How Does UU 61/2024 Transform Indonesia's Ministerial Organization Framework?

1.0 The Revolutionary Flexibility Mechanism: Article 9A and Presidential Reorganization Authority

UU 61/2024 introduces Article 9A into UU 39/2008, fundamentally transforming how Indonesia restructures government ministries. The new provision states: "Presiden dapat mengubah unsur organisasi sebagaimana dimaksud dalam Pasal 9 dengan Peraturan Presiden" (The President may change organizational elements as referred to in Article 9 through Presidential Regulation). This mechanism eliminates the previous requirement for legislative amendment to modify ministerial organizational structures, enabling rapid adaptation to administrative needs. Article 9A applies to changes in ministerial organizational elements including directorates-general (direktorat jenderal), agencies (badan), secretariats-general (sekretariat jenderal), and inspectorates-general (inspektorat jenderal). The provision maintains substantive legislative oversight through the mandatory two-year review requirement in Article II paragraph (1), which mandates: "Pemerintah bersama dengan Dewan Perwakilan Rakyat melakukan pemantauan dan evaluasi terhadap Undang-Undang ini paling lama 2 (dua) tahun sejak Undang-Undang ini diundangkan" (The Government together with the House of Representatives conducts monitoring and evaluation of this Law no later than 2 years from the promulgation of this Law). Article II paragraph (2) establishes automatic revocation of conflicting provisions: when organizational changes occur under Article 9A, any prior laws containing contrary provisions are automatically revoked to the extent of the conflict. This self-cleaning mechanism prevents legal inconsistencies without requiring separate repeal legislation, streamlining the reorganization process significantly (see Matrix 1.1 below).

Matrix 1.1: Presidential Reorganization Authority Framework Under UU 61/2024

2.0 The Expanded Ministry Creation Framework: Article 6A and Functional Flexibility

The law adds Article 6A, expanding the constitutional basis for ministry creation beyond traditional functions. The article provides: "Kementerian sebagaimana dimaksud dalam Pasal 6 dapat dibentuk dari suburusan pemerintahan atau perincian urusan pemerintahan" (Ministries as referred to in Article 6 may be formed from government sub-functions or detailed government functions). This amendment responds to Constitutional Court decisions recognizing that modern governance requires specialized ministries addressing sub-sectoral issues not explicitly enumerated in UU 23/2014 on Regional Government, which defines primary government functions (urusan pemerintahan). Article 6A enables creation of ministries for cross-cutting issues like digital transformation, creative economy, or investment coordination that do not fit traditional sectoral categories. The provision maintains the requirement that new ministries must relate to constitutional government functions, preventing arbitrary proliferation. Combined with the revised Article 15, which removes the fixed ministerial count and instead states that "Jumlah Kementerian sebagaimana dimaksud pada ayat (1) ditentukan berdasarkan kebutuhan penyelenggaraan pemerintahan" (The number of Ministries as referred to in paragraph (1) is determined based on government administration needs), the framework grants presidents significant discretion in cabinet architecture. This flexibility accommodates evolving administrative challenges such as pandemic response coordination, climate change mitigation, or economic crisis management without requiring constitutional or legislative amendments for each new ministry creation (see Matrix 2.1 below).

Matrix 2.1: Expanded Ministry Creation Framework Under UU 61/2024

3.0 The Non-Ministerial Agency Framework: Article 25 and LPNK Status Clarification

The law comprehensively rewrites Article 25, establishing the definitive legal framework for Lembaga Pemerintah Nonkementerian (LPNK - Non-Ministerial Government Agencies). Article 25(1) declares: "Kementerian, lembaga pemerintah nonkementerian, lembaga nonstructural, dan lembaga pemerintah lainnya merupakan sistem yang sinergis dalam melaksanakan urusan pemerintahan" (Ministries, non-ministerial government agencies, non-structural agencies, and other government agencies constitute a synergistic system in conducting government affairs). Paragraph (2) defines LPNK reporting structure: "Lembaga pemerintah nonkementerian bertanggung jawab kepada Presiden melalui menteri koordinator, kecuali ditentukan lain oleh Presiden secara tertulis" (Non-ministerial government agencies are responsible to the President through coordinating ministers, unless determined otherwise by the President in writing). This provision clarifies that LPNK occupy an intermediate position between full ministries and purely advisory bodies, conducting government functions but lacking ministerial status. Article 25(4) mandates implementing regulations: "Ketentuan mengenai lembaga pemerintah nonkementerian, lembaga nonstructural, dan lembaga pemerintah lainnya sebagaimana dimaksud pada ayat (1) diatur dengan Peraturan Presiden" (Provisions concerning non-ministerial government agencies, non-structural agencies, and other government agencies as referred to in paragraph (1) are regulated by Presidential Regulation). The LPNK framework applies to entities like the National Development Planning Agency (Bappenas), National Food Agency (Badan Pangan Nasional), and National Cyber and Crypto Agency (BSSN), providing legal certainty for their institutional status, budgeting authority, and relationship with line ministries (see Matrix 3.1 below).

Matrix 3.1: Non-Ministerial Agency (LPNK) Framework Under UU 61/2024

4.0 The Chapter VI Expansion: Functional Relationships Beyond Ministries

The law amends Chapter VI's title from "Hubungan Fungsional Kementerian" (Functional Relationships of Ministries) to "Hubungan Fungsional Kementerian dan Lembaga Pemerintah Nonkementerian, Lembaga Nonstructural, dan Lembaga Pemerintah Lainnya" (Functional Relationships of Ministries and Non-Ministerial Government Agencies, Non-Structural Agencies, and Other Government Agencies). This expansion recognizes the complex institutional ecosystem beyond traditional ministries. The revised chapter scope encompasses coordination mechanisms between ministries and LPNK, inter-LPNK coordination, and relationships between structural (ministry-based) and non-structural (commission/committee) coordinating bodies. The functional relationship framework enables cross-institutional policy integration for issues requiring multi-sectoral responses, such as climate adaptation (requiring environment, public works, agriculture, and energy ministry coordination with National Disaster Management Agency and Climate Change Council), food security (requiring agriculture ministry, trade ministry, Badan Pangan Nasional, and provincial governments), or digital transformation (requiring communications ministry, National Cyber Agency, and all ministries implementing e-government). The expanded chapter provides legal basis for Presidential Regulations establishing inter-agency coordination mechanisms, joint working groups, and integrated policy implementation frameworks without creating new permanent bureaucratic structures. This flexibility allows responsive governance architecture that can adapt to emerging challenges through temporary coordination mechanisms rather than permanent organizational proliferation (see Matrix 4.1 below).

Matrix 4.1: Expanded Functional Relationship Framework Under UU 61/2024

5.0 The Implementation Timeline and Review Process: Two-Year Evaluation Mandate

Article II establishes implementation provisions including the mandatory two-year review deadline. The law took effect immediately upon promulgation on October 15, 2024, with all amendments operational from that date. The government and DPR must complete monitoring and evaluation by October 15, 2026, assessing implementation effectiveness, identifying legal gaps, and recommending improvements. The review mechanism, prescribed under UU 12/2011 on Formation of Laws and Regulations (as amended), requires systematic evaluation of law implementation including stakeholder consultations, operational assessments, and regulatory impact analysis. Potential review outcomes include affirmation of current framework, recommendations for implementing regulations, proposals for further amendments, or identification of unanticipated consequences requiring legislative correction. The review provides structured opportunity to assess whether Article 9A's flexibility mechanism achieves efficient reorganization without undermining accountability, whether LPNK framework clarifications improve institutional coordination, and whether the expanded ministry creation basis enables responsive governance. Between promulgation and the 2026 review deadline, the President can exercise Article 9A authority to restructure ministries via Presidential Regulation, with the first major test likely being organizational changes accompanying new presidential administrations. The automatic revocation provision in Article II(2) ensures that when such changes occur, conflicting provisions in prior sector-specific laws (such as laws establishing particular ministries or agencies) automatically cease to apply, preventing legal deadlock (see Matrix 5.1 below).

Matrix 5.1: Implementation and Review Timeline Under UU 61/2024

Regulation Reference

Full Citation:
Undang-Undang Nomor 61 Tahun 2024 tentang Perubahan atas Undang-Undang Nomor 39 Tahun 2008 tentang Kementerian Negara

English Translation:
Law Number 61 of 2024 on Amendment to Law Number 39 of 2008 Concerning State Ministries

Short Citation:
UU 61/2024

Amends: UU 39/2008 (Law on State Ministries)

Legal Basis: UUD 1945 (Pasal 4(1), Pasal 17, Pasal 20-21)

Official Source: https://peraturan.bpk.go.id/Details/304396

Legal Analysis by the CRPG Institutional Law Team | Analysis Date: November 27, 2025 | Regulation Status: Active (Berlaku)

LEGAL DISCLAIMER: This article is provided for informational and educational purposes only and does not constitute legal advice, legal opinion, or professional consultation. The analysis presented herein is based on the authors' interpretation of UU 61/2024 and related regulations as of the publication date and may contain errors, omissions, or inaccuracies despite reasonable efforts to ensure accuracy. Laws and regulations are subject to amendment, judicial interpretation, and administrative clarification that may affect the applicability or interpretation of the provisions discussed. This article does not create an attorney-client relationship between the authors, the Center for Regulation, Policy and Government (CRPG), and any reader. Readers should not act or refrain from acting based solely on the information contained in this article without seeking appropriate legal counsel from qualified Indonesian legal practitioners licensed to practice administrative and institutional law. The application of ministerial reorganization and LPNK governance provisions depends on specific implementation contexts including presidential directives, Constitutional Court interpretations, inter-agency coordination frameworks, and budgetary implications, all of which require case-specific legal analysis. Neither the authors nor CRPG assume any liability for actions taken or not taken based on information in this article, nor for any direct, indirect, incidental, consequential, or punitive damages arising from use of or reliance on this material. For specific legal guidance on ministerial organization and non-ministerial agency frameworks, consult with qualified legal counsel familiar with Indonesian administrative law and institutional governance.

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