B3 Waste Utilization in Indonesia: Four Recovery Pathways and Licensing Requirements Under PP 22/2021
Executive Summary
Government Regulation No. 22 of 2021 (PP 22/2021) establishes the regulatory framework for B3 (hazardous and toxic) waste utilization through BAB VII Paragraf 7 (Articles 315-326). The utilization framework positions waste recovery as a mandatory consideration before disposal, creating structured pathways for converting hazardous waste into valuable resources while protecting human health and the environment.
The regulation identifies four distinct utilization categories. B3 waste may serve as raw material substitution, replacing conventional inputs in manufacturing processes. Energy source substitution enables waste-to-energy applications including co-processing in cement kilns. Direct raw material use allows waste to function as primary production inputs. Technology-based utilization accommodates innovative recovery methods emerging from scientific advances.
Radioactivity restrictions create absolute barriers for certain waste streams. Waste exceeding specified contamination thresholds cannot enter utilization pathways regardless of other considerations. These limits protect against inadvertent radioactive contamination of products and production environments.
The licensing process operates through multiple sequential stages. Technical Approval from the Ministry of Environment and Forestry establishes capability to handle hazardous materials. Environmental Approval addresses broader project impacts. Business License authorizes commercial operations. Operational Eligibility Letters confirm facility compliance before operations commence.
Background & Context
B3 waste utilization represents the preferred management option in Indonesia's waste hierarchy after source reduction. Utilization recovers economic value from hazardous materials while diverting waste from treatment and disposal pathways that consume resources without creating productive outputs.
The regulatory framework addresses tension between economic incentives for waste recovery and environmental protection requirements. Without proper controls, utilization could become a pathway for disposing hazardous materials under the guise of productive use. Contaminated products, polluted production facilities, and worker exposure risks could result from inadequate utilization standards.
PP 22/2021's approach requires demonstrating genuine productive use before authorizing utilization activities. Technology specifications, product quality standards, and environmental quality standards must all be satisfied. The framework prevents "sham recycling" where waste is nominally utilized but actually disposed through inadequate processing.
The four utilization categories recognize that hazardous waste contains recoverable value in different forms. Some waste offers material value as production inputs. Other waste offers energy value through combustion. The categorization enables appropriate regulatory treatment for different recovery pathways.
Key Provisions
Utilization Obligation
Generators must pursue utilization before other management options.
Pasal 315:
"(1) Pemanfaatan Limbah B3 wajib dilaksanakan oleh Setiap Orang yang menghasilkan Limbah B3. (2) Dalam hal Setiap Orang sebagaimana dimaksud pada ayat (1) tidak mampu melakukan sendiri, Pemanfaatan Limbah B3 diserahkan kepada Pemanfaat Limbah B3."
Every B3 waste generator must carry out utilization of their waste. Generators unable to perform utilization themselves must transfer waste to licensed B3 waste utilizers. This obligation creates market demand for utilization services while ensuring waste enters structured management pathways rather than remaining unmanaged.
Four Utilization Categories
The regulation specifies four recognized utilization pathways.
Pasal 316 Ayat 1:
"(1) Pemanfaatan Limbah B3 sebagaimana dimaksud dalam Pasal 315 ayat (1) meliputi: a. Pemanfaatan Limbah B3 sebagai substitusi bahan baku; b. Pemanfaatan Limbah B3 sebagai substitusi sumber energi; c. Pemanfaatan Limbah B3 sebagai bahan baku; dan d. Pemanfaatan Limbah B3 sesuai dengan perkembangan ilmu pengetahuan dan teknologi."
Raw material substitution uses B3 waste to replace conventional inputs in existing production processes. Energy source substitution recovers thermal value through controlled combustion, commonly in cement kilns or other high-temperature industrial processes. Direct raw material use positions waste as a primary production input rather than substitute. Technology-based utilization enables novel recovery methods as science advances.
Utilization Considerations
Three factors guide utilization authorization decisions.
Pasal 316 Ayat 2:
"(2) Pemanfaatan Limbah B3 sebagaimana dimaksud pada ayat (1) dilakukan dengan mempertimbangkan: a. ketersediaan teknologi; b. standar produk jika hasil Pemanfaatan Limbah B3 berupa produk; dan c. standar Lingkungan Hidup atau baku mutu Lingkungan Hidup."
Technology availability ensures proposed utilization methods actually exist and function effectively. Product standards apply when utilization produces goods, ensuring outputs meet quality and safety specifications. Environmental standards and quality thresholds protect against pollution from utilization activities, including emissions, wastewater, and residual waste.
Radioactivity Restrictions
Absolute limits prohibit utilization of radioactive waste.
Pasal 317 Ayat 1:
"(1) Setiap Orang yang menghasilkan Limbah B3 dilarang melakukan Pemanfaatan Limbah B3 sebagaimana dimaksud dalam Pasal 316 terhadap Limbah B3 dari sumber tidak spesifik dan sumber spesifik yang memiliki tingkat kontaminasi radioaktif lebih besar dari atau sama dengan 1 Bq/cm² (satu Becquerel per sentimeter persegi) dan/atau konsentrasi aktivitas sebesar: a. 1 Bq/gr (satu Becquerel per gram) untuk tiap radionuklida anggota deret uranium dan thorium; atau b. 10 Bq/gr (sepuluh Becquerel per gram) untuk kalium."
B3 waste with surface radioactive contamination at or above 1 Becquerel per square centimeter cannot be utilized. Activity concentration limits of 1 Bq/g apply for uranium and thorium series radionuclides including Uranium-238, Radium-226, Radium-228, Thorium-228, Thorium-230, Thorium-234, Plumbum-210, and Polonium-210. Potassium faces a higher threshold of 10 Bq/g. These limits prevent radioactive contamination from entering products or production environments.
Exception for Radioactivity Reduction
Utilization becomes permissible if radioactivity can be reduced.
Pasal 317 Ayat 4:
"(4) Larangan melakukan Pemanfaatan Limbah B3 dikecualikan jika tingkat radioaktivitas dapat diturunkan di bawah tingkat kontaminasi radioaktif dan/atau konsentrasi aktivitas sebagaimana dimaksud pada ayat (1)."
Waste initially exceeding radioactivity thresholds may become eligible for utilization if treatment reduces contamination below specified limits. This exception enables recovery of materials that can be decontaminated while maintaining protection against radioactive exposure.
Licensing Requirements
Multiple approvals authorize utilization activities.
Pasal 318 Ayat 1-2:
"(1) Untuk dapat melakukan Pemanfaatan Limbah B3, Setiap Orang yang menghasilkan Limbah B3 wajib memiliki: a. Persetujuan Lingkungan; dan b. Perizinan Berusaha. (2) Untuk mendapatkan Persetujuan Lingkungan sebagaimana dimaksud pada ayat (1) huruf a, Setiap Orang yang menghasilkan Limbah B3 wajib memiliki Persetujuan Teknis Pengelolaan Limbah B3 untuk kegiatan Pemanfaatan Limbah B3."
Utilizers must obtain Environmental Approval and Business License. Technical Approval for B3 waste management serves as prerequisite for Environmental Approval. This sequencing ensures technical competency verification before broader environmental impact assessment.
Technical Approval Application Requirements
Comprehensive documentation supports technical approval applications.
Pasal 318 Ayat 3:
"(3) Setiap Orang yang menghasilkan Limbah B3 sebagaimana dimaksud pada ayat (2) mengajukan permohonan kepada Menteri, dilengkapi dengan persyaratan yang meliputi: a. nama, sumber, karakteristik, dan jumlah Limbah B3 yang akan dimanfaatkan; b. lokasi dan koordinat kegiatan Pemanfaatan Limbah B3; c. rencana pembangunan fasilitas Pemanfaatan Limbah B3; d. dokumen mengenai tempat Penyimpanan Limbah B3; e. dokumen mengenai pengemasan Limbah B3; f. dokumen mengenai desain dan spesifikasi teknologi, dan kapasitas Pemanfaatan Limbah B3; g. dokumen mengenai nama dan jumlah bahan baku dan/atau bahan penolong berupa Limbah B3 untuk campuran Pemanfaatan Limbah B3; h. prosedur Pemanfaatan Limbah B3; i. dokumen rencana uji coba peralatan, metode, teknologi, dan/atau fasilitas Pemanfaatan Limbah B3; j. Sistem Tanggap Darurat berupa dokumen program kedaruratan Pengelolaan Limbah B3; dan k. tenaga kerja yang memiliki sertifikat kompetensi di bidang Pengelolaan Limbah B3."
Applications must identify waste to be utilized by name, source, characteristics, and quantity. Location coordinates enable site identification. Facility construction plans, storage documentation, packaging documentation, technology specifications, raw material composition, utilization procedures, trial plans, emergency response systems, and certified personnel all require documentation.
Approval Timeline
Defined timelines govern technical approval processing.
Pasal 319:
"(1) Menteri setelah menerima permohonan Persetujuan Teknis Pengelolaan Limbah B3 untuk kegiatan Pemanfaatan Limbah B3 sebagaimana dimaksud dalam Pasal 318 memberikan pernyataan tertulis mengenai kelengkapan administrasi permohonan Persetujuan Teknis paling lama 2 (dua) hari kerja sejak permohonan diterima. (2) Setelah permohonan dinyatakan lengkap, Menteri melakukan verifikasi paling lama 7 (tujuh) hari kerja. (3) Dalam hal hasil verifikasi sebagaimana dimaksud pada ayat (2) menunjukkan: a. permohonan Persetujuan Teknis memenuhi persyaratan, Menteri menerbitkan Persetujuan Teknis Pengelolaan Limbah B3 untuk kegiatan Pemanfaatan Limbah B3 paling lama 7 (tujuh) hari kerja sejak hasil verifikasi diketahui."
Administrative completeness determination occurs within 2 working days. Technical verification follows within 7 working days. Approval or rejection with reasons takes up to 7 working days after verification. Complete applications meeting requirements can expect technical approval within approximately 16 working days.
Technical Approval Content
Approved technical approvals specify operational parameters.
Pasal 321 Ayat 1:
"(1) Persetujuan Teknis Pengelolaan Limbah B3 untuk kegiatan Pemanfaatan Limbah B3 memuat: a. identitas pemegang Persetujuan Teknis Pengelolaan Limbah B3; b. tanggal penerbitan Persetujuan Teknis Pengelolaan Limbah B3; c. kewajiban pemegang Persetujuan Teknis Pengelolaan Limbah B3 untuk kegiatan Pemanfaatan Limbah B3, setelah Perizinan Berusaha terbit; dan d. persyaratan teknis Pemanfaatan Limbah B3."
Technical approvals identify the holder, issuance date, post-licensing obligations, and technical requirements. Technical requirements specify waste characteristics, utilization capacity, facility design, packaging procedures, site layout, B3 symbols, waste and emission channel layouts, laboratory test requirements, and emergency response documentation.
Utilization Reporting Obligations
Licensed utilizers face ongoing compliance requirements.
Pasal 322 Ayat 1:
"(1) Penghasil Limbah B3 yang melakukan kegiatan Pemanfaatan Limbah B3 wajib: a. melaksanakan kewajiban sebagaimana tercantum dalam Persetujuan Teknis Pengelolaan Limbah B3 untuk kegiatan Pemanfaatan Limbah B3; b. melakukan Pengumpulan Limbah B3 yang dihasilkannya; c. melakukan Penyimpanan Limbah B3 yang dihasilkan di tempat Penyimpanan Limbah B3; d. melakukan pengemasan Limbah B3 yang dihasilkannya; e. melakukan Pemanfaatan Limbah B3 yang dihasilkannya sesuai dengan ketentuan dalam Persetujuan Teknis; f. menaati Baku Mutu Air Limbah, jika Pemanfaatan Limbah B3 menghasilkan Air Limbah; g. menaati Baku Mutu Emisi, jika Pemanfaatan Limbah B3 menghasilkan Emisi."
Utilizers must comply with technical approval terms, collect and store waste properly, package waste according to requirements, conduct utilization within approved parameters, and meet wastewater and emission standards. Utilization activities generating wastewater must comply with wastewater quality standards. Activities generating emissions must meet emission quality standards.
Facility Verification and SLO
Constructed facilities require verification before operations.
Pasal 323 Ayat 1-4:
"(1) Berdasarkan laporan pembangunan fasilitas Pemanfaatan Limbah B3 sebagaimana dimaksud dalam Pasal 322 ayat (3), Menteri melakukan verifikasi paling lambat 10 (sepuluh) hari kerja sejak laporan diterima. (2) Dalam hal hasil verifikasi sebagaimana dimaksud pada ayat (1) menunjukkan fasilitas Pemanfaatan Limbah B3: a. sesuai dengan Persetujuan Teknis Pengelolaan Limbah B3 untuk kegiatan Pemanfaatan Limbah B3, Menteri menerbitkan SLO kegiatan Pemanfaatan Limbah B3. (4) SLO untuk kegiatan Pemanfaatan Limbah B3 sebagaimana dimaksud pada ayat (2) huruf a menjadi dasar dimulainya: a. kegiatan operasional Pemanfaatan Limbah B3; dan b. pengawasan terhadap ketaatan penanggung jawab Usaha dan/atau Kegiatan dalam Perizinan Berusaha."
Facility construction reports trigger verification within 10 working days. Compliant facilities receive Operational Eligibility Letters (SLO) within 7 days of verification. SLO issuance authorizes operational commencement and triggers compliance supervision under business licensing requirements.
Trial Requirements
Certain utilization types require mandatory trials.
Pasal 322 Ayat 1 huruf i:
"i. menyusun dan menyampaikan laporan uji coba Pemanfaatan Limbah B3, bagi Pemanfaatan Limbah B3 sebagai substitusi bahan baku yang tidak memiliki Standar Nasional Indonesia dan/atau substitusi sumber energi."
Mandatory trials apply for raw material substitution lacking Indonesian National Standards (SNI) and energy source substitution. Trial reports must be submitted within 14 days of trial completion. Trial verification follows the same process as facility verification, with SLO issuance upon successful verification.
Third-Party Utilization
Generators unable to utilize themselves may transfer to specialists.
Pasal 326 Ayat 1-3:
"(1) Dalam hal Setiap Orang yang menghasilkan Limbah B3 tidak mampu melakukan sendiri Pemanfaatan Limbah B3 yang dihasilkannya: a. Pemanfaatan Limbah B3 diserahkan kepada Pemanfaat Limbah B3; atau b. dapat melakukan ekspor Limbah B3 yang dihasilkannya. (2) Penyerahan Limbah B3 kepada Pemanfaat Limbah B3 sebagaimana dimaksud pada ayat (1) huruf a disertai dengan bukti penyerahan Limbah B3. (3) Salinan bukti penyerahan Limbah B3 sebagaimana dimaksud pada ayat (2) disampaikan kepada Menteri paling lama 7 (tujuh) hari setelah penyerahan Limbah B3."
Generators may transfer waste to licensed B3 waste utilizers with documented proof of transfer. Transfer documentation copies must reach the Minister within 7 days. Alternatively, generators may export waste if domestic utilization or treatment technology is unavailable.
Implementation & Compliance
Prospective B3 waste utilizers should carefully assess which of the four utilization categories applies to their proposed activities. Different categories may face different regulatory scrutiny and trial requirements. Energy source substitution and raw material substitution without SNI standards both require mandatory trials before full operations.
Radioactivity screening should occur early in the utilization planning process. Waste exceeding radioactivity thresholds cannot proceed through utilization pathways without decontamination. Testing for uranium series, thorium series, and potassium radionuclides enables early identification of ineligible waste streams.
The multi-stage licensing process requires significant lead time. Technical approval, environmental approval, business license, and SLO each involve separate applications and timelines. Utilizers should plan for several months from initial application to operational authorization.
Product standards and environmental quality standards create ongoing compliance obligations throughout operations. Utilization producing products must demonstrate compliance with applicable quality specifications. Wastewater and emission quality standards apply to all releases from utilization activities.
Six-month utilization reports create systematic documentation requirements. Utilizers should maintain detailed records of waste received, processing activities, and outputs to support timely report preparation.
Conclusion
PP 22/2021's B3 waste utilization framework enables hazardous waste recovery while maintaining environmental and health protection. The four utilization categories accommodate diverse recovery pathways from material substitution to energy recovery. Radioactivity restrictions create absolute barriers protecting against contamination. Multi-stage licensing ensures competent operators with appropriate facilities before authorizing hazardous waste handling.
The framework positions utilization as a preferred management option while preventing inadequate processing from masquerading as productive use. Technology, product, and environmental standards together ensure that utilization genuinely recovers value rather than merely disposing hazardous materials through insufficient processing.
Official Source
This article analyzes Government Regulation No. 22 of 2021 on Environmental Protection and Management Implementation (PP 22/2021), specifically BAB VII Paragraf 7 (Pasal 315-326) on B3 Waste Utilization.
The official regulation text can be accessed at:
Primary Source:
PP No. 22 Tahun 2021 - BPK Regulation Portal
Alternative Sources:
- JDIH Kementerian Lingkungan Hidup dan Kehutanan
Official Gazette: Lembaran Negara Republik Indonesia Tahun 2021 Nomor 32
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