How Does Perpres 90/2025 Amend Ministry Organization Framework?
On September 8, 2025, Indonesia enacted Presidential Regulation Number 90 of 2025 (Perpres 90/2025), which amends Presidential Regulation Number 140 of 2024 concerning the Organization of State Ministries. This regulation introduces targeted modifications to the ministerial organizational framework, specifically to accommodate the newly established Ministry of Hajj and Umrah. The amendments reflect the government's response to the enactment of Law Number 14 of 2025, which revised the legal framework governing the implementation of hajj and umrah pilgrimage services. This article analyzes how Perpres 90/2025 restructures ministerial arrangements while maintaining organizational continuity within Indonesia's executive branch.
The regulation demonstrates a surgical approach to organizational reform by modifying only four articles of the base regulation (Perpres 140/2024), avoiding wholesale restructuring while achieving specific policy objectives. The amendments affect ministry composition, classification criteria, regional presence authorization, and special organizational arrangements. This targeted methodology reflects administrative efficiency principles by minimizing disruption to existing ministerial operations while integrating new institutional arrangements required by statutory developments in hajj and umrah administration.
The Amendment Context: Modifications to Perpres 140/2024
Perpres 90/2025 explicitly identifies its legal basis in Article 4(1) and Article 17 of the 1945 Constitution, which establish presidential authority over executive organization. The regulation cites Law Number 39 of 2008 concerning State Ministries (as amended by Law Number 61 of 2024) and Perpres 140/2024 as its foundation. The considerations (Menimbang) section articulates three sequential rationales: first, the enactment of Law Number 14 of 2025 mandating establishment of the Ministry of Hajj and Umrah; second, the consequent need to incorporate this new ministry into the organizational structure established by Perpres 140/2024; third, the resulting necessity to amend Perpres 140/2024 to reflect these changes.
The regulation follows standard Indonesian legislative drafting conventions by presenting considerations before legal grounds, establishing policy justification before asserting legal authority. The preamble references "penguatan penyelenggaraan ibadah haji dan umrah" (strengthening hajj and umrah pilgrimage implementation) as the substantive purpose behind ministry creation. This language signals that organizational change serves functional objectives rather than merely formal administrative rearrangement. The decision to amend existing regulations rather than issue comprehensive replacement demonstrates continuity in ministerial organization policy.
Article I of Perpres 90/2025 employs the standard amendment formula "Beberapa ketentuan dalam Peraturan Presiden Nomor 140 Tahun 2024 tentang Organisasi Kementerian Negara (Lembaran Negara Republik Indonesia Tahun 2024 Nomor 250) diubah sebagai berikut" (Several provisions in Presidential Regulation Number 140 of 2024 concerning Organization of State Ministries [State Gazette of the Republic of Indonesia Year 2024 Number 250] are amended as follows). This formulation preserves all unamended provisions of Perpres 140/2024, maintaining institutional stability for the vast majority of ministerial arrangements while targeting specific provisions requiring adjustment.
Table 1: Amendment Scope and Structure
| Amendment Target | Original Provision | Change Type | Affected Elements |
|---|---|---|---|
| Article 2 | Ministry composition | Addition | 49 ministries (from 48) |
| Article 3(3) | Kelompok II classification | Modification | Range expanded to include ministry 37 |
| Article 3(4) | Kelompok III classification | Modification | Starting point and range adjusted |
| Article 8(3) | Regional presence | Addition | Three ministries authorized |
| Article 94(1) | Special organizational rules | Addition | Four ministries added to list |
The amendment approach affects five specific provisions across four articles, avoiding wholesale replacement of Perpres 140/2024. This surgical methodology demonstrates sophisticated regulatory technique by identifying precise intervention points rather than disrupting the entire organizational framework. Each amendment serves a discrete function: Article 2 adds the new ministry to the official list, Article 3 adjusts classification boundaries to accommodate the addition, Article 8 authorizes regional operational presence, and Article 94 specifies special organizational rule requirements.
The Organizational Changes: Specific Ministerial Adjustments
The amended Article 2 lists 49 ministries, inserting "Kementerian Haji dan Umrah" (Ministry of Hajj and Umrah) as number 13 in the sequence. This placement positions the new ministry immediately after the Ministry of Religion (Kementerian Agama, number 12) and before the Ministry of Law (Kementerian Hukum, number 14). The sequencing reflects functional relationship considerations, as hajj and umrah administration historically fell under religious affairs jurisdiction before functional specialization warranted separate ministerial status.
The complete ministerial list maintains the seven coordinating ministries at positions 1-7, the three constitutionally-specified ministries at positions 9-11 (Home Affairs, Foreign Affairs, Defense), and position 8 for the State Secretariat Ministry. The substantive ministries occupy positions 12 through 49. Prior to amendment, Perpres 140/2024 listed 48 ministries; the addition of the Ministry of Hajj and Umrah increases the total to 49, matching the constitutional maximum specified in Law Number 39 of 2008 as amended.
Table 2: Position 12-20 Ministerial Sequence (Amended)
| Position | Ministry | Classification | Statutory Basis |
|---|---|---|---|
| 12 | Ministry of Religion | Kelompok II | UUD 1945 (implicit) |
| 13 | Ministry of Hajj and Umrah | Kelompok II | Law 14/2025 |
| 14 | Ministry of Law | Kelompok II | Administrative separation |
| 15 | Ministry of Human Rights | Kelompok II | Administrative separation |
| 16 | Ministry of Immigration and Corrections | Kelompok II | Functional consolidation |
| 17 | Ministry of Finance | Kelompok II | UUD 1945 (implicit) |
| 18 | Ministry of Basic and Secondary Education | Kelompok II | UUD 1945 Article 31 |
| 19 | Ministry of Higher Education, Science, and Technology | Kelompok II | UUD 1945 Article 31 |
| 20 | Ministry of Culture | Kelompok II | UUD 1945 Article 32 |
The insertion of Ministry of Hajj and Umrah at position 13 necessitated renumbering all subsequent ministries. What was previously position 13 (Ministry of Law) became position 14, continuing through the entire sequence. This cascading effect required careful verification to ensure no ministry was omitted or duplicated during renumbering. The regulation's drafters maintained alphabetical-functional clustering principles evident in the original sequencing, preserving organizational logic despite numerical shifts.
The ministerial composition reflects Indonesia's executive structure as of September 2025. The presence of specialized ministries such as Ministry of Law (position 14), Ministry of Human Rights (position 15), and Ministry of Immigration and Corrections (position 16) demonstrates functional disaggregation of what was historically unified justice sector administration. Similarly, the separation of Ministry of Basic and Secondary Education (position 18) from Ministry of Higher Education, Science, and Technology (position 19) reflects educational policy specialization. These organizational choices represent deliberate administrative design decisions implemented through the Perpres 140/2024 framework, which Perpres 90/2025 preserves while adding the hajj-umrah specialization.
The Functional Reallocations: Redistributed Responsibilities
The amended Article 3 restructures ministerial classification boundaries to accommodate the new ministry within the three-tier grouping system. Article 3(1) remains unchanged, specifying that positions 1-7 constitute Coordinating Ministries (Kementerian Koordinator). Article 3(2) similarly remains unchanged, designating positions 9-11 as Kelompok I ministries—those explicitly named in the 1945 Constitution. The substantive changes occur in Article 3(3) and Article 3(4), which redefine Kelompok II and Kelompok III boundaries.
The amended Article 3(3) states: "Kementerian sebagaimana dimaksud dalam Pasal 2 angka 12 sampai dengan angka 37 merupakan Kementerian yang menangani urusan pemerintahan yang ruang lingkupnya disebutkan dalam Undang-Undang Dasar Negara Republik Indonesia Tahun 1945" (The ministries referred to in Article 2 numbers 12 through 37 constitute ministries handling governmental affairs whose scope is mentioned in the 1945 Constitution of the Republic of Indonesia). This classification identifies Kelompok II ministries as those addressing constitutionally-referenced governmental functions, even if not specifically named in the constitutional text.
Prior to amendment, Article 3(3) of Perpres 140/2024 specified a range of "angka 12 sampai dengan angka 36" (numbers 12 through 36). The amendment extends the upper boundary from 36 to 37, accommodating the insertion of Ministry of Hajj and Umrah at position 13. This expansion maintains the substantive definition of Kelompok II (constitutionally-scoped functions) while adjusting the numerical range to account for the additional ministry within this classification category. The Ministry of Hajj and Umrah qualifies for Kelompok II classification because the 1945 Constitution references religious affairs in Article 29, establishing constitutional foundation for religious pilgrimage administration.
Table 3: Ministerial Classification System (Post-Amendment)
| Classification | Position Range | Number of Ministries | Defining Characteristic | Statutory Basis |
|---|---|---|---|---|
| Kementerian Koordinator | 1-7 | 7 | Cross-sectoral coordination | Law 39/2008 Article 7 |
| Kelompok I | 9-11 | 3 | Constitutionally named | UUD 1945 Article 17 |
| Kelompok II | 12-37 | 26 | Constitutionally scoped | UUD 1945 (various articles) |
| Kelompok III | 8, 38-49 | 13 | Program coordination/specialization | Administrative necessity |
The amended Article 3(4) correspondingly adjusts Kelompok III boundaries, stating: "Kementerian sebagaimana dimaksud dalam Pasal 2 angka 8 dan angka 38 sampai dengan angka 49 merupakan Kementerian yang menangani urusan pemerintahan dalam rangka penajaman, koordinasi, dan sinkronisasi program pemerintah" (The ministries referred to in Article 2 number 8 and numbers 38 through 49 constitute ministries handling governmental affairs for the purposes of sharpening, coordination, and synchronization of government programs). Prior to amendment, this provision specified "angka 37 sampai dengan angka 48" (numbers 37 through 48); the amendment shifts the range to "angka 38 sampai dengan angka 49."
This adjustment maintains the total number of Kelompok III ministries at 13 (position 8 plus positions 38-49), preserving the balance between constitutionally-grounded ministries (Kelompok II) and programmatically-oriented ministries (Kelompok III). Kelompok III encompasses specialized agencies like Ministry of State Secretariat (position 8), Ministry of National Development Planning/Bappenas (position 38), Ministry of State Apparatus Empowerment and Bureaucratic Reform (position 39), and Ministry of State-Owned Enterprises (position 40). These ministries serve cross-cutting coordination functions or address specialized policy domains not directly specified in constitutional text.
The classification system reflects Indonesian administrative law's three-tier conception of ministerial authority sources. Kelompok I derives directly from constitutional specification, enjoying highest constitutional legitimacy. Kelompok II implements constitutional mandates through functional specialization in domains referenced (though not named) in the constitutional text. Kelompok III addresses administrative needs arising from government program implementation rather than constitutional mandate. This taxonomy structures ministerial hierarchy and determines organizational flexibilities available to each category, as elaborated in Articles 4-10 of Perpres 140/2024 (as amended).
The Article 9A Exercise: Presidential Reorganization Authority in Practice
The amended Article 8(3) addresses regional presence authorization for specific ministries, expanding the category of ministries permitted to establish subnational operational units. The provision states: "Selain Kementerian sebagaimana dimaksud pada ayat (2), Kementerian Haji dan Umrah, Kementerian Hak Asasi Manusia, dan Kementerian Imigrasi dan Pemasyarakatan dapat memiliki unsur pelaksana tugas pokok di daerah sesuai dengan analisis organisasi dan beban kerja" (Besides the ministries referred to in paragraph (2), the Ministry of Hajj and Umrah, Ministry of Human Rights, and Ministry of Immigration and Corrections may have implementing elements for core tasks in regions according to organizational analysis and workload assessment).
Article 8(2) specifies that Ministry of Religion, Ministry of Law, and Ministry of Finance possess regional implementing elements. Article 8(3) extends this authorization to three additional ministries—Ministry of Hajj and Umrah, Ministry of Human Rights, and Ministry of Immigration and Corrections—subject to organizational analysis and workload justification. Prior to amendment, Perpres 140/2024 did not include this authorization; the amendment creates new administrative capacity for these ministries to establish subnational presence beyond central headquarters operations.
The inclusion of Ministry of Hajj and Umrah in this authorization reflects the geographical distribution of hajj-umrah services throughout Indonesia. Prospective pilgrims require local access to registration, documentation, health screening, and pre-departure preparation services. Without regional offices, the ministry would struggle to serve populations outside Java, contradicting principles of administrative accessibility. The authorization follows the "dapat memiliki" (may have) formulation rather than mandatory establishment, allowing the ministry to determine regional presence based on service delivery needs and resource availability.
Table 4: Regional Presence Authorization Framework
| Ministry | Authorization Source | Mandatory/Discretionary | Justification Required |
|---|---|---|---|
| Ministry of Religion | Article 8(2) | Mandatory | Constitutional function |
| Ministry of Law | Article 8(2) | Mandatory | Constitutional function |
| Ministry of Finance | Article 8(2) | Mandatory | Constitutional function |
| Ministry of Hajj and Umrah | Article 8(3) | Discretionary | Organizational analysis + workload |
| Ministry of Human Rights | Article 8(3) | Discretionary | Organizational analysis + workload |
| Ministry of Immigration and Corrections | Article 8(3) | Discretionary | Organizational analysis + workload |
The requirement for "analisis organisasi dan beban kerja" (organizational analysis and workload assessment) imposes procedural discipline on regional expansion. Ministries cannot automatically establish provincial or district offices; they must demonstrate functional necessity through evidence-based analysis. This requirement implements efficiency principles by preventing unnecessary bureaucratic proliferation while accommodating legitimate service delivery needs. The analysis must address organizational structure requirements (personnel, hierarchy, coordination mechanisms) and workload justification (service volume, geographical distribution, accessibility imperatives).
The amended Article 94(1) expands the list of ministries subject to separate presidential regulation for organizational structure. The provision now states: "Ketentuan mengenai struktur organisasi Kementerian Luar Negeri, Kementerian Pertahanan, Kementerian Agama, Kementerian Haji dan Umrah, Kementerian Hukum, Kementerian Hak Asasi Manusia, Kementerian Imigrasi dan Pemasyarakatan, dan Kementerian Keuangan yang menyelenggarakan urusan pemerintahan absolut diatur dengan Peraturan Presiden tersendiri" (Provisions concerning organizational structure of the Ministry of Foreign Affairs, Ministry of Defense, Ministry of Religion, Ministry of Hajj and Umrah, Ministry of Law, Ministry of Human Rights, Ministry of Immigration and Corrections, and Ministry of Finance that conduct absolute governmental affairs are regulated by separate Presidential Regulation).
This provision designates eight ministries requiring individualized organizational frameworks rather than conforming to standard templates in Perpres 140/2024. Prior to amendment, Perpres 140/2024 listed only four ministries in this category (Foreign Affairs, Defense, Religion, Finance). The amendment adds four new ministries: Hajj and Umrah, Law, Human Rights, and Immigration and Corrections. The inclusion criterion references "urusan pemerintahan absolut" (absolute governmental affairs)—functions exclusively reserved to central government without regional government involvement, as defined in Law Number 23 of 2014 concerning Regional Government.
The designation carries practical implications for organizational flexibility. Ministries subject to Article 94(1) are not bound by standard structural templates specified in Articles 4-10 of Perpres 140/2024. Instead, each receives tailored organizational arrangements through dedicated presidential regulation reflecting unique functional requirements. For Ministry of Hajj and Umrah, this flexibility allows accommodation of specialized units for pilgrimage logistics, health services, consular coordination, and financial management that may not fit standard ministerial templates. The separate regulation approach also facilitates organizational adjustments without requiring amendment to the comprehensive framework established by Perpres 140/2024.
The Continuity Framework: Maintaining Ministerial Stability During Transition
Article II of Perpres 90/2025 establishes immediate effect: "Peraturan Presiden ini mulai berlaku pada tanggal diundangkan" (This Presidential Regulation takes effect on the date of promulgation). The regulation was established and promulgated on September 8, 2025, as stated in the closing formulas. This same-day effectiveness eliminates transition gaps that could create legal uncertainty about ministerial composition. The immediate effect clause appears standard in Indonesian presidential regulations affecting organizational structure, reflecting preference for clean breaks over transition periods in administrative law.
The regulation bears signature of President Prabowo Subianto and promulgation signature of State Secretary Minister Prasetyo Hadi, confirming constitutional compliance with promulgation requirements specified in Law Number 12 of 2011 concerning Formation of Legislation. Publication in State Gazette (Lembaran Negara) Number 141 of 2025 satisfies publicity requirements, making the regulation officially knowable and enforceable throughout Indonesia's legal system. The regulation follows standard closing formulas: "Agar setiap orang mengetahuinya, memerintahkan penempatannya Peraturan Presiden ini dengan dalam Lembaran Negara Republik Indonesia" (So that everyone may know of it, orders the placement of this Presidential Regulation in the State Gazette of the Republic of Indonesia).
The absence of explicit transitional provisions reflects continuity in ministerial operations. Existing ministries continue functioning under previously established authorities; only the Ministry of Hajj and Umrah represents a new institutional creation requiring operational standup. The regulation does not specify transfer of functions from existing ministries to the new ministry, leaving such determinations to subsequent implementing regulations. This approach maintains operational stability by avoiding immediate disruption to religious affairs administration while creating legal foundation for gradual functional transfer as the new ministry develops organizational capacity.
Table 5: Implementation Timeline Implications
| Aspect | Immediate Effect (Sept 8, 2025) | Subsequent Actions Required |
|---|---|---|
| Legal status | Ministry of Hajj and Umrah officially exists | Presidential regulation on organizational structure (per Article 94) |
| Ministerial composition | 49 ministries recognized in law | Appointment of Minister via presidential decree |
| Regional presence | Authorization established | Organizational analysis and workload assessment |
| Functional transfers | None specified | Implementing regulations defining scope transfers from Religion Ministry |
| Budgetary allocation | Not addressed | Budget revision or realignment through Ministry of Finance |
The regulation's silence on functional delineation between Ministry of Religion and Ministry of Hajj and Umrah creates implementation challenges requiring resolution through subsequent legal instruments. Historically, hajj and umrah administration fell within the Directorate General of Islamic Community Guidance (Ditjen Bimas Islam) under the Ministry of Religion. The creation of separate ministry necessitates determining which functions transfer to the new entity and which remain with Ministry of Religion. Law Number 14 of 2025 (referenced in the considerations) presumably addresses this delineation, though Perpres 90/2025 does not elaborate jurisdictional boundaries.
The ministerial classification as Kelompok II implies that Ministry of Hajj and Umrah handles constitutionally-grounded governmental functions, specifically religious pilgrimage administration as an aspect of constitutional guarantees of religious freedom and state facilitation of religious practice (Article 29 of 1945 Constitution). This classification positions the ministry alongside other constitutionally-scoped entities rather than purely programmatic coordinating ministries. The classification affects organizational prerogatives, personnel authorities, and budgetary independence available to the ministry under administrative law frameworks governing civil service and public finance.
The regional presence authorization under Article 8(3) does not mandate immediate establishment of subnational offices. The "dapat memiliki" (may have) formulation grants discretionary authority rather than imposing obligations. The ministry must conduct organizational analysis and workload assessment before establishing regional presence, allowing phased expansion aligned with operational capacity development. This approach prevents premature bureaucratic expansion while preserving flexibility to establish regional offices as service delivery needs and resource availability dictate. Initial operations likely concentrate at central level, with regional expansion following organizational consolidation.
The requirement for separate organizational structure regulation (Article 94[1]) means the ministry's internal architecture remains to be determined through subsequent presidential regulation. This regulation will specify leadership structure (minister, vice ministers, secretary general), substantive directorates general, supporting agencies, and regional implementing elements if established. The separate regulation approach allows tailored organizational design reflecting unique hajj-umrah functional requirements rather than forcing conformity to standard ministerial templates. Drafting this organizational regulation represents the critical next implementation step following Perpres 90/2025's enactment.
Matrix 1: Verbatim Pasal Extracts with English Translations
| Article | Indonesian Text (Verbatim) | English Translation |
|---|---|---|
| Pasal 2 (13) | "Kementerian Haji dan Umrah;" | "Ministry of Hajj and Umrah;" |
| Pasal 3(3) | "Kementerian sebagaimana dimaksud dalam Pasal 2 angka 12 sampai dengan angka 37 merupakan Kementerian yang menangani urusan pemerintahan yang ruang lingkupnya disebutkan dalam Undang-Undang Dasar Negara Republik Indonesia Tahun 1945, yang selanjutnya dalam Peraturan Presiden ini disebut Kementerian Kelompok II." | "The ministries referred to in Article 2 numbers 12 through 37 constitute ministries handling governmental affairs whose scope is mentioned in the 1945 Constitution of the Republic of Indonesia, hereinafter referred to in this Presidential Regulation as Group II Ministries." |
| Pasal 3(4) | "Kementerian sebagaimana dimaksud dalam Pasal 2 angka 8 dan angka 38 sampai dengan angka 49 merupakan Kementerian yang menangani urusan pemerintahan dalam rangka penajaman, koordinasi, dan sinkronisasi program pemerintah, yang selanjutnya dalam Peraturan Presiden ini disebut Kementerian Kelompok III." | "The ministries referred to in Article 2 number 8 and numbers 38 through 49 constitute ministries handling governmental affairs for the purposes of sharpening, coordination, and synchronization of government programs, hereinafter referred to in this Presidential Regulation as Group III Ministries." |
| Pasal 8(3) | "Selain Kementerian sebagaimana dimaksud pada ayat (2), Kementerian Haji dan Umrah, Kementerian Hak Asasi Manusia, dan Kementerian Imigrasi dan Pemasyarakatan dapat memiliki unsur pelaksana tugas pokok di daerah sesuai dengan analisis organisasi dan beban kerja." | "Besides the ministries referred to in paragraph (2), the Ministry of Hajj and Umrah, Ministry of Human Rights, and Ministry of Immigration and Corrections may have implementing elements for core tasks in regions according to organizational analysis and workload assessment." |
| Pasal 94(1) | "Ketentuan mengenai struktur organisasi Kementerian Luar Negeri, Kementerian Pertahanan, Kementerian Agama, Kementerian Haji dan Umrah, Kementerian Hukum, Kementerian Hak Asasi Manusia, Kementerian Imigrasi dan Pemasyarakatan, dan Kementerian Keuangan yang menyelenggarakan urusan pemerintahan absolut diatur dengan Peraturan Presiden tersendiri." | "Provisions concerning organizational structure of the Ministry of Foreign Affairs, Ministry of Defense, Ministry of Religion, Ministry of Hajj and Umrah, Ministry of Law, Ministry of Human Rights, Ministry of Immigration and Corrections, and Ministry of Finance that conduct absolute governmental affairs are regulated by separate Presidential Regulation." |
Matrix 2: Comparative Analysis - Pre and Post Amendment
| Provision | Before Amendment (Perpres 140/2024) | After Amendment (Perpres 90/2025) | Change Type |
|---|---|---|---|
| Total Ministries | 48 ministries | 49 ministries | Quantitative expansion |
| Kelompok II Range | Numbers 12-36 (25 ministries) | Numbers 12-37 (26 ministries) | Range extension |
| Kelompok III Range | Number 8 + Numbers 37-48 (13 ministries) | Number 8 + Numbers 38-49 (13 ministries) | Range shift |
| Regional Presence (Article 8[3]) | Not specified | Three ministries authorized (conditional) | New authorization |
| Special Organizational Rules (Article 94[1]) | Four ministries listed | Eight ministries listed | Expanded coverage |
Official Source: Perpres No. 90 Tahun 2025 - BPK Database
Legal Basis:
- Constitution of the Republic of Indonesia 1945, Articles 4(1) and 17
- Law Number 39 of 2008 concerning State Ministries (as amended by Law 61/2024)
- Law Number 14 of 2025 concerning Third Amendment to Law 8/2019 on Hajj and Umrah Implementation
- Presidential Regulation Number 140 of 2024 concerning Organization of State Ministries
Status: Effective September 8, 2025 | Published in State Gazette 2025 Number 141
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