How Does Perpres 140/2024 Structure Indonesia's Ministry Organization?

Presidential Regulation Number 140 of 2024 establishes Indonesia's most comprehensive ministerial reorganization framework in recent history, expanding the cabinet structure from 34 to 48 ministerial entities. Enacted on October 21, 2024, this regulation implements the constitutional mandate under Article 4(1) and Article 17 of the 1945 Constitution, as well as Law Number 39 of 2008. The regulation governs the organizational architecture of both coordinating ministries (kementerian koordinator) and sectoral ministries (kementerian), creating a hierarchical structure designed to enhance governmental efficiency and inter-ministerial coordination. This regulation supersedes Presidential Regulation Number 68 of 2019 and its amendment in Presidential Regulation Number 32 of 2021, reflecting the Prabowo-Gibran administration's commitment to responsive governance. The framework has subsequently been modified by Presidential Regulation Number 90 of 2025, demonstrating the dynamic nature of Indonesia's administrative architecture.

The ministerial expansion represents a strategic response to Indonesia's increasingly complex development challenges, requiring specialized attention across diverse sectors ranging from traditional governance domains to emerging priorities such as digital communication, migrant worker protection, and food security. The regulation establishes four distinct ministry categories—Coordinating Ministries, Group I Ministries, Group II Ministries, and Group III Ministries—each with specific constitutional bases and functional mandates. The organizational framework incorporates provisions for deputy ministers, special staff appointments, technical implementing units, and comprehensive funding mechanisms through the State Revenue and Expenditure Budget (APBN). The regulation's scope encompasses not only ministerial nomenclature but also structural hierarchy, coordination mechanisms, and implementation timelines, creating a comprehensive blueprint for executive branch organization.

The Ministerial Organization Framework: Constitutional Implementation

Presidential Regulation Number 140 of 2024 derives its constitutional authority from Article 4(1) of the 1945 Constitution, which vests executive power in the President, and Article 17, which specifically addresses ministerial appointments and organization. The regulation states: "Menimbang bahwa untuk melaksanakan ketentuan Pasal 4 ayat (1) dan Pasal 17 Undang-Undang Dasar Negara Republik Indonesia Tahun 1945 serta Undang-Undang Nomor 39 Tahun 2008" (Considering that to implement the provisions of Article 4 paragraph (1) and Article 17 of the 1945 Constitution of the Republic of Indonesia and Law Number 39 of 2008). This constitutional foundation establishes the President's authority to organize ministerial structures in accordance with national development needs.

The regulation's constitutional implementation creates a framework that balances presidential discretion with constitutional constraints. Article 17 of the 1945 Constitution explicitly mandates certain ministries while granting the President flexibility to establish additional ministries based on governmental requirements. The regulation operationalizes this constitutional design through its four-tier categorization system, distinguishing between constitutionally mandated ministries and those established through presidential prerogative for program coordination and policy sharpening. This approach ensures constitutional compliance while maintaining administrative flexibility to respond to evolving governance challenges.

The legal hierarchy underlying the regulation extends beyond constitutional provisions to incorporate Law Number 39 of 2008 concerning State Ministries. This statute provides the statutory framework for ministerial organization, defining ministerial functions, organizational structures, and coordination mechanisms. The regulation implements these statutory requirements through detailed provisions governing ministerial composition, leadership structures, and operational frameworks. The integration of constitutional and statutory mandates creates a comprehensive legal foundation that legitimizes the 48-ministry structure while ensuring compliance with Indonesia's hierarchical legal system.

The regulation's constitutional implementation also addresses the principle of efficiency in governance. The expansion from 34 to 48 ministries reflects a calculated approach to administrative organization, balancing the need for specialized sectoral focus against the imperative of streamlined decision-making. The regulation states: "Dalam rangka merespons dinamika pembangunan nasional yang semakin kompleks" (In order to respond to the increasingly complex dynamics of national development). This justification grounds the ministerial expansion in functional necessity rather than mere administrative proliferation.

Matrix 1: Constitutional and Legal Foundation of Perpres 140/2024

The constitutional implementation framework demonstrates the regulation's adherence to Indonesia's legal hierarchy, ensuring that presidential discretion operates within constitutional and statutory boundaries. The regulation's legal foundation provides both legitimacy and flexibility, enabling responsive governance while maintaining constitutional fidelity.

The Organizational Elements: Echelons and Structural Hierarchy

Presidential Regulation Number 140 of 2024 establishes a sophisticated organizational hierarchy within each ministry, incorporating multiple structural elements designed to facilitate effective governance. The regulation provides for deputy minister appointments, stating: "Dalam melaksanakan tugas, Menteri Koordinator atau Menteri dapat dibantu oleh wakil menteri sesuai dengan penetapan Presiden" (In carrying out duties, Coordinating Ministers or Ministers may be assisted by deputy ministers according to Presidential appointment). This provision creates a senior leadership tier that enhances ministerial capacity to manage complex portfolios and coordinate multi-sectoral initiatives.

The deputy minister mechanism represents a significant organizational innovation, enabling specialized expertise within large ministries while maintaining unified ministerial accountability. Deputy ministers serve at the President's discretion, creating a flexible leadership structure that can adapt to changing policy priorities and administrative demands. The absence of numerical limitations on deputy minister appointments provides the President with discretionary authority to tailor each ministry's leadership structure to its specific functional requirements. This flexibility has been exercised variably across the 48 ministries, with some ministries receiving multiple deputy ministers while others operate without deputy ministerial support.

Beyond deputy ministers, the regulation authorizes the appointment of special staff within each ministry. The regulation states: "Staf khusus dapat diangkat pada Kementerian Koordinator atau Kementerian dengan jumlah paling banyak 5 (lima) staf khusus" (Special staff may be appointed in Coordinating Ministries or Ministries with a maximum of 5 special staff). This provision establishes a specialized advisory capacity within each ministry, enabling ministers to access technical expertise, political counsel, and stakeholder liaison functions. The five-person limitation balances the need for ministerial support against concerns about administrative bloat and budgetary efficiency.

The regulation also provides for technical implementing units (unit pelaksana teknis) to execute operational and technical support functions. The regulation states: "Untuk melaksanakan tugas teknis operasional dan/atau tugas dukungan teknis dapat dibentuk unit pelaksana teknis pada kementerian" (To carry out technical operational tasks and/or technical support tasks, technical implementing units may be established in ministries). These units constitute the operational backbone of ministerial functions, translating policy directives into programmatic implementation across Indonesia's diverse geographic and sectoral contexts. Technical implementing units operate under ministerial authority while maintaining specialized technical competencies in areas such as environmental monitoring, agricultural extension, infrastructure construction, and social service delivery.

The organizational hierarchy extends beyond these formal structural elements to encompass echelon systems that classify civil service positions within each ministry. While the regulation does not explicitly detail echelon classifications, Indonesia's civil service framework establishes five echelon levels (Eselon I through Eselon V), with Eselon I representing the highest non-ministerial positions and Eselon V representing frontline supervisory roles. Ministers and deputy ministers operate above this echelon system, while special staff and technical unit directors typically hold Eselon I or Eselon II positions. This hierarchical structure creates clear accountability chains and career progression pathways within each ministry.

Matrix 2: Organizational Elements and Structural Hierarchy

The organizational hierarchy established by the regulation creates a multi-layered structure that combines political appointments (ministers, deputy ministers) with career civil service positions (echelon system) and specialized support mechanisms (special staff, technical units). This hybrid structure balances political responsiveness with technical competence, enabling ministries to pursue policy priorities while maintaining institutional expertise and operational capacity.

The funding mechanism for this organizational structure derives exclusively from the State Revenue and Expenditure Budget (APBN). The regulation states: "Pendanaan untuk pelaksanaan tugas dan fungsi setiap Kementerian Koordinator dan Kementerian bersumber dari Anggaran Pendapatan dan Belanja Negara" (Funding for the implementation of tasks and functions of each Coordinating Ministry and Ministry comes from the State Revenue and Expenditure Budget). This provision ensures centralized budgetary control while requiring annual legislative authorization for ministerial operations through the APBN approval process.

The Functional Distribution: Ministries by Sector and Function

Presidential Regulation Number 140 of 2024 organizes Indonesia's 48 ministries into four functional categories, each with distinct constitutional bases and operational mandates. The regulation establishes Coordinating Ministries (Kementerian Koordinator) as entities that "menyelenggarakan sinkronisasi dan koordinasi pelaksanaan urusan kementerian dalam penyelenggaraan pemerintahan di bidangnya" (carry out synchronization and coordination of the implementation of ministerial affairs in government administration in their respective fields). This definition establishes coordinating ministries as horizontal coordination mechanisms rather than sectoral implementation agencies.

The seven coordinating ministries created by the regulation represent the broadest functional domains of Indonesian governance. These include: (1) Coordinating Ministry for Political and Security Affairs, (2) Coordinating Ministry for Law, Human Rights, Immigration, and Corrections, (3) Coordinating Ministry for Economic Affairs, (4) Coordinating Ministry for Human Development and Culture, (5) Coordinating Ministry for Infrastructure and Regional Development, (6) Coordinating Ministry for Community Empowerment, and (7) Coordinating Ministry for Food. Each coordinating ministry exercises supervisory and coordinative authority over multiple sectoral ministries within its domain, creating functional clusters that facilitate inter-ministerial policy alignment.

Group I Ministries constitute the second category, defined as "kementerian yang nomenklaturnya secara tegas disebutkan dalam Undang-Undang Dasar Negara Republik Indonesia Tahun 1945, termasuk Kementerian Pertahanan" (ministries whose nomenclature is explicitly stated in the 1945 Constitution of the Republic of Indonesia, including the Ministry of Defense). This category encompasses constitutionally mandated ministries such as the Ministry of Home Affairs (Kementerian Dalam Negeri), Ministry of Foreign Affairs (Kementerian Luar Negeri), and Ministry of Defense (Kementerian Pertahanan). The constitutional specification of these ministries reflects their fundamental importance to state sovereignty and territorial integrity.

Group II Ministries handle "urusan pemerintahan dengan ruang lingkup yang diatur dalam Undang-Undang Dasar Negara Republik Indonesia Tahun 1945" (government affairs with scope regulated in the 1945 Constitution of the Republic of Indonesia). This category includes the Ministry of Agrarian Affairs and Spatial Planning/National Land Agency (Kementerian Agraria dan Tata Ruang/Badan Pertanahan Nasional), which administers land rights and spatial planning functions derived from constitutional provisions regarding natural resource governance and property rights. Group II ministries occupy an intermediate position between constitutionally explicit mandates (Group I) and policy coordination functions (Group III).

Group III Ministries represent the most flexible category, comprising "kementerian yang menangani urusan pemerintahan dalam rangka penajaman, koordinasi, dan sinkronisasi program pemerintah" (ministries that handle government affairs for the purpose of sharpening, coordination, and synchronization of government programs). This category includes entities such as the Ministry of National Development Planning/BAPPENAS, Ministry of State Apparatus Empowerment and Bureaucratic Reform, and Ministry of Investment and Downstream Industries/Investment Coordinating Board. Group III ministries serve primarily coordinative and policy development functions rather than direct service delivery.

Matrix 3: The 48 Ministries of Indonesia by Functional Category

The functional distribution reflects a strategic approach to ministerial organization, balancing constitutional mandates with administrative flexibility. Of the 48 total ministries, 20 retained unchanged nomenclature from the previous cabinet structure, while 28 experienced modifications in nomenclature, duties, or functions. These changes reflect the administration's priorities in areas such as digital communication (Ministry of Communication and Digital replacing Ministry of Communication and Informatics), migrant worker protection (elevation to full ministerial status), and food security (creation of dedicated Coordinating Ministry for Food).

The sectoral distribution also reveals the administration's emphasis on economic development, infrastructure, and human capital. Economic-related ministries span multiple categories, from core economic management (Ministry of Finance, Group I) through sectoral economic development (Ministry of Industry, Ministry of Trade, Group II) to investment and downstream coordination (Ministry of Investment and Downstream Industries, Group III). This multi-layered approach enables specialized sectoral focus while maintaining integrated economic policy coordination.

The regulation's functional distribution demonstrates particular attention to emerging governance challenges. The establishment of a dedicated Coordinating Ministry for Law, Human Rights, Immigration, and Corrections reflects growing emphasis on legal system reform and human rights protection. Similarly, the creation of a Coordinating Ministry for Food addresses food security concerns that have intensified due to global supply chain disruptions and climate change impacts on agricultural production. These structural innovations illustrate how the regulation adapts Indonesia's ministerial architecture to contemporary governance imperatives.

The Coordination Architecture: Inter-Ministerial Relationships

Presidential Regulation Number 140 of 2024 establishes a sophisticated coordination architecture that governs relationships among Indonesia's 48 ministries. The coordinating ministry mechanism constitutes the primary horizontal coordination instrument, with each of the seven coordinating ministries exercising supervisory authority over designated sectoral ministries. For instance, the Coordinating Ministry for Political and Security Affairs coordinates the activities of the Ministry of Home Affairs, Ministry of Foreign Affairs, Ministry of Defense, Ministry of Communication and Digital, Office of the Attorney General, Police, and Indonesian Armed Forces (TNI). This coordination encompasses policy synchronization, program alignment, and conflict resolution among ministries operating within related functional domains.

The coordination architecture functions through multiple mechanisms, including regular coordination meetings, joint policy development processes, and integrated program implementation. Coordinating ministries do not exercise direct operational authority over sectoral ministries; rather, they facilitate horizontal collaboration and ensure alignment with presidential priorities. This coordination model reflects Indonesia's unitary state structure while accommodating the specialized technical competencies of sectoral ministries. The regulation does not specify the precise instruments or procedures for inter-ministerial coordination, leaving implementation details to subsequent ministerial regulations and presidential directives.

The Coordinating Ministry for Economic Affairs illustrates the coordination architecture's complexity. This coordinating ministry oversees the Ministry of Labor, Ministry of Industry, Ministry of Trade, Ministry of Energy and Mineral Resources, Ministry of State-Owned Enterprises, Ministry of Investment and Downstream Industries/Investment Coordinating Board, and Ministry of Tourism. The coordination mandate requires alignment of labor policies with industrial development strategies, synchronization of trade policies with investment promotion efforts, and integration of energy planning with industrial requirements. This multi-sectoral coordination addresses the interconnected nature of economic development while respecting the specialized mandates of individual ministries.

The Coordinating Ministry for Human Development and Culture demonstrates coordination across social sectors, overseeing the Ministry of Religion, Ministry of Primary and Secondary Education, Ministry of Higher Education, Science, and Technology, Ministry of Culture, Ministry of Health, Ministry of Women's Empowerment and Child Protection, Ministry of Population and Family Development/National Population and Family Planning Board, and Ministry of Youth and Sports. This coordination architecture recognizes that human development requires integrated approaches spanning education, health, cultural preservation, and demographic management. The coordinating ministry facilitates joint programming in areas such as school health services, cultural education initiatives, and youth development programs.

The coordination architecture also addresses infrastructure and regional development through a dedicated coordinating ministry. The Coordinating Ministry for Infrastructure and Regional Development coordinates the Ministry of Agrarian Affairs and Spatial Planning/National Land Agency, Ministry of Public Works, Ministry of Housing and Settlement Areas, Ministry of Transmigration, and Ministry of Transportation. This coordination is essential for integrated spatial planning, where land use decisions must align with infrastructure development plans, housing programs, and transportation networks. The coordinating ministry facilitates resolution of inter-ministerial conflicts, such as competing demands for land allocation among housing, infrastructure, and agricultural uses.

Matrix 4: Coordinating Ministry Architecture and Sectoral Coverage

The coordination architecture extends beyond formal coordinating ministry structures to encompass ad hoc coordination mechanisms for cross-cutting issues. Presidential priorities such as poverty reduction, disaster management, and digital transformation require coordination across multiple coordinating ministries and their subordinate sectoral ministries. The regulation's flexibility enables the President to establish task forces, special committees, or integrated teams that transcend the formal coordination architecture when circumstances demand rapid, comprehensive responses to emerging challenges.

The regulation also establishes temporal coordination requirements, mandating that organizational restructuring be completed "no later than December 31, 2024." This deadline required coordinating and sectoral ministries to finalize organizational structures, staffing plans, and budgetary allocations within a compressed timeframe. The regulation further requires that human resources and budget allocation provisions be issued through separate ministerial regulations within 14 working days, creating cascading implementation timelines that ensure systematic organizational transition.

The coordination architecture's effectiveness depends significantly on presidential leadership and the relative political influence of individual ministers. While the regulation establishes formal coordination mechanisms, actual coordination practices reflect power dynamics among ministers, their personal relationships with the President, and their political constituencies. Coordinating ministers with strong presidential support can effectively harmonize policies across sectoral ministries, while weaker coordinating ministers may struggle to assert coordination authority over politically influential sectoral ministers. This political dimension introduces variability in coordination effectiveness across different functional domains.

The Amendment Context: Modified by Perpres 90/2025

Presidential Regulation Number 140 of 2024 has been substantially modified by Presidential Regulation Number 90 of 2025, enacted on September 8, 2025, less than one year after the original regulation took effect. The amendment regulation, titled "Perubahan atas Peraturan Presiden Nomor 140 Tahun 2024 tentang Organisasi Kementerian Negara" (Amendment to Presidential Regulation Number 140 of 2024 concerning the Organization of State Ministries), was published in State Gazette 2025 Number 141 and consists of six pages of amendments. This rapid amendment demonstrates the dynamic nature of Indonesia's ministerial organization and the administration's willingness to adjust organizational structures in response to implementation experience and evolving governance priorities.

Presidential Regulation Number 90 of 2025 addresses organizational elements within the Finance Law (Hukum Keuangan) category, suggesting that amendments focused on budgetary, fiscal, or financial management aspects of ministerial organization. The amendment's publication date of September 8, 2025, coincides with typical budget preparation cycles in Indonesia, where the executive branch finalizes budget proposals for submission to the House of Representatives in August or September. This timing suggests that amendments may have been necessary to align ministerial organizational structures with fiscal year 2026 budget allocations.

The amendment context reflects broader patterns in Indonesian administrative law, where presidential regulations frequently undergo modification as implementation challenges emerge or political circumstances evolve. Presidential regulations constitute a flexible regulatory instrument that can be amended through streamlined procedures compared to laws or government regulations. This flexibility enables rapid organizational adaptation but can also create legal uncertainty for ministries attempting to implement long-term programs and institutional development initiatives.

The necessity for amendment within the first year of implementation may indicate that the original 48-ministry structure encountered operational challenges, political resistance, or budgetary constraints. The expansion from 34 to 48 ministries significantly increased administrative costs through ministerial salaries, deputy minister appointments, special staff positions, and operational budgets for new or restructured ministries. Amendment provisions may have addressed budgetary sustainability concerns or streamlined organizational structures that proved unwieldy during initial implementation.

The amendment's focus on organizational elements suggests potential modifications to provisions governing deputy ministers, special staff appointments, technical implementing units, or inter-ministerial coordination mechanisms. These organizational elements represent the operational infrastructure through which ministries execute their mandates, and adjustments may have been necessary to enhance efficiency, reduce redundancy, or strengthen accountability mechanisms. The absence of publicly available detailed amendment text limits precise analysis of which organizational elements were modified and how such modifications affect ministerial operations.

Matrix 5: Regulatory Amendment Timeline and Context

The amendment context demonstrates the iterative nature of institutional development in Indonesia's executive branch. Rather than implementing rigid organizational structures that resist modification, the regulatory framework enables continuous refinement based on implementation experience. This adaptive approach balances institutional stability with organizational flexibility, allowing the administration to respond to changing circumstances while maintaining core ministerial functions.

The rapid amendment also raises questions about the consultation and planning processes preceding the original regulation's enactment. Comprehensive organizational restructuring ideally incorporates extensive stakeholder consultation, impact assessment, and pilot implementation before full-scale rollout. The necessity for amendments within one year may suggest that initial planning processes did not adequately anticipate implementation challenges or political obstacles. Future organizational reforms may benefit from more extensive preliminary assessment to reduce the need for rapid post-enactment amendments.

The amendment's classification under Finance Law indicates the centrality of budgetary considerations in ministerial organization. Indonesia's public finance framework requires that all governmental expenditures receive legislative authorization through the annual APBN, creating fiscal constraints on ministerial expansion. The amendment may have addressed tensions between the expanded ministerial structure and available budgetary resources, requiring modifications to organizational elements to ensure fiscal sustainability. This fiscal dimension illustrates how constitutional administrative discretion operates within budgetary constraints established through the legislative appropriations process.

Conclusion

Presidential Regulation Number 140 of 2024 represents Indonesia's most comprehensive ministerial reorganization in recent history, establishing a 48-ministry framework that balances constitutional mandates with administrative flexibility. The regulation implements constitutional provisions through a sophisticated four-tier categorization system that distinguishes between coordinating ministries, constitutionally mandated ministries, constitutionally scoped ministries, and policy coordination ministries. This organizational architecture reflects strategic priorities in economic development, human capital formation, infrastructure provision, and emerging governance challenges such as digital transformation and food security.

The regulation establishes a multi-layered organizational hierarchy incorporating deputy ministers, special staff, technical implementing units, and career civil service echelons. This structure combines political responsiveness with technical competence, enabling ministries to pursue policy priorities while maintaining institutional expertise. The coordination architecture creates horizontal collaboration mechanisms through seven coordinating ministries that synchronize policy implementation across related sectoral domains. These coordination mechanisms address the interconnected nature of contemporary governance challenges while respecting the specialized mandates of individual ministries.

The regulation's rapid amendment through Presidential Regulation Number 90 of 2025 demonstrates both the flexibility of Indonesia's regulatory framework and the implementation challenges inherent in large-scale organizational restructuring. The amendment's focus on organizational elements and finance law indicates the practical difficulties of operationalizing expanded ministerial structures within fiscal constraints. Future research should examine the effectiveness of coordination mechanisms, the impact of organizational expansion on policy coherence, and the budgetary sustainability of the 48-ministry framework.

Presidential Regulation Number 140 of 2024 establishes foundational architecture for Indonesia's executive branch during the Prabowo-Gibran administration. As amended by Presidential Regulation Number 90 of 2025, this framework governs ministerial organization, inter-ministerial coordination, and administrative hierarchy across diverse governance domains. The regulation's success will ultimately depend on effective implementation of coordination mechanisms, adequate budgetary allocation, and sustained presidential leadership to harmonize policies across 48 distinct ministerial entities.

Disclaimer

This article was AI-generated under an experimental legal-AI application. It may contain errors, inaccuracies, or hallucinations. The content is provided for informational purposes only and should not be relied upon as legal advice or authoritative interpretation of regulations.

We accept no liability whatsoever for any decisions made based on this article. Readers are strongly advised to:

• Consult the official regulation text from government sources
• Seek professional legal counsel for specific matters
• Verify all information independently

This experimental AI application is designed to improve access to regulatory information, but accuracy cannot be guaranteed.