5 | Article 278(3)(c), LAMPIRAN X |
| 3.5 | Step 5 | TCLP between thresholds | Greater than TCLP-B but at or below TCLP-A: Category 2 | Proceed to Step 6 | Article 278(4)(a), LAMPIRAN XI |
| 3.6 | Step 6 | LD50 moderate range | Greater than 50 to at or below 5000 mg/kg: Category 2 | Proceed to Step 7 | Article 278(4)(b), LAMPIRAN X |
| 3.7 | Step 7 | Subchronic toxicity (90 days) | Toxic effects observed: Category 2 | Non-B3 | Article 278(4)(c), LAMPIRAN X |
4.0 TCLP and LD50: Quantitative Toxicity Thresholds
Article 278 paragraphs 3 and 4 establish the quantitative thresholds for toxic characteristic testing. For Category 1 determination under Article 278(3)(b), TCLP testing must show: "konsentrasi zat pencemar lebih besar dari konsentrasi zat pencemar pada kolom TCLP-A sebagaimana tercantum dalam Lampiran XI" (pollutant concentration greater than the pollutant concentration in column TCLP-A as listed in Annex XI). For LD50 testing under Article 278(3)(c), Category 1 applies when: "nilai Uji Toksikologi LD50 lebih kecil dari atau sama dengan 50 mg/kg berat badan hewan uji" (LD50 Toxicology Test value less than or equal to 50 mg/kg test animal body weight). For Category 2 determination, Article 278(4)(a) specifies TCLP results must be: "lebih kecil dari atau sama dengan konsentrasi zat pencemar pada kolom TCLP-A dan memiliki konsentrasi zat pencemar lebih besar dari konsentrasi zat pencemar pada kolom TCLP-B" (less than or equal to TCLP-A concentration and greater than TCLP-B concentration). LAMPIRAN XI provides 60 TCLP parameters with dual threshold values. For heavy metals, mercury has TCLP-A at 0.3 mg/L and TCLP-B at 0.05 mg/L; lead has 3 mg/L and 0.5 mg/L respectively; cadmium has 0.9 mg/L and 0.15 mg/L; arsenic has 3 mg/L and 0.5 mg/L; and chromium VI has 15 mg/L and 2.5 mg/L. Organic compounds include benzene at 3 mg/L and 0.5 mg/L, and total DDT compounds at 0.3 mg/L and 0.05 mg/L. For LD50 testing, waste with values greater than 5000 mg/kg body weight is not classified as B3 for acute toxicity purposes, though it may still require subchronic testing (see Matrix 4.1 and Matrix 4.2 below).
Matrix 4.1: LD50 Toxicity Category Thresholds
| No. | LD50 Range | Classification | Hazard Level | Testing Requirement | Article Reference |
|---|---|---|---|---|---|
| 4.1 | At or below 50 mg/kg | Category 1 | High acute toxicity | Single dose testing | Article 278(3)(c) |
| 4.2 | Greater than 50 to at or below 5000 mg/kg | Category 2 | Moderate acute toxicity | Single dose testing | Article 278(4)(b) |
| 4.3 | Greater than 5000 mg/kg | Not B3 for acute toxicity | Low acute toxicity | Proceed to subchronic testing | Article 278(4)(c) |
Matrix 4.2: Selected TCLP Threshold Parameters from LAMPIRAN XI
| No. | Parameter | TCLP-A (mg/L) | TCLP-B (mg/L) | Category 1 Trigger | Category 2 Range | Article Reference |
|---|---|---|---|---|---|---|
| 4.4 | Mercury (Hg) | 0.3 | 0.05 | Greater than 0.3 mg/L | Greater than 0.05 to at or below 0.3 mg/L | LAMPIRAN XI |
| 4.5 | Lead (Pb) | 3 | 0.5 | Greater than 3 mg/L | Greater than 0.5 to at or below 3 mg/L | LAMPIRAN XI |
| 4.6 | Cadmium (Cd) | 0.9 | 0.15 | Greater than 0.9 mg/L | Greater than 0.15 to at or below 0.9 mg/L | LAMPIRAN XI |
| 4.7 | Arsenic (As) | 3 | 0.5 | Greater than 3 mg/L | Greater than 0.5 to at or below 3 mg/L | LAMPIRAN XI |
| 4.8 | Chromium VI | 15 | 2.5 | Greater than 15 mg/L | Greater than 2.5 to at or below 15 mg/L | LAMPIRAN XI |
| 4.9 | Benzene | 3 | 0.5 | Greater than 3 mg/L | Greater than 0.5 to at or below 3 mg/L | LAMPIRAN XI |
| 4.10 | DDT+DDD+DDE | 0.3 | 0.05 | Greater than 0.3 mg/L | Greater than 0.05 to at or below 0.3 mg/L | LAMPIRAN XI |
| 4.11 | Total Cyanide | 21 | 3.5 | Greater than 21 mg/L | Greater than 3.5 to at or below 21 mg/L | LAMPIRAN XI |
5.0 Laboratory Requirements and Expert Team Evaluation
Article 279 establishes laboratory requirements for characteristic testing. Paragraph 1 mandates: "Dalam melakukan uji karakteristik, Menteri menggunakan laboratorium yang terakreditasi untuk masing-masing uji" (For characteristic testing, the Minister uses accredited laboratories for each test type). Paragraph 2 provides an alternative standard: "Dalam hal belum terdapat laboratorium yang terakreditasi, uji karakteristik dilakukan dengan menggunakan laboratorium yang menerapkan prosedur yang telah memenuhi Standar Nasional Indonesia mengenai tata cara berlaboratorium yang baik" (If no accredited laboratory exists, testing uses laboratories meeting SNI good laboratory practice standards). Beyond laboratory testing, Articles 280-282 establish expert team evaluation requirements. Article 280 paragraph 1 requires: "Menteri setelah mendapatkan hasil uji karakteristik menugaskan tim ahli Limbah B3 untuk melakukan evaluasi terhadap hasil uji karakteristik" (Minister after obtaining characteristic test results assigns B3 waste expert team to evaluate test results). The expert team evaluation under Article 280 paragraph 2 covers three areas: test results, production processes, and raw materials used. Article 281 paragraph 3 specifies minimum expert team composition: "tim ahli Limbah B3 paling sedikit terdiri atas pakar di bidang: a. toksikologi; b. kesehatan manusia; c. proses industri; d. kimia; e. biologi; dan f. pakar lain yang ditentukan oleh Menteri" (B3 waste expert team includes at minimum specialists in: toxicology, human health, industrial process, chemistry, biology, and others as determined by Minister). Article 282 paragraph 2 establishes the timeline for final determination: "dalam jangka waktu paling lama 7 (tujuh) hari kerja Menteri menetapkan Limbah" (within maximum 7 working days Minister determines waste classification) (see Matrix 5.1 below).
Matrix 5.1: Expert Team Composition and Evaluation Requirements
| No. | Component | Indonesian Term | Requirement | Purpose | Article Reference |
|---|---|---|---|---|---|
| 5.1 | Laboratory Standard | Laboratorium terakreditasi | Accredited laboratory for each test type | Quality assurance | Article 279(1) |
| 5.2 | Alternative Standard | SNI tata cara berlaboratorium yang baik | Good laboratory practice if no accreditation | Fallback requirement | Article 279(2) |
| 5.3 | Toxicology Expert | Pakar toksikologi | Mandatory team member | Toxicity assessment | Article 281(3)(a) |
| 5.4 | Human Health Expert | Pakar kesehatan manusia | Mandatory team member | Health impact assessment | Article 281(3)(b) |
| 5.5 | Industrial Process Expert | Pakar proses industri | Mandatory team member | Process understanding | Article 281(3)(c) |
| 5.6 | Chemistry Expert | Pakar kimia | Mandatory team member | Chemical analysis | Article 281(3)(d) |
| 5.7 | Biology Expert | Pakar biologi | Mandatory team member | Biological assessment | Article 281(3)(e) |
| 5.8 | Other Experts | Pakar lain | As determined by Minister | Case-specific expertise | Article 281(3)(f) |
| 5.9 | Determination Timeline | Jangka waktu penetapan | Maximum 7 working days | Regulatory efficiency | Article 282(2) |
Conclusion: Implementing B3 Waste Classification
Indonesia's B3 waste classification system under PP 22/2021 creates a scientifically-grounded framework for hazardous waste identification and categorization. Key compliance elements include: (1) understanding the two-category system where Category 1 represents high hazard waste requiring the most stringent management and Category 2 represents moderate hazard waste with less stringent but still regulated requirements; (2) checking LAMPIRAN IX first to determine whether waste matches a listed code with predetermined category; (3) for unlisted waste, proceeding through sequential testing starting with physical characteristics (explosive, ignitable, reactive, infectious, corrosive) that trigger automatic Category 1 classification; (4) applying TCLP testing with dual thresholds where concentrations above TCLP-A indicate Category 1 and concentrations between TCLP-A and TCLP-B indicate Category 2; (5) conducting LD50 testing where values at or below 50 mg/kg indicate Category 1 and values between 50 and 5000 mg/kg indicate Category 2; (6) using only accredited laboratories or laboratories meeting SNI good laboratory practice standards; and (7) recognizing that final determination involves expert team evaluation with specialists in toxicology, human health, industrial process, chemistry, and biology. Waste generators should maintain detailed records of waste characterization to demonstrate proper classification and ensure appropriate downstream management.
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