How Does Perpres 195/2024 Structure Bappenas as National Planning Authority?
Presidential Regulation No. 195 of 2024 establishes the National Development Planning Agency (Badan Perencanaan Pembangunan Nasional or Bappenas) as Indonesia's central planning authority, defining its institutional framework, functions, and coordination mechanisms for national development. Enacted on November 8, 2024, this regulation replaces Presidential Regulation No. 81 of 2021 and implements Article 11 of Law No. 39 of 2008 on State Ministries as amended by Law No. 61 of 2024. The regulation structures Bappenas as a non-ministerial government institution directly accountable to the President, with comprehensive responsibilities spanning macro development planning, regional development, sectoral coordination, financing, and monitoring-evaluation functions.
The regulation establishes Bappenas as the apex planning institution responsible for coordinating national development across all sectors and regions. Article 1 defines Bappenas as "lembaga pemerintah non kementerian yang menyelenggarakan tugas pemerintahan di bidang perencanaan pembangunan nasional" (a non-ministerial government institution that carries out governmental tasks in the field of national development planning). This non-ministerial status provides Bappenas with cross-cutting authority to coordinate with line ministries, regional governments, and international partners without being confined to a single sectoral mandate.
The Planning Mandate: Bappenas as National Development Coordinator
Bappenas operates under a dual leadership structure that integrates planning authority with ministerial-level decision-making. Article 7 provides that "Kepala dijabat oleh Menteri Perencanaan Pembangunan Nasional" (The Head is held by the Minister of National Development Planning). This dual appointment ensures that the planning function maintains cabinet-level influence while preserving the technical independence of a specialized agency. The Head position translates to "The Head is held by the Minister of National Development Planning," establishing direct presidential oversight and ministerial accountability.
The institutional positioning of Bappenas reflects its coordinating role across the entire government structure. Article 2 states that "Bappenas berada di bawah dan bertanggung jawab kepada Presiden" (Bappenas is under and accountable to the President). This direct reporting line to the President ensures that national development planning receives top-level political support and can effectively coordinate across ministerial boundaries. The accountability structure enables Bappenas to convene inter-ministerial meetings, resolve coordination challenges, and align sectoral plans with national priorities.
Bappenas's core task encompasses comprehensive development planning support to the President. Article 3 defines the primary task: "Bappenas melaksanakan tugas pemerintahan di bidang perencanaan pembangunan nasional untuk membantu Presiden dalam menyelenggarakan pemerintahan negara" (Bappenas carries out governmental tasks in the field of national development planning to assist the President in conducting state governance). This formulation positions planning not as a technocratic exercise but as a fundamental governance function that directly supports presidential decision-making and state administration.
The regulation introduces a Deputy Head position to strengthen leadership capacity. Article 8(2) provides that "Wakil Kepala dijabat oleh Wakil Menteri Perencanaan Pembangunan Nasional" (The Deputy Head is held by the Deputy Minister of National Development Planning). This translates to "The Deputy Head is held by the Deputy Minister of National Development Planning," creating a two-tier leadership structure that can distribute responsibilities across Bappenas's extensive functional portfolio while maintaining unified strategic direction.
The Quadruple Framework: Institutional, Funding, Regulatory, Coordination
Bappenas operates through an integrated quadruple framework encompassing institutional structure, funding coordination, regulatory planning, and inter-agency coordination mechanisms. The institutional framework establishes nine Deputy-level directorates covering distinct planning domains, while the funding framework coordinates both state budget (APBN) and non-APBN financing sources. The regulatory framework involves drafting national development plans and coordinating policy consistency, and the coordination framework ensures alignment across ministries, regions, and international partners.
The regulation assigns Bappenas nineteen core functions that span the entire development planning cycle. Article 4 lists these functions, beginning with "koordinasi, sinkronisasi, perumusan, dan penetapan kebijakan perencanaan pembangunan nasional dalam mendukung pencapaian pertumbuhan yang berkualitas dan berkelanjutan, penurunan kemiskinan, dan peningkatan produktivitas sumber daya manusia" (coordination, synchronization, formulation, and determination of national development planning policy in support of achieving quality and sustainable growth, poverty reduction, and increased human resource productivity).
The coordinating function extends to thematic, holistic, integrative, and spatial planning approaches. Article 4(f) mandates "koordinasi dan sinkronisasi perencanaan pembangunan nasional dengan kriteria tematik, holistik, integratif, dan spasial dalam kerangka perencanaan sektoral dan kewilayahan" (coordination and synchronization of national development planning with thematic, holistic, integrative, and spatial criteria within the framework of sectoral and regional planning). This multi-dimensional approach ensures that development planning addresses cross-cutting themes, integrates multiple sectors, and accounts for spatial distribution of development activities.
Bappenas holds exclusive authority over national strategic projects designation and management. Article 4(d) assigns the function of "perumusan dan penetapan kebijakan proyek strategis nasional" (formulation and determination of national strategic project policy). This function enables Bappenas to identify priority infrastructure, economic, and social projects that receive special government support, accelerated permitting, and dedicated financing. The strategic project designation provides a mechanism for focusing government resources on high-impact initiatives.
The regulation establishes Bappenas's role in budget formulation jointly with the Ministry of Finance. Article 4(j) specifies "penyusunan rencana dan perubahan Anggaran Pendapatan dan Belanja Negara bersama dengan kementerian yang menyelenggarakan urusan pemerintahan di bidang keuangan" (preparation of plans and amendments to the State Revenue and Expenditure Budget together with the ministry conducting governmental affairs in the field of finance). This joint responsibility ensures that development planning directly informs budget allocations and that fiscal constraints shape planning priorities.
Bappenas coordinates both domestic and international financing for development programs. Article 4(k) mandates "koordinasi, fasilitasi pelaksanaan pencarian, dan pengintegrasian sumber pendanaan dalam dan luar negeri, baik antar sumber pendanaan dalam Anggaran Pendapatan dan Belanja Negara maupun dengan sumber/skema pendanaan non Anggaran Pendapatan dan Belanja Negara termasuk pendanaan inovatif dalam perencanaan pembangunan nasional" (coordination, facilitation of implementation of sourcing, and integration of domestic and foreign funding sources, both between funding sources in the State Revenue and Expenditure Budget and with non-State Revenue and Expenditure Budget funding sources/schemes including innovative financing in national development planning).
| Framework Component | Primary Functions | Coordinating Mechanisms | Legal Basis |
|---|---|---|---|
| Institutional Structure | 9 Deputy-level directorates; sectoral coordination | Secretariat-General; Deputy Coordinators | Articles 5, 9-11 |
| Funding Coordination | APBN formulation; non-APBN integration; innovative financing | Joint planning with Ministry of Finance; donor coordination | Articles 4(j), 4(k), 37-38 |
| Regulatory Planning | Policy formulation; regulatory framework development; PSN designation | Inter-ministerial coordination; regional alignment | Articles 4(b), 4(d), 4(f) |
| Agency Coordination | Sectoral synchronization; regional integration; international cooperation | Coordination forums; data integration; risk management | Articles 4(e), 4(g), 4(n), 4(o) |
The RPJPN and RPJMN Role: Long and Medium-Term Plan Preparation
Bappenas holds primary responsibility for preparing Indonesia's long-term and medium-term national development plans—the RPJPN (Rencana Pembangunan Jangka Panjang Nasional or Long-Term National Development Plan) and RPJMN (Rencana Pembangunan Jangka Menengah Nasional or Medium-Term National Development Plan). The Deputy for Macro Development Planning coordinates this planning process, as specified in Article 13: "Deputi Bidang Perencanaan Makro Pembangunan mempunyai tugas menyelenggarakan koordinasi, perumusan kebijakan, sinkronisasi pelaksanaan kebijakan, pemantauan, evaluasi dan pengendalian, serta penyusunan prakarsa strategis pembangunan lintas sektor perencanaan pembangunan nasional di bidang perencanaan makro pembangunan" (The Deputy for Macro Development Planning has the task of conducting coordination, policy formulation, synchronization of policy implementation, monitoring, evaluation and control, as well as preparation of cross-sectoral strategic development initiatives in the field of macro development planning).
The macro planning function integrates economic assumptions with development targets. Article 14(d) assigns the function of "koordinasi, perumusan, dan penyusunan keselarasan kebijakan ekonomi termasuk penetapan asumsi dasar ekonomi makro, koherensi dan konsistensi kebijakan ekonomi, dan analisis kebutuhan investasi yang bersumber dari Anggaran Pendapatan dan Belanja Negara dan non Anggaran Pendapatan dan Belanja Negara" (coordination, formulation, and preparation of economic policy alignment including determination of macroeconomic basic assumptions, coherence and consistency of economic policy, and analysis of investment needs sourced from the State Revenue and Expenditure Budget and non-State Revenue and Expenditure Budget).
Bappenas coordinates sectoral development targets with national macro targets. Article 14(f) mandates "koordinasi dan sinkronisasi penentuan sasaran dan target makro pembangunan nasional" (coordination and synchronization of determination of national macro development targets and goals). This function ensures that individual ministry targets aggregate to achieve national growth, poverty reduction, and productivity objectives. The coordination prevents over-ambitious sectoral targets that exceed available resources or under-ambitious targets that fail to achieve presidential priorities.
The regional development planning function balances national priorities with regional autonomy. Article 16 establishes the Deputy for Regional Development with the task "menyelenggarakan koordinasi dan perumusan kebijakan, sinkronisasi pelaksanaan kebijakan, pemantauan, evaluasi dan pengendalian, serta penyusunan prakarsa strategis pembangunan lintas sektor perencanaan pembangunan nasional di bidang pembangunan kewilayahan" (conducting coordination and policy formulation, synchronization of policy implementation, monitoring, evaluation and control, as well as preparation of cross-sectoral strategic development initiatives in the field of regional development planning).
The regulation establishes specific authority for coordinating intergovernmental fiscal transfers. Article 17(c) assigns "koordinasi, sinkronisasi, perumusan, dan integrasi pelaksanaan kebijakan perencanaan dana transfer ke daerah" (coordination, synchronization, formulation, and integration of implementation of regional transfer fund planning policy). This function aligns regional development needs with national priorities through the general allocation fund (DAU), special allocation fund (DAK), revenue-sharing fund (DBH), and other transfer mechanisms.
Bappenas prepares strategic cross-sectoral development initiatives that transcend individual ministry mandates. Article 14(g) provides for "penyusunan prakarsa strategis pembangunan lintas sektor melalui pengembangan model inovatif pembangunan sebagai dasar penerapan dan pelembagaan dalam rencana dan anggaran Kementerian/Lembaga/Pemerintah Daerah di bidang perencanaan makro pembangunan" (preparation of cross-sectoral strategic development initiatives through development of innovative development models as a basis for application and institutionalization in the plans and budgets of Ministries/Agencies/Regional Governments in the field of macro development planning).
| Planning Instrument | Time Horizon | Legal Status | Bappenas Role | Coordination Level |
|---|---|---|---|---|
| RPJPN | 20 years (2005-2025; 2025-2045) | National Law | Lead drafting agency; long-term vision formulation | Cross-government; national consensus |
| RPJMN | 5 years (presidential term) | Presidential Regulation | Lead drafting agency; presidential priority translation | Inter-ministerial; cabinet approval |
| Strategic Plans (Renstra) | 5 years (ministerial) | Ministerial Regulation | Coordination; alignment verification | Sectoral coordination |
| Annual Work Plans (Renja) | 1 year | Ministerial Decree | Budget alignment; monitoring framework | Ministry-Bappenas-Finance triangle |
The Inter-Agency Coordination: Ministries, Regions, and Stakeholders
Bappenas coordinates development planning across nine sectoral domains through specialized deputies. The Deputy for Economy and Digital Transformation (Article 18) covers industrial policy, trade, investment climate, and digital infrastructure. The Deputy for Politics, Law, Human Rights, Defense, and Security (Article 21) coordinates governance reform, legal system development, and national security planning. The Deputy for Community Empowerment, Population, and Employment (Article 24) plans social protection programs, demographic policies, and labor market development.
The human development planning function integrates education, health, and cultural development. Article 28 establishes the Deputy for Human Development and Culture with responsibility for "menyelenggarakan koordinasi dan perumusan kebijakan, sinkronisasi pelaksanaan kebijakan, pemantauan, evaluasi dan pengendalian, serta penyusunan prakarsa strategis pembangunan lintas sektor perencanaan pembangunan nasional di bidang pembangunan manusia dan kebudayaan" (conducting coordination and policy formulation, synchronization of policy implementation, monitoring, evaluation and control, as well as preparation of cross-sectoral strategic development initiatives in the field of human development and culture).
Natural resource and environmental planning operates through dedicated deputy-level coordination. Article 31 assigns the Deputy for Food, Natural Resources, and Environment the task of "menyelenggarakan koordinasi dan perumusan kebijakan, sinkronisasi pelaksanaan kebijakan, pemantauan, evaluasi dan pengendalian, serta penyusunan prakarsa strategis pembangunan lintas sektor perencanaan pembangunan nasional di bidang pangan, sumber daya alam, dan lingkungan hidup" (conducting coordination and policy formulation, synchronization of policy implementation, monitoring, evaluation and control, as well as preparation of cross-sectoral strategic development initiatives in the field of food, natural resources, and environment).
Infrastructure planning encompasses physical connectivity, energy systems, and urban development. Article 34 establishes the Deputy for Infrastructure with the mandate "menyelenggarakan koordinasi, perumusan kebijakan, sinkronisasi pelaksanaan kebijakan, pemantauan, evaluasi dan pengendalian, serta penyusunan prakarsa strategis pembangunan lintas sektor perencanaan pembangunan nasional di bidang infrastruktur" (conducting coordination, policy formulation, synchronization of policy implementation, monitoring, evaluation and control, as well as preparation of cross-sectoral strategic development initiatives in the field of infrastructure).
The financing and investment deputy coordinates all funding streams for development programs. Article 37 assigns comprehensive financing responsibilities: "Deputi Bidang Pembiayaan dan Investasi Pembangunan mempunyai tugas menyelenggarakan koordinasi dan perumusan kebijakan, sinkronisasi pelaksanaan kebijakan, pemantauan, evaluasi dan pengendalian, serta penyusunan prakarsa strategis pembangunan lintas sektor perencanaan pembangunan nasional di bidang pembiayaan dan investasi pembangunan" (The Deputy for Development Financing and Investment has the task of conducting coordination and policy formulation, synchronization of policy implementation, monitoring, evaluation and control, as well as preparation of cross-sectoral strategic development initiatives in the field of development financing and investment).
Article 38(d) specifically mandates coordination of innovative financing mechanisms: "koordinasi, fasilitasi pelaksanaan pencarian, dan pengintegrasian sumber pendanaan dalam dan luar negeri, baik antar sumber pendanaan dalam Anggaran Pendapatan dan Belanja Negara maupun dengan sumber/skema pendanaan non Anggaran Pendapatan dan Belanja Negara termasuk pendanaan inovatif dalam perencanaan pembangunan nasional" (coordination, facilitation of implementation of sourcing, and integration of domestic and foreign funding sources, both between funding sources in the State Revenue and Expenditure Budget and with non-State Revenue and Expenditure Budget funding sources/schemes including innovative financing in national development planning).
The regulation establishes data integration as a core coordination mechanism. Article 4(n) mandates "koordinasi, sinkronisasi, dan integrasi satu data dalam rangka perencanaan, pelaksanaan pemantauan, pengendalian, dan evaluasi pembangunan nasional" (coordination, synchronization, and integration of one data in the context of planning, implementation monitoring, control, and evaluation of national development). This one-data policy ensures that all government agencies use consistent data for planning and reporting, reducing inconsistencies and improving evidence-based policy making.
| Sectoral Deputy | Primary Coordination Domains | Key Stakeholders | Planning Outputs |
|---|---|---|---|
| Macro Development Planning | National plans; macro targets; economic assumptions | Ministry of Finance; Bank Indonesia; line ministries | RPJMN; macro framework; growth targets |
| Regional Development | Regional planning; fiscal transfers; spatial planning | Provincial/district governments; Ministry of Home Affairs | Regional development plans; transfer fund allocation |
| Economy & Digital Transformation | Industrial policy; trade; investment; digital infrastructure | Ministry of Industry; Ministry of Trade; Ministry of Communication & IT | Sectoral development strategies; investment roadmaps |
| Financing & Investment | Budget formulation; innovative financing; PPPs; FDI coordination | Ministry of Finance; Ministry of Investment; international donors | Financing strategies; investment programs; PSN financing |
The Monitoring and Evaluation Function: Development Progress Assessment
Bappenas operates a dedicated monitoring and evaluation system through the Deputy for Control, Evaluation, and Development Risk Management. Article 40 assigns this deputy the task: "Deputi Bidang Pengendalian, Evaluasi, dan Manajemen Risiko Pembangunan mempunyai tugas menyelenggarakan koordinasi, perumusan, dan pelaksanaan kebijakan di bidang pengendalian, evaluasi, dan manajemen risiko pembangunan" (The Deputy for Control, Evaluation, and Development Risk Management has the task of conducting coordination, formulation, and implementation of policy in the field of control, evaluation, and development risk management).
The monitoring function extends to national strategic projects. Article 41(c) mandates "koordinasi, perumusan, dan pelaksanaan pemantauan, pengendalian, evaluasi, dan manajemen risiko pembangunan nasional dan proyek strategis nasional" (coordination, formulation, and implementation of monitoring, control, evaluation, and development risk management of national development and national strategic projects). This dedicated focus on strategic projects ensures that high-priority initiatives receive continuous oversight and rapid problem resolution.
Risk management integrates with planning from the earliest stages. Article 41(d) requires "koordinasi dan perumusan kebijakan integrasi manajemen risiko dalam penyusunan dan pelaksanaaan rencana pembangunan nasional" (coordination and formulation of policy on integration of risk management in the preparation and implementation of national development plans). This ex-ante risk assessment helps identify potential implementation obstacles before programs receive budget allocations and ministerial assignments.
The regulation establishes performance-based management accountability. Article 41(h) assigns "koordinasi penyelarasan perencanaan dan pengelolaan kinerja Kementerian/Lembaga/Pemerintah Daerah dalam rangka pencapaian sasaran pembangunan nasional" (coordination of alignment of planning and performance management of Ministries/Agencies/Regional Governments in the context of achieving national development targets). This function links ministerial performance agreements with national development targets, creating accountability for target achievement.
Bappenas manages an integrated monitoring and evaluation data system. Article 41(f) provides for "pengelolaan dan pengembangan sistem dan data terpadu pelaporan, pemantauan, pengendalian, dan evaluasi program pembangunan nasional" (management and development of an integrated system and data for reporting, monitoring, control, and evaluation of national development programs). This digital platform enables real-time tracking of development indicators, budget execution, and physical progress across all government programs.
The regulation authorizes incentive and disincentive mechanisms for performance management. Article 41(g) empowers Bappenas with "koordinasi dan perumusan kebijakan pemberian insentif atau disinsentif dalam pelaksanaan pemantauan, pengendalian, evaluasi, dan manajemen risiko rencana pembangunan nasional" (coordination and formulation of policy on provision of incentives or disincentives in the implementation of monitoring, control, evaluation, and development risk management of national development plans). These performance incentives can reward over-performing ministries with additional resources or flexibility while imposing corrective measures on under-performers.
Bappenas reports directly to the President on development implementation. Article 54 requires: "Menteri/Kepala menyampaikan laporan kepada Presiden mengenai hasil pelaksanaan tugas pemerintahan di bidang perencanaan pembangunan nasional secara berkala dan sewaktu-waktu sesuai kebutuhan" (The Minister/Head submits reports to the President regarding the results of implementation of governmental tasks in the field of national development planning regularly and at any time as needed). This direct reporting ensures presidential visibility into development progress and enables rapid intervention when programs deviate from targets.
| Monitoring & Evaluation Element | Responsibility | Frequency | Reporting Channel | Intervention Authority |
|---|---|---|---|---|
| National Development Progress | Deputy for Control, Evaluation & Risk Management | Quarterly | Presidential report; cabinet briefing | Presidential directive; ministerial corrective action |
| Strategic Project Monitoring | Deputy for Financing & Investment; Deputy for Control | Monthly | Cabinet committee; presidential briefing | Project acceleration; ministerial coordination meeting |
| Budget Execution Monitoring | Deputy for Financing & Investment; Ministry of Finance | Monthly | Joint Bappenas-Finance report | Budget reallocation; absorption improvement measures |
| Performance Management | Deputy for Control; all sectoral deputies | Annual | Ministerial performance agreements | Incentive/disincentive mechanisms; corrective plans |
| Risk Assessment | Deputy for Control; all sectoral deputies | Quarterly | Risk register; mitigation plans | Risk response strategies; contingency activation |
Presidential Regulation No. 195 of 2024 establishes Bappenas as Indonesia's central planning authority with comprehensive coordination, formulation, financing, and evaluation functions across all sectors and regions. The regulation structures Bappenas through nine specialized deputies covering macro planning, regional development, economic transformation, human development, natural resources, infrastructure, financing, and monitoring-evaluation. The dual appointment of the Head as Minister of National Development Planning ensures cabinet-level influence while preserving technical planning capacity. The quadruple framework of institutional structure, funding coordination, regulatory planning, and inter-agency coordination provides comprehensive coverage of the planning function. Bappenas prepares the RPJPN and RPJMN as the foundation for sectoral and regional plans while coordinating with line ministries, provincial governments, and international partners. The integrated monitoring and evaluation system tracks development progress, manages risks, and reports directly to the President, enabling evidence-based course corrections throughout implementation cycles.
Source: Presidential Regulation No. 195 of 2024 on National Development Planning Agency
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