Groundwater Quality Standards in Indonesia: The Site-Specific Baseline Framework Under PP 22/2021
1.0 The Distinctive Approach to Groundwater Quality Standards
Government Regulation PP 22/2021 establishes water quality standards (Baku Mutu Air) for both surface water and groundwater, but takes fundamentally different approaches for each. While surface water quality standards follow a fixed four-class national system with defined parameter limits, groundwater standards are determined through site-specific baseline monitoring.
This distinction reflects hydrogeological reality: surface water systems across Indonesia share sufficiently similar characteristics to support standardized national limits, while groundwater quality varies dramatically based on local geology, aquifer characteristics, and natural mineral content. A universal national groundwater standard would be either too strict (prohibiting use of naturally mineralized groundwater) or too lenient (permitting degradation of pristine aquifers).
The regulatory framework integrates groundwater into the broader water quality management system through the Cekungan Air Tanah (CAT) or Groundwater Basin concept, ensuring coordinated management across aquifer boundaries that often cross administrative borders.
1.1 Regulatory Coverage
| Water Body Type | Indonesian Term | Standards Approach | Reference |
|---|---|---|---|
| Rivers and streams | Sungai dan anak sungai | Fixed national standards | LAMPIRAN VI |
| Lakes and reservoirs | Danau dan sejenisnya | Fixed national standards | LAMPIRAN VI |
| Swamps and wetlands | Rawa dan lahan basah | Fixed national standards | LAMPIRAN VI |
| Aquifers (groundwater) | Akuifer | Site-specific baseline | Pasal 113(2) |
Pasal 107 ayat (2) establishes:
Badan Air sebagaimana dimaksud pada ayat (1) meliputi: a. Badan Air permukaan meliputi: 1. sungai, anak sungai, dan sejenisnya; 2. danau dan sejenisnya; 3. rawa dan lahan basah lainnya; dan/atau b. akuifer.
Water bodies covered include both surface water types (rivers, lakes, swamps) and aquifers (underground water-bearing formations).
1.2 Key Definition
| Term | Indonesian | Definition |
|---|---|---|
| Water | Air | All water above or below ground surface, including surface water, groundwater, rainwater, and seawater on land |
| Groundwater Basin | Cekungan Air Tanah (CAT) | Area bounded by hydrogeological boundaries where groundwater recharge, flow, and discharge occur |
| Water Body | Badan Air | Natural or artificial container of water |
2.0 The Baseline Monitoring Framework
Pasal 113 establishes the core distinction: while surface water standards reference fixed national tables in LAMPIRAN VI, groundwater standards are established through baseline or reference monitoring.
2.1 Standards Establishment Methods
| Method | Indonesian Term | Application | Purpose |
|---|---|---|---|
| Initial baseline monitoring | Pemantauan rona awal Mutu Air tanah | Project-specific | Establish natural pre-activity conditions |
| Reference groundwater monitoring | Pemantauan Mutu Air tanah referensi | Regional comparison | Establish undisturbed benchmark |
Pasal 113 ayat (1-3) establishes:
(1) Menteri, gubernur, atau bupati/wali kota sesuai dengan kewenangannya menyusun dan menetapkan Baku Mutu Air sebagaimana dimaksud dalam Pasal 108 ayat (2) huruf b untuk: a. air tanah; dan b. air permukaan berdasarkan segmentasi atau zonasi Badan Air.
(2) Baku Mutu Air untuk air tanah sebagaimana dimaksud pada ayat (1) huruf a dilakukan melalui pemantauan rona awal Mutu Air tanah dan/atau pemantauan Mutu Air tanah referensi.
(3) Baku Mutu Air untuk air permukaan sebagaimana dimaksud pada ayat (1) huruf b mengacu pada Baku Mutu Air Nasional sebagaimana tercantum dalam Lampiran VI yang merupakan bagian tidak terpisahkan dari Peraturan Pemerintah ini.
2.2 Baseline vs Reference Monitoring
| Aspect | Pemantauan Rona Awal | Pemantauan Air Tanah Referensi |
|---|---|---|
| Timing | Pre-operational | Ongoing/established |
| Location | Project site wells | Undisturbed reference area |
| Scope | Activity-specific | Regional/aquifer-wide |
| Use | Determine acceptable change | Compare impacted vs pristine |
| Required for | New projects in AMDAL/UKL-UPL | Regional groundwater management |
This approach means groundwater quality standards are effectively site-specific: the standard for a particular aquifer is its natural baseline condition. Any degradation from that baseline constitutes potential pollution requiring management action.
3.0 The CAT Management Framework
Groundwater management operates through the Cekungan Air Tanah (CAT) system, recognizing that aquifer boundaries rarely align with administrative boundaries.
3.1 Jurisdictional Distribution
| CAT Type | Indonesian Term | Authority Level | Examples |
|---|---|---|---|
| Cross-border CAT | CAT lintas negara | National/Minister | Shared aquifers with Malaysia, PNG |
| Cross-provincial CAT | CAT lintas provinsi | National/Minister | Major Javanese aquifers |
| Nationally strategic CAT | CAT strategis nasional | National/Minister | Critical urban water supplies |
| Intra-provincial CAT | CAT dalam Provinsi | Provincial/Governor | Provincial groundwater basins |
Pasal 118 ayat (1) establishes:
Rencana Perlindungan dan Pengelolaan Mutu Air nasional sebagaimana dimaksud dalam Pasal 117 huruf a diterapkan pada: a. DAS lintas negara; b. DAS lintas provinsi; c. DAS dan CAT strategis nasional; d. CAT lintas negara; dan e. CAT lintas provinsi.
3.2 Planning Approach
| Framework | Indonesian Term | Scope |
|---|---|---|
| Watershed approach | Pendekatan DAS | Surface water catchments |
| Groundwater basin approach | Pendekatan CAT | Aquifer management units |
| Ecosystem approach | Pendekatan ekosistem | Integrated water-ecosystem management |
Pasal 108 ayat (1) establishes:
Perencanaan Perlindungan dan Pengelolaan Mutu Air diselenggarakan dengan pendekatan DAS, CAT, dan ekosistemnya.
Water quality planning explicitly integrates both watershed (DAS) and groundwater basin (CAT) frameworks, recognizing the interconnection between surface and groundwater systems.
4.0 Authority Distribution and Coordination
The multi-level authority structure ensures appropriate expertise and coordination for groundwater management.
4.1 Standards Establishment Authority
| Authority | Jurisdiction | Coordination Required |
|---|---|---|
| Minister | National/cross-provincial | Water resources, energy/minerals, spatial planning, forestry ministers |
| Governor | Provincial/cross-district | Ministerial technical consideration + district coordination |
| Regent/Mayor | District/local | Ministerial technical consideration + provincial coordination |
Pasal 114 establishes the coordination framework:
(1) Baku Mutu Air sebagaimana dimaksud dalam Pasal 113 ayat (1) disusun dan ditetapkan oleh Menteri setelah berkoordinasi dengan: a. menteri yang menyelenggarakan urusan pemerintahan di bidang sumber daya air; b. menteri yang menyelenggarakan urusan pemerintahan di bidang energi dan sumber daya mineral; c. menteri yang menyelenggarakan urusan pemerintahan di bidang tata ruang; dan/atau d. menteri yang menyelenggarakan urusan pemerintahan di bidang kehutanan.
4.2 Fallback Authority Provisions
| Situation | Fallback Authority | Legal Basis |
|---|---|---|
| District cannot establish standards | Governor assumes responsibility | Pasal 115(1) |
| Province cannot establish standards | Minister assumes responsibility | Pasal 115(2) |
Pasal 115 establishes:
(1) Dalam hal bupati/wali kota tidak dapat melaksanakan penyusunan dan penetapan Baku Mutu Air sebagaimana dimaksud dalam Pasal 113 ayat (1), gubernur menyusun dan menetapkan Baku Mutu Air yang menjadi kewenangan bupati/wali kota di wilayahnya.
(2) Dalam hal gubernur tidak dapat melaksanakan penyusunan dan penetapan Baku Mutu Air sebagaimana dimaksud dalam Pasal 113 ayat (1), Menteri menyusun dan menetapkan Baku Mutu Air yang menjadi kewenangan gubernur.
This ensures groundwater standards are established even where local capacity is limited.
5.0 Groundwater Protection Framework
The regulation establishes both affirmative maintenance requirements and absolute prohibitions protecting groundwater quality.
5.1 Maintenance Requirements
| Protected Water Body | Indonesian Term | Protection Activities |
|---|---|---|
| Class 1 water bodies | Badan Air kelas satu | Conservation, reserve allocation |
| Protected area water bodies | Kawasan lindung | Conservation, reserve allocation |
| Springs | Mata air | Conservation, reserve allocation |
| Groundwater | Air tanah | Conservation, reserve allocation |
| Closed water bodies | Tertutup | Conservation, reserve allocation |
Pasal 156 establishes:
(2) Pemeliharaan Mutu Air dilakukan pada: a. Badan Air kelas satu; b. Badan Air yang berada di kawasan lindung; c. mata air; d. air tanah; dan/atau e. tertutup.
(3) Menteri, gubernur, atau bupati/wali kota sesuai dengan kewenangannya melakukan pemeliharaan Mutu Air melalui upaya: a. konservasi Badan Air dan ekosistemnya; b. pencadangan Badan Air dan ekosistemnya; dan/atau c. pengendalian perubahan iklim.
5.2 Absolute Prohibitions
| Prohibited Action | Indonesian Term | Applies To |
|---|---|---|
| Wastewater introduction | Memasukkan Air Limbah | Groundwater, springs, closed lakes |
| Solid waste introduction | Memasukkan sampah, limbah padat | All water bodies |
| B3/B3 waste introduction | Memasukkan B3 dan/atau Limbah B3 | All water bodies |
| Physical damage | Merusak kondisi fisik | All water bodies |
| Causing pollution | Perbuatan menimbulkan Pencemaran Air | All water bodies |
Pasal 159 establishes:
Setiap Orang dilarang: a. memasukkan Air Limbah ke air tanah, mata air, dan danau tertutup; b. memasukkan sampah, limbah padat, limbah lumpur, B3, dan/atau Limbah B3 ke Badan Air; c. merusak kondisi fisik dan fungsi Badan Air; d. melakukan perbuatan yang menimbulkan Pencemaran Air...
Critically, Pasal 159(a) establishes an absolute prohibition on introducing wastewater into groundwater. Unlike surface water, which can receive treated effluent under wastewater discharge permits, groundwater contamination is prohibited outright.
6.0 Groundwater Monitoring in Environmental Approvals
Projects requiring AMDAL or UKL-UPL must include groundwater monitoring where relevant.
6.1 Technical Approval Requirements
| Element | Requirement | Reference |
|---|---|---|
| Monitoring points | Surface water, groundwater, and/or soil with coordinates | Pasal 138(2)(e) |
| Baseline data | Pre-operational conditions | Pasal 113(2) |
| Periodic monitoring | As specified in approval | Environmental Management Plan |
| Reporting | Via Environmental Information System | Pasal 146 |
Pasal 138 ayat (2) includes:
Standar teknis pemenuhan Baku Mutu Air Limbah sebagaimana dimaksud pada ayat (1) huruf a meliputi: ... e. titik pemantauan pada Badan Air permukaan, air tanah, dan/atau tanah dengan nama dan titik koordinat...
Projects with groundwater impact potential must establish monitoring wells with specified coordinates and conduct periodic monitoring to verify no contamination is occurring.
6.2 Compliance Integration
| Aspect | Surface Water | Groundwater |
|---|---|---|
| Discharge permitted | Yes, with treatment | No (absolute prohibition) |
| Standards reference | LAMPIRAN VI classes | Site-specific baseline |
| Monitoring approach | Effluent quality at outlet | Ambient quality in aquifer |
| Violation threshold | Exceeds class limits | Degrades from baseline |
7.0 Rationale for Site-Specific Standards
The regulatory choice to use site-specific baseline standards rather than fixed national standards reflects hydrogeological realities.
7.1 Geological Variability Factors
| Factor | Variation | Impact on Natural Quality |
|---|---|---|
| Aquifer mineralogy | Limestone vs granite vs volcanic | Natural dissolved minerals vary |
| Depth | Shallow vs deep | Dissolved solids, temperature differ |
| Residence time | Recent vs ancient water | Mineral saturation levels |
| Recharge source | Rainfall vs river infiltration | Initial quality varies |
| Geothermal influence | Present vs absent | Temperature, minerals affected |
7.2 Examples of Natural Variability
| Parameter | Typical Range | Notes |
|---|---|---|
| Total Dissolved Solids | 100-2,000+ mg/L | Varies by aquifer geology |
| Hardness | 50-500+ mg/L | Carbonate vs silicate rock |
| Iron | 0.01-5+ mg/L | Higher in volcanic/laterite |
| Fluoride | 0.1-10+ mg/L | Natural in some formations |
| Arsenic | 0-50+ μg/L | Natural in some geologies |
A fixed national standard of, for example, TDS < 500 mg/L would prohibit use of naturally higher-TDS aquifers that are otherwise safe. Conversely, using that same standard for pristine aquifers with natural TDS of 100 mg/L would permit significant degradation before triggering regulatory action.
8.0 Implementation Considerations
8.1 Baseline Monitoring Requirements
| Stage | Activity | Purpose |
|---|---|---|
| Pre-project | Install monitoring wells | Access aquifer |
| Pre-project | Seasonal sampling (minimum 1 year) | Capture natural variation |
| Pre-project | Parameter analysis | Establish baseline values |
| Operational | Periodic monitoring | Detect changes |
| Post-operational | Continued monitoring | Verify restoration |
8.2 Reference Area Selection
| Criterion | Requirement |
|---|---|
| Similar geology | Same aquifer formation |
| Undisturbed condition | No anthropogenic impacts |
| Hydraulic connection | Same groundwater flow system |
| Accessibility | Practical for sampling |
| Long-term availability | Sustained reference monitoring |
Conclusion
Indonesia's groundwater quality regulatory framework under PP 22/2021 takes a fundamentally different approach from surface water standards. Rather than imposing uniform national limits, the regulation recognizes hydrogeological diversity by requiring site-specific baseline standards established through initial or reference monitoring.
This approach provides both stronger protection for pristine aquifers (where any degradation from baseline indicates potential problems) and practical flexibility for naturally mineralized groundwater systems (which would otherwise fail arbitrary national limits).
The CAT (Cekungan Air Tanah) framework ensures coordinated management across aquifer boundaries, with authority distributed among national, provincial, and district governments according to aquifer characteristics. Critically, the regulation establishes an absolute prohibition on introducing wastewater into groundwater, reflecting the long residence times and remediation difficulties associated with aquifer contamination.
For business operators, understanding this framework is essential for projects involving groundwater resources or potential groundwater impacts. Environmental assessments must establish pre-operational baselines, environmental approvals include groundwater monitoring requirements, and violations exposing facilities to administrative sanctions including permit suspension or revocation.
Official Sources
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