Environmental Damage Criteria in Indonesia: The Multi-Media Assessment Framework Under PP 22/2021
1.0 Regulatory Framework for Environmental Damage Determination
Government Regulation PP 22/2021 establishes comprehensive criteria for determining when environmental damage has occurred across Indonesia's natural systems. Chapter VI (BAB VI) addresses Environmental Damage Control (Pengendalian Kerusakan Lingkungan Hidup), while Annex VII (LAMPIRAN VII) provides specific threshold parameters for soil, water, air, ecosystem, and biodiversity damage assessment.
The damage criteria framework serves multiple regulatory purposes: triggering enforcement actions against polluters, determining restoration requirements, calculating environmental compensation, and guiding remediation priorities. When measured parameters exceed established thresholds, the environment is classified as "damaged" (rusak), triggering legal obligations under Indonesia's environmental protection framework.
This system integrates with the broader environmental management structure established in PP 22/2021. Environmental Approval holders must prevent activities from causing damage exceeding these thresholds. AMDAL and UKL-UPL assessments must address potential damage impacts. Violations exposing facilities to administrative sanctions and restoration fund activation.
1.1 Nine Damage Categories
| Category | Indonesian Term | Regulatory Authority | Implementation Status |
|---|---|---|---|
| Coral reefs | Terumbu Karang | Per Pasal 231 | Established |
| Mangroves | Mangrove | Per Pasal 232 | Established |
| Seagrass beds | Padang Lamun | Per Pasal 232 | Established |
| Biomass soil | Tanah untuk produksi biomassa | Existing regulations | Established |
| Peatland | Gambut | Existing regulations | Established |
| Karst | Karst | Ministerial Regulation | Pending/PERMEN |
| Fire-related | Kebakaran hutan/lahan | Ministerial Regulation | Pending/PERMEN |
| Mining land | Lahan pertambangan | Ministerial Regulation | Pending/PERMEN |
| Other criteria | Kriteria lainnya | Scientific developments | As identified |
Pasal 272 ayat (2) establishes:
Kriteria baku Kerusakan Lingkungan Hidup sebagaimana dimaksud pada ayat (1) meliputi kriteria baku kerusakan: a. Terumbu Karang; b. Mangrove; c. Padang Lamun; d. tanah untuk produksi biomassa; e. gambut; f. karst; g. lingkungan yang berkaitan dengan kebakaran hutan dan/atau lahan; h. lahan akibat Usaha dan/atau Kegiatan pertambangan.
1.2 Implementation Hierarchy
| Category Range | Implementation Pathway | Authority Level |
|---|---|---|
| (a) through (c) | Per Pasal 231-232 (Marine Management) | Established criteria |
| (d) through (e) | Per existing regulations | Cross-referenced laws |
| (f) through (i) | Ministerial Regulation | PERMEN required |
| Not yet established | Expert study/opinion | Case-by-case basis |
Pasal 272 ayat (6) provides:
Dalam hal kriteria baku Kerusakan Lingkungan Hidup sebagaimana dimaksud pada ayat (5) belum ditetapkan, penentuan kriteria baku Kerusakan Lingkungan Hidup dilakukan berdasarkan hasil kajian atau pendapat ahli.
Where ministerial regulations have not yet established specific criteria, environmental damage determination proceeds based on expert studies or professional opinions.
2.0 Soil Damage Criteria
Annex VII establishes threshold parameters across physical, chemical, and biological dimensions for determining soil damage.
2.1 Physical Parameters
| Parameter | Indonesian Term | Damage Threshold | Measurement |
|---|---|---|---|
| Erosion rate | Erosi Tanah | > 25 ton/ha/year | Annual soil loss |
| Compaction | Kompaksi | > 1.6 g/cm³ | Bulk density |
| Salinity | Salinitas | > 4 dS/m | Electrical conductivity |
| Structure degradation | Degradasi struktur | > 50% aggregate loss | Structural analysis |
2.2 Chemical Parameters
| Parameter | Indonesian Term | Damage Threshold | Unit |
|---|---|---|---|
| Acidity/alkalinity | pH Tanah | < 4.5 or > 8.5 | pH units |
| Cadmium (Cd) | Kadmium | > 3 | mg/kg |
| Mercury (Hg) | Merkuri | > 1 | mg/kg |
| Lead (Pb) | Timbal | > 100 | mg/kg |
| Chromium (Cr) | Kromium | > 100 | mg/kg |
| Organic matter | Bahan Organik | < 1% | % dry weight |
| CEC decline | Kapasitas Tukar Kation | > 50% | % from natural |
2.3 Biological Parameters
| Parameter | Indonesian Term | Damage Threshold | Reference |
|---|---|---|---|
| Microbial activity | Aktivitas Mikroorganisme | > 70% decline | From normal |
| Soil fauna diversity | Keragaman Fauna Tanah | > 50% decline | From reference |
| Microbial biomass | Biomassa Mikroba | < 100 mg C/kg | Dry soil basis |
Heavy metal contamination criteria reflect internationally-recognized thresholds for agricultural and residential land use. Biological parameters emphasize soil ecosystem function, recognizing that physical and chemical damage ultimately manifests through biological degradation.
3.0 Water Damage Criteria
Water damage criteria differentiate between surface water and groundwater, with parameters across physical, chemical, and biological dimensions. These criteria complement the freshwater quality standards established elsewhere in PP 22/2021.
3.1 Surface Water Physical Parameters
| Parameter | Indonesian Term | Damage Threshold | Unit |
|---|---|---|---|
| Turbidity | Kekeruhan | > 25 | NTU |
| Suspended solids | Padatan Tersuspensi Total | > 50 | mg/L |
| Temperature change | Perubahan Temperatur | > 3°C | From natural |
| Color | Warna | > 50 | Pt-Co units |
3.2 Surface Water Chemical Parameters
| Parameter | Indonesian Term | Damage Threshold | Unit |
|---|---|---|---|
| pH | pH | < 6 or > 9 | pH units |
| Dissolved oxygen | Oksigen Terlarut | < 4 | mg/L |
| BOD₅ | Biochemical Oxygen Demand | > 6 | mg/L |
| COD | Chemical Oxygen Demand | > 25 | mg/L |
| Mercury (Hg) | Merkuri | > 0.001 | mg/L |
| Cadmium (Cd) | Kadmium | > 0.01 | mg/L |
| Lead (Pb) | Timbal | > 0.03 | mg/L |
| Chromium (Cr VI) | Kromium heksavalen | > 0.05 | mg/L |
3.3 Surface Water Biological Parameters
| Parameter | Indonesian Term | Damage Threshold | Unit |
|---|---|---|---|
| Total coliform | Coliform Total | > 5,000 | MPN/100mL |
| Biotic index | Indeks Biotik | < 5 | Scale 1-10 |
| Chlorophyll-a | Klorofil-a | > 30 | mg/m³ |
| Species diversity | Keragaman Spesies | Shannon Index < 1 | Index value |
3.4 Groundwater Parameters
| Parameter | Indonesian Term | Damage Threshold | Indicator |
|---|---|---|---|
| Saltwater intrusion | Intrusi Air Asin | Chloride > 250 mg/L | Salinization |
| Water table decline | Penurunan Muka Air | > 2 m/year | Depletion rate |
| Organic contamination | Kontaminasi Organik | TOC > 10 mg/L | Pollution level |
Groundwater damage criteria focus on aquifer sustainability and quality degradation that affects both drinking water supplies and baseflow to surface water systems.
4.0 Air Damage Criteria
Air damage thresholds define conditions indicating environmental harm from atmospheric pollution. These criteria relate to but differ from the ambient air quality standards used for air quality management planning.
4.1 Particulate Matter Parameters
| Parameter | Indonesian Term | Damage Threshold | Averaging Period |
|---|---|---|---|
| PM₁₀ | Particulate Matter 10 | > 150 μg/m³ | 24 hours |
| PM₂.₅ | Particulate Matter 2.5 | > 65 μg/m³ | 24 hours |
| TSP | Total Suspended Particulate | > 230 μg/m³ | 24 hours |
4.2 Gaseous Pollutant Parameters
| Parameter | Indonesian Term | Damage Threshold | Averaging Period |
|---|---|---|---|
| Sulfur dioxide | SO₂ | > 365 μg/m³ | 24 hours |
| Nitrogen dioxide | NO₂ | > 200 μg/m³ | 1 hour |
| Carbon monoxide | CO | > 30 mg/m³ | 1 hour |
| Ozone | O₃ | > 235 μg/m³ | 1 hour |
| Hydrocarbons | HC | > 160 μg/m³ | 3 hours |
4.3 Environmental Impact Indicators
| Indicator | Indonesian Term | Damage Threshold |
|---|---|---|
| Visibility impairment | Visibilitas | < 5 km due to pollution |
| Air Quality Index | Indeks Kualitas Udara | > 200 (unhealthy category) |
Air damage criteria use shorter averaging periods than ambient standards, reflecting acute harm thresholds rather than long-term management targets.
5.0 Ecosystem and Biodiversity Damage Criteria
Beyond individual environmental media, the framework addresses ecosystem-level and biodiversity damage that transcends single-parameter measurements.
5.1 Ecosystem Structure Damage
| Parameter | Indonesian Term | Damage Threshold |
|---|---|---|
| Vegetation cover | Tutupan Vegetasi | > 50% decline from natural |
| Habitat fragmentation | Fragmentasi Habitat | Patch size < 100 ha |
| Ecosystem connectivity | Konektivitas Ekosistem | Ecological corridor disruption |
5.2 Ecosystem Function Damage
| Parameter | Indonesian Term | Damage Threshold |
|---|---|---|
| Primary productivity | Produktivitas Primer | > 40% decline from reference |
| Nutrient cycling | Siklus Nutrisi | > 30% disruption from normal |
| Hydrological regulation | Regulasi Hidrologi | > 25% change from natural pattern |
5.3 Species Composition Damage
| Parameter | Indonesian Term | Damage Threshold |
|---|---|---|
| Invasive species | Spesies Invasif | > 30% total biomass dominance |
| Endemic species | Spesies Endemik | > 50% population decline |
| Keystone species | Spesies Kunci | > 1 species loss per ecosystem |
5.4 Biodiversity Damage - Genetic Level
| Parameter | Indonesian Term | Damage Threshold |
|---|---|---|
| Genetic diversity | Keragaman Genetik | > 25% heterozygosity decline |
| Effective population | Ukuran Populasi Efektif | < 50 reproductive individuals |
| Inbreeding | Inbreeding | Coefficient > 0.1 |
5.5 Biodiversity Damage - Species and Ecosystem Level
| Parameter | Indonesian Term | Damage Threshold |
|---|---|---|
| Species abundance | Kelimpahan Spesies | > 50% decline from baseline |
| Species distribution | Distribusi Spesies | > 30% range contraction |
| Conservation status | Status Konservasi | IUCN category increase |
| Ecosystem area | Luasan Ekosistem | > 20% reduction in 10 years |
| Habitat quality | Kualitas Habitat | > 40% degradation from optimal |
| Ecosystem integrity | Integritas Ekosistem | Index < 0.6 |
These ecological criteria recognize that environmental damage extends beyond chemical contamination to encompass structural, functional, and compositional changes affecting ecosystem services and biodiversity conservation.
6.0 Assessment Methodology and Classification
Annex VII establishes standardized assessment methodologies ensuring consistent damage determination across Indonesia.
6.1 Damage Classification Scale
| Classification | Indonesian Term | Index Range | Interpretation |
|---|---|---|---|
| Minor | Ringan | 0-25 | Reversible with minimal intervention |
| Moderate | Sedang | 26-50 | Restoration required |
| Severe | Berat | 51-75 | Extensive remediation needed |
| Critical | Sangat Berat | 76-100 | Major restoration program required |
6.2 Assessment Requirements
| Element | Requirement | Standard |
|---|---|---|
| Sampling design | Stratified random sampling | Statistical representativeness |
| Reference comparison | Undisturbed area baseline | Natural condition benchmark |
| Laboratory accreditation | SNI ISO/IEC 17025:2017 | Quality assurance |
| QA/QC protocols | 10% sample duplication | Analytical reliability |
| Analytical methods | SNI, APHA, EPA standards | Method consistency |
6.3 Implementation and Response
| Damage Level | Required Response | Timeline |
|---|---|---|
| Minor | Corrective measures | Immediate |
| Moderate | Restoration plan development | 30 days |
| Severe | Comprehensive remediation | Per restoration plan |
| Critical | Emergency response + long-term restoration | Immediate + ongoing |
7.0 Traditional Land Clearing Exception
The regulation provides a specific exception for traditional burning practices reflecting Indonesia's recognition of kearifan lokal (local wisdom).
7.1 Exception Conditions
| Requirement | Indonesian Term | Specification |
|---|---|---|
| Land ownership | Lahan miliknya sendiri | Personally-owned land only |
| Maximum area | Luas lahan maksimal | 2 hectares per household head |
| Fire protection | Sekat bakar | Firebreaks surrounding area |
| Crop requirement | Tanaman varietas lokal | Local variety plantings |
Pasal 273 ayat (1-2) establishes:
Ketentuan mengenai kriteria baku Kerusakan Lingkungan Hidup sebagaimana dimaksud dalam Pasal 272 ayat (2) huruf g, dikecualikan terhadap kegiatan pembukaan lahan dengan cara pembakaran yang dilakukan masyarakat di lahan miliknya sendiri. Pelaksanaan pembukaan lahan dengan cara pembakaran dilakukan berdasarkan kearifan lokal.
7.2 Government Support Obligations
| Support Type | Indonesian Term | Responsible Party |
|---|---|---|
| Recommendations | Rekomendasi | Government/Regional Government |
| Facilitation | Fasilitasi | Government/Regional Government |
| Guidance | Pembinaan | Government/Regional Government |
| Assistance | Pendampingan | Government/Regional Government |
This exception balances environmental protection with traditional agricultural practices, subject to strict conditions preventing uncontrolled fires.
Conclusion
Indonesia's environmental damage criteria under PP 22/2021 provide a comprehensive multi-media framework for determining when environmental harm has occurred. The system covers nine damage categories across soil, water, air, ecosystem, and biodiversity parameters, with specific thresholds triggering damage classification and response requirements.
The four-level damage classification (minor through critical) connects assessment findings to proportionate response obligations. Standardized assessment methodologies ensure consistent application across jurisdictions, while the expert opinion pathway addresses situations where specific criteria have not yet been established through ministerial regulations.
For business operators, understanding these damage criteria is essential for compliance management. Activities generating contamination or ecosystem impacts must be controlled to prevent threshold exceedances. Where damage occurs, operators face restoration obligations under the environmental restoration fund mechanism and potential administrative sanctions including permit suspension or revocation.
The traditional burning exception demonstrates regulatory recognition of community practices while maintaining environmental protection through strict conditions. This balanced approach reflects Indonesia's broader environmental management philosophy of integrating protection objectives with social and economic realities.
Official Sources
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