How Does Perpres 80/2025 Regulate Strategic and Work Planning for Ministries?

On June 30, 2025, President Prabowo Subianto enacted Presidential Regulation Number 80 of 2025 concerning the Preparation of Strategic Plans and Work Plans for Ministries/Agencies (Peraturan Presiden Nomor 80 Tahun 2025 tentang Penyusunan Rencana Strategis dan Rencana Kerja Kementerian/Lembaga). This regulation establishes a comprehensive framework for how Indonesian government ministries and agencies must prepare their medium-term strategic plans (Renstra-KL) and annual work plans (Renja-KL). The regulation implements Article 8 paragraph (10) of Law Number 59 of 2024 concerning the National Long-Term Development Plan (RPJPN) 2025-2045, creating an operational mechanism to translate Indonesia's long-term vision of "Indonesia Emas 2045" into actionable ministerial programs.

Perpres 80/2025 replaces the previous regulatory framework established by Regulation of the Minister of National Development Planning/Head of Bappenas Number 10 of 2023, introducing significant changes to planning procedures, timelines, and oversight mechanisms. The regulation serves as a binding guideline for all ministries and agencies in preparing and modifying their strategic and work plans, for the Ministry of National Development Planning (Bappenas) in reviewing and approving planning documents, and for the Ministry of Finance in reviewing work plans and budget allocations. This article analyzes the key provisions of Perpres 80/2025 using the Regulatory Matrix Analysis (RMA) framework to examine how the regulation structures Indonesia's government planning system.

The Planning Hierarchy: Renstra and Renja in National Planning System

Perpres 80/2025 establishes a hierarchical planning architecture that connects long-term national development goals to operational ministerial activities. At the apex of this hierarchy sits the National Long-Term Development Plan (Rencana Pembangunan Jangka Panjang Nasional/RPJPN) covering 2025-2045, which outlines Indonesia's 20-year development trajectory toward the "Indonesia Emas 2045" vision. The RPJPN is operationalized through five-year National Medium-Term Development Plans (Rencana Pembangunan Jangka Menengah Nasional/RPJMN), which in turn form the foundation for ministerial strategic plans.

The regulation mandates that Strategic Plans for Ministries/Agencies (Renstra-KL) must be based on the current RPJMN and contain eight core elements: vision, mission, objectives, strategic targets, performance indicators, policies, programs, activities, and financing frameworks. As stated in the regulation, Renstra-KL documents must include "visi, misi, tujuan, sasaran strategis, indikator kinerja, kebijakan, program, kegiatan, dan kerangka pendanaan" (vision, mission, objectives, strategic targets, performance indicators, policies, programs, activities, and financing frameworks). This comprehensive structure ensures that ministerial plans are not merely aspirational statements but contain concrete operational frameworks linked to measurable outcomes.

Work Plans for Ministries/Agencies (Renja-KL) occupy the operational tier of this hierarchy, translating five-year strategic plans into annual implementation roadmaps. Renja-KL documents reference national development priorities and available budget allocations, serving as the direct basis for preparing Work Plans and Budgets (Rencana Kerja dan Anggaran Kementerian/Lembaga/RKA-KL). This hierarchical cascade from 20-year vision to annual budgets creates a vertically integrated planning system designed to maintain policy coherence across different time horizons and government levels.

The table below illustrates the planning hierarchy established by Perpres 80/2025:

One significant change introduced by Perpres 80/2025 is the removal of period-specific limitations on Renstra-KL validity. While the previous regulation (Permen PPN 10/2023) limited strategic plans to the 2025-2029 period, the new regulation allows Renstra-KL to apply across multiple RPJMN periods, enabling longer-term ministerial strategic thinking. This adjustment recognizes that certain ministerial mandates require planning horizons extending beyond single five-year RPJMN cycles, particularly in infrastructure development, environmental conservation, and human resource development sectors.

The planning hierarchy also incorporates feedback loops through mandatory evaluation mechanisms. Strategic plans must undergo evaluation in the third and fifth years of the planning period, while work plans are evaluated annually. These evaluation results can trigger formal revisions to planning documents, creating a dynamic planning system that can adapt to changing circumstances, new policies, or organizational restructuring. The regulation thus establishes both vertical integration (alignment across planning levels) and temporal responsiveness (adaptation through evaluation cycles) as core design principles.

The Preparation Requirements: Ministerial and Agency Planning Obligations

Perpres 80/2025 imposes specific procedural obligations on ministries and agencies in preparing their strategic and work plans. The regulation mandates that Renstra-KL must be established through a Ministerial Regulation or Agency Head Regulation no later than 8 months after the promulgation of the Presidential Regulation concerning the RPJMN. This represents a significant extension from the previous 5-month deadline, providing ministries with additional time to conduct thorough planning processes and consultations. The extended timeline acknowledges the complexity of translating national development priorities into sector-specific strategic frameworks.

The preparation process begins when the Ministry of National Development Planning (Kementerian PPN/Bappenas) submits the Technocratic Draft RPJMN to ministries and agencies in January of the year preceding the RPJMN period (T-1). Previously, this submission occurred in December two years before the RPJMN period (T-2), but Perpres 80/2025 shifted the timeline forward, creating a more compressed but focused preparation window. Ministries must then use this technocratic draft as the foundation for developing their initial Renstra-KL drafts, ensuring that ministerial planning begins from a shared understanding of national priorities.

The regulation introduces enhanced substantive requirements for Renstra-KL content. Plans must now integrate performance management and risk management frameworks from the outset, marking a shift from static planning documents to dynamic management instruments. As mandated in the regulation, ministries must implement "perencanaan strategis serta pemantauan dan evaluasi, sekaligus melakukan identifikasi risiko sejak awal" (strategic planning along with monitoring and evaluation, simultaneously conducting risk identification from the beginning). This integrated approach transforms Renstra-KL into proactive risk-anticipating documents rather than reactive planning statements.

The following matrix outlines the key preparation requirements for Renstra-KL under Perpres 80/2025:

Perpres 80/2025 also establishes formal review procedures involving multiple government stakeholders. The Two-Party Meeting (Pertemuan Dua Pihak) between individual ministries and Bappenas now examines 18 aspects of the draft Renstra-KL, a significant increase from the previous 11 aspects. This expanded review scope reflects heightened quality standards for strategic planning documents. The aspects examined include alignment with RPJMN priorities, clarity of strategic targets, measurability of performance indicators, realism of financing frameworks, and integration of cross-cutting issues such as environmental sustainability, gender equality, and disaster risk reduction.

Following bilateral consultations, ministries participate in the Alignment Forum (Forum Penyesuaian), which also examines 18 aspects—expanded from 14 aspects under the previous regulation. This forum includes not only Bappenas but also the Ministry of Finance and the Ministry of Administrative and Bureaucratic Reform (KemenPAN-RB), creating a comprehensive review mechanism that considers fiscal constraints and organizational capacity alongside development priorities. The timeline for the Alignment Forum extends until the end of August in the year preceding the RPJMN period (M-1 August), compared to the previous deadline of M-1 June, providing additional time for multi-stakeholder coordination.

For Renja-KL preparation, the regulation establishes an annual cycle synchronized with the national budget process. Ministries must prepare annual work plans that reference the approved Renstra-KL while incorporating current-year national development priorities and available budget allocations. Renja-KL documents form the direct foundation for preparing RKA-KL, creating a seamless linkage between planning and budgeting. The Ministry of Finance reviews Renja-KL to ensure fiscal realism and budget availability before granting approval, establishing a gatekeeper mechanism that prevents unfunded planning commitments.

The Integration Mechanism: Alignment with RPJMN and Budget Cycles

A central design feature of Perpres 80/2025 is the integration mechanism ensuring that ministerial plans align with national priorities and fiscal realities. The regulation establishes formal linkage points between strategic planning processes and budget preparation cycles, creating institutional mechanisms for vertical and horizontal policy coherence. Vertical integration ensures that lower-level plans (Renstra-KL and Renja-KL) accurately reflect higher-level priorities (RPJMN and annual national development priorities), while horizontal integration ensures coordination among ministries pursuing complementary or overlapping objectives.

The primary vertical integration mechanism is the mandatory derivation of Renstra-KL content from the RPJMN. Ministries cannot arbitrarily determine their strategic objectives but must demonstrate how their vision, mission, and strategic targets contribute to achieving national development priorities articulated in the RPJMN. This derivation requirement is enforced through the 18-aspect review conducted during the Two-Party Meeting and Alignment Forum, where Bappenas assesses the strength and clarity of the linkage between ministerial plans and national priorities. Ministries must explicitly map their strategic targets to specific RPJMN objectives, creating traceable accountability chains.

Horizontal integration occurs through the multi-stakeholder Alignment Forum, which serves as a coordination platform for identifying and resolving potential conflicts or overlaps among ministerial programs. When multiple ministries address related development challenges—such as coastal zone management involving Maritime Affairs, Environment, Public Works, and Tourism ministries—the forum facilitates program harmonization and demarcation of responsibilities. The explicit inclusion of the Ministry of Finance and KemenPAN-RB in the Alignment Forum ensures that coordination considers not only substantive program content but also budget availability and organizational capacity constraints.

The following table illustrates the integration checkpoints established by Perpres 80/2025:

The integration of planning and budgeting cycles represents a critical feature of the regulatory framework. Renstra-KL documents must include financing frameworks ("kerangka pendanaan") that estimate resource requirements for achieving strategic targets over the five-year planning period. These financing frameworks are not binding budget commitments but serve as planning parameters that inform annual budget discussions. When preparing Renja-KL each year, ministries must reconcile strategic plan ambitions with actual budget ceiling allocations announced by the Ministry of Finance, creating a realistic annual implementation roadmap.

Perpres 80/2025 introduces an important innovation by explicitly encouraging ministries to optimize non-government funding sources. The regulation directs ministries to explore legitimate funding sources beyond the State Budget (APBN), including collaborations with state-owned enterprises, private sector entities, and development partners. This provision reflects recognition that ambitious development targets may require leveraging non-budgetary resources, particularly in infrastructure, technology development, and capacity-building sectors. Ministries must document potential non-government funding sources in their financing frameworks, creating transparency about resource mobilization strategies.

The regulation also establishes mechanisms for dynamic integration through revision procedures. Ministries can propose Renstra-KL revisions in response to new policies, organizational changes, or evaluation results that reveal significant deviations between plans and implementation realities. Revision proposals undergo the same review process as initial Renstra-KL preparation, including bilateral consultations with Bappenas and multi-stakeholder Alignment Forum discussions. This revision mechanism balances planning stability (through formal regulations and approval requirements) with planning flexibility (through structured revision procedures), enabling adaptive management while preventing arbitrary plan changes.

The Performance Indicators: Output and Outcome Measurement Framework

Perpres 80/2025 establishes rigorous requirements for performance measurement in ministerial planning documents. The regulation mandates that both Renstra-KL and Renja-KL must include performance indicators ("indikator kinerja") that enable systematic monitoring and evaluation of implementation progress. These performance indicators must meet SMART criteria—Specific, Measurable, Achievable, Relevant, and Time-bound—ensuring that ministerial targets can be assessed objectively and consistently. The regulation distinguishes between strategic-level indicators measuring long-term outcomes and operational-level indicators measuring annual outputs, creating a multi-tiered performance framework.

Strategic target indicators (indikator kinerja sasaran strategis) measure the significant results that ministries aim to achieve over the five-year Renstra-KL period. These indicators typically capture outcome-level changes reflecting improved conditions for target beneficiaries or resolved development problems. For example, an environmental ministry's strategic target indicator might measure "percentage reduction in deforestation rates in priority conservation areas" rather than simply counting enforcement actions conducted. Strategic indicators form the basis for evaluating overall Renstra-KL achievement and contribute to assessing national-level progress toward RPJMN objectives.

At the operational level, program and activity indicators measure specific outputs produced through ministerial interventions. Program target indicators (indikator sasaran program) capture intermediate results achieved through coordinated sets of activities, while activity target indicators (indikator sasaran kegiatan) measure direct outputs from specific interventions. This cascading indicator structure creates traceable linkages from activities to programs to strategic targets, enabling performance-based management and accountability. The regulation requires that all indicators at all levels be documented in Renstra-KL and Renja-KL, creating comprehensive performance measurement frameworks.

The matrix below outlines the performance indicator framework established by Perpres 80/2025:

The regulation emphasizes that performance indicators must enable consistent measurement throughout the implementation period. This consistency requirement has several implications: indicators must be measurable using available or readily obtainable data; baseline values must be established at the start of the planning period; and data collection systems must be institutionalized to enable regular measurement. Ministries cannot rely on indicators that lack credible measurement methodologies or accessible data sources, as these would render the performance framework non-operational. The regulation thus creates pressure for improving ministerial data systems and measurement capacity.

Perpres 80/2025 explicitly links performance indicators to national-level evaluation processes. Strategic target indicators contribute to assessing progress toward RPJMN objectives, creating accountability chains from ministerial performance to national development outcomes. This linkage transforms ministerial planning from an internal management exercise into a public accountability mechanism, as strategic indicator achievements become visible components of national development reporting. The regulation thereby elevates the status of performance measurement from administrative formality to strategic governance instrument.

The regulation also addresses performance indicators in the context of risk management. As part of the integrated performance and risk management framework, ministries must identify potential risks that could prevent achievement of performance targets and develop mitigation strategies. Performance indicators serve dual functions as achievement measures and risk monitoring instruments—significant deviations between actual and planned indicator values trigger risk assessments and potential plan adjustments. This integrated approach prevents performance measurement from becoming a mechanical compliance exercise disconnected from strategic management realities.

The Review and Adjustment Process: Annual and Mid-Term Revisions

Perpres 80/2025 establishes a comprehensive review and adjustment system that transforms strategic planning from a static five-year commitment into a dynamic management process. The regulation mandates two types of evaluations for Renstra-KL: mid-term evaluation conducted in the third year of implementation and final evaluation conducted in the fifth year. These mandatory evaluation points create structured opportunities for assessing whether strategic plans remain relevant and achievable in light of changing circumstances, emerging priorities, or implementation experience. The regulation specifies that evaluation results can trigger formal Renstra-KL revisions through established amendment procedures.

For Renja-KL, the regulation requires annual evaluation to assess achievement of yearly performance targets and budget execution rates. Annual evaluations serve multiple purposes: they provide accountability reporting on ministerial performance; they inform preparation of the subsequent year's Renja-KL; they identify necessary adjustments to ongoing programs; and they generate evidence for potential Renstra-KL revisions if systematic deviations from strategic plans emerge. The annual evaluation cycle creates continuous feedback loops between implementation experience and planning commitments, enabling evidence-based adaptive management.

The regulation identifies three primary circumstances that may necessitate Renstra-KL revisions: new policies that fundamentally alter ministerial mandates or priorities; organizational changes such as restructuring, mergers, or function transfers that affect ministerial scope; and evaluation results revealing significant misalignment between plans and implementation realities. In all three circumstances, revision proposals must follow the same review procedures as initial Renstra-KL preparation, including bilateral consultations with Bappenas and multi-stakeholder Alignment Forum discussions. This procedural requirement ensures that revisions undergo the same quality assurance and coordination scrutiny as original plans.

The following table outlines the review and adjustment mechanisms established by Perpres 80/2025:

Perpres 80/2025 introduces explicit provisions for controlling and evaluating Renstra-KL implementation, representing a significant strengthening compared to the previous regulatory framework. While Permen PPN 10/2023 addressed evaluation more generally, the new regulation dedicates specific provisions to "mekanisme pengendalian dan evaluasi pelaksanaan Renstra K/L" (mechanisms for controlling and evaluating Renstra-KL implementation). This explicit attention reflects heightened emphasis on performance-based governance and evidence-based policy adaptation rather than rigid adherence to outdated plans.

The revision process for Renstra-KL requires ministerial initiative but Bappenas approval. Ministries must prepare revision proposals documenting the justification for changes, the specific revisions proposed, and the implications for performance targets, programs, and financing frameworks. Bappenas reviews revision proposals against the same 18 aspects examined during initial plan preparation, ensuring that revisions maintain alignment with national priorities and technical quality standards. For revisions triggered by new policies or organizational changes, Bappenas may expedite the review process to enable timely ministerial adaptation to new mandates.

Renja-KL revisions follow a similar approval process involving both Bappenas and the Ministry of Finance. Since Renja-KL directly informs budget allocations through RKA-KL, any Renja-KL revisions must be reviewed by Finance to ensure fiscal feasibility and compliance with budget execution regulations. This dual approval requirement creates a gatekeeper mechanism preventing unfunded plan revisions while enabling legitimate adjustments based on budget reallocations, supplementary budgets, or revised activity priorities. The regulation thus balances planning flexibility with fiscal discipline.

An important innovation in Perpres 80/2025 is the explicit treatment of evaluation results as inputs for planning cycles. Mid-term and final evaluations of Renstra-KL generate evidence and lessons learned that must inform preparation of subsequent strategic plans. This creates institutional memory and learning mechanisms within the planning system, enabling successive planning cycles to benefit from implementation experience rather than repeating previous mistakes. The regulation thereby transforms planning from a series of disconnected five-year exercises into a continuous learning process contributing to progressive improvement in ministerial management capacity.

The regulation also addresses the transitional challenge facing ministries that had already prepared Renstra-KL 2025-2029 and Renja-KL for fiscal year 2026 under the previous regulatory framework. The transitional provisions mandate that these existing plans must be adjusted to comply with Perpres 80/2025 requirements. This transitional obligation ensures that all current ministerial planning documents meet the enhanced standards introduced by the new regulation, creating uniform quality across government planning systems. Ministries must undertake these adjustments while simultaneously implementing ongoing plans, requiring careful change management and potentially interim revisions to bring existing plans into compliance.

Conclusion

Perpres 80/2025 establishes a comprehensive and rigorous framework for strategic and work planning across Indonesian ministries and agencies. The regulation creates hierarchical integration from 20-year national vision through five-year strategic plans to annual work plans, ensuring policy coherence across time horizons and government levels. Preparation requirements are substantially strengthened through expanded review aspects (18 aspects for both Two-Party Meetings and Alignment Forums), extended preparation timelines (8 months instead of 5 months for Renstra-KL establishment), and multi-stakeholder coordination mechanisms involving Bappenas, Finance, and PAN-RB.

The integration mechanisms embed ministerial planning within the broader RPJMN framework while creating horizontal coordination platforms through Alignment Forums. Performance measurement requirements mandate SMART indicators at strategic, program, and activity levels, transforming planning documents into performance accountability instruments. The review and adjustment system establishes annual Renja-KL evaluations and third-year and fifth-year Renstra-KL evaluations, creating continuous feedback loops that enable evidence-based plan revisions in response to new policies, organizational changes, or implementation experience.

Notable innovations introduced by Perpres 80/2025 include: removal of period-specific limitations on Renstra-KL validity, enabling longer-term strategic thinking; mandatory integration of performance management and risk management from the planning stage; explicit encouragement of non-government funding sources to supplement APBN allocations; and formalized mechanisms for controlling and evaluating plan implementation. These features collectively transform ministerial planning from static compliance documents into dynamic management instruments supporting the achievement of Indonesia Emas 2045.

The regulation faces implementation challenges including the capacity of ministries to develop SMART indicators with reliable measurement systems, the coordination burden imposed by 18-aspect reviews and multi-stakeholder forums, the transitional compliance requirements for existing plans, and the sustainability of annual and mid-term evaluation processes requiring substantial analytical resources. However, by establishing clear procedural requirements, explicit approval authorities, and structured review mechanisms, Perpres 80/2025 creates an operational framework for translating Indonesia's long-term development vision into coordinated ministerial action backed by performance accountability.

Official Source: https://peraturan.bpk.go.id/Details/324647

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