Indonesia's National Freshwater Quality Standards: The Complete Four-Class System Under PP 22/2021 for Rivers, Lakes, and Surface Waters
1.0 Understanding Indonesia's Freshwater Quality Framework
Indonesia's national freshwater quality standards establish the foundation for water pollution control across the archipelago's rivers, lakes, and surface water bodies. Government Regulation PP 22/2021 on Environmental Protection and Management Implementation codifies these standards in LAMPIRAN VI (Annex VI), titled "BAKU MUTU AIR NASIONAL" (National Water Quality Standards). The framework classifies surface waters into four classes (Kelas 1-4) based on designated uses, from drinking water sources requiring the strictest protection (Kelas 1) to irrigation waters with more permissive limits (Kelas 4). Article 113 paragraph 3 explicitly states that surface water quality standards "mengacu pada Baku Mutu Air Nasional sebagaimana tercantum dalam Lampiran VI" (refer to National Water Quality Standards as listed in Annex VI). The standards cover 49 parameters for rivers (sungai) and 48 parameters for lakes (danau), spanning physical properties, chemical constituents, nutrients, heavy metals, pesticides, biological indicators, and radioactive elements. This article provides a systematic analysis of Indonesia's freshwater quality standards, examining the classification system, parameter thresholds, institutional framework, planning requirements, and enforcement mechanisms. Related articles cover wastewater discharge standards and administrative sanctions for non-compliance.
2.0 Four-Class Water Quality Classification System
LAMPIRAN VI establishes Indonesia's four-class surface water classification system, where each class corresponds to permitted water uses and progressively less stringent quality requirements.
2.1 Classification Purpose and Legal Designation
| Class | Indonesian Designation | Primary Permitted Uses | Stringency Level |
|---|---|---|---|
| Kelas 1 | Air baku air minum dan peruntukan sejenis | Drinking water source | Strictest |
| Kelas 2 | Rekreasi air, budidaya ikan air tawar, peternakan, irigasi | Recreation, freshwater aquaculture, livestock, irrigation | Strict |
| Kelas 3 | Budidaya ikan air tawar, peternakan, irigasi | Freshwater aquaculture, livestock, irrigation | Moderate |
| Kelas 4 | Irigasi pertanaman dan peruntukan sejenis | Crop irrigation and similar uses | Most permissive |
LAMPIRAN VI clarifies that each class includes "peruntukan lain yang mempersyaratkan mutu air yang sama dengan kegunaan tersebut" (other uses requiring the same water quality as those purposes), allowing flexible application while maintaining protective thresholds.
2.2 Class Progression and Parameter Relaxation
| Parameter | Kelas 1 | Kelas 2 | Kelas 3 | Kelas 4 | Relaxation Factor |
|---|---|---|---|---|---|
| BOD (mg/L) | 2 | 3 | 6 | 12 | 6x from Class 1 to 4 |
| COD (mg/L) | 10 | 25 | 40 | 80 | 8x from Class 1 to 4 |
| TSS (mg/L) | 40 | 50 | 100 | 400 | 10x from Class 1 to 4 |
| DO (mg/L) | 6 min | 4 min | 3 min | 1 min | 6x reduction allowed |
| Fecal Coliform (MPN/100mL) | 100 | 1,000 | 2,000 | 2,000 | 20x from Class 1 to 2 |
The progression shows that Class 4 waters permit BOD levels six times higher than Class 1, COD levels eight times higher, and TSS levels ten times higher, reflecting the reduced sensitivity of irrigation uses compared to drinking water sources.
3.0 River Water Quality Standards (Baku Mutu Air Sungai)
LAMPIRAN VI Section I establishes standards for rivers and similar flowing water bodies (sungai dan sejenisnya), covering 49 parameters across physical, chemical, biological, and radioactive categories.
3.1 Physical Parameters
| No | Parameter | Unit | Kelas 1 | Kelas 2 | Kelas 3 | Kelas 4 | Notes |
|---|---|---|---|---|---|---|---|
| 1 | Temperatur | °C | Dev 3 | Dev 3 | Dev 3 | Dev 3 | Deviation from air temperature |
| 2 | TDS (Padatan terlarut total) | mg/L | 1,000 | 1,000 | 1,000 | 2,000 | Not applicable for estuaries |
| 3 | TSS (Padatan tersuspensi total) | mg/L | 40 | 50 | 100 | 400 | - |
| 4 | Warna | Pt-Co Unit | 15 | 50 | 100 | - | Not applicable for peat water |
The temperature standard requires water temperature not to deviate more than 3°C from ambient air temperature above the water surface, protecting aquatic ecosystems from thermal pollution regardless of water class designation.
3.2 Oxygen and Organic Matter Parameters
| No | Parameter | Unit | Kelas 1 | Kelas 2 | Kelas 3 | Kelas 4 | Interpretation |
|---|---|---|---|---|---|---|---|
| 5 | pH | - | 6-9 | 6-9 | 6-9 | 6-9 | Not applicable for peat water |
| 6 | BOD | mg/L | 2 | 3 | 6 | 12 | Organic matter indicator |
| 7 | COD | mg/L | 10 | 25 | 40 | 80 | Total oxidizable matter |
| 8 | DO | mg/L | 6 | 4 | 3 | 1 | Minimum requirement |
Article 113 notes that pH and color standards "Tidak berlaku untuk air gambut (berdasarkan kondisi alaminya)" (do not apply to peat water based on natural conditions), acknowledging Indonesia's extensive peat-influenced water systems.
3.3 Nutrient Parameters
| No | Parameter | Unit | Kelas 1 | Kelas 2 | Kelas 3 | Kelas 4 | Eutrophication Risk |
|---|---|---|---|---|---|---|---|
| 11 | Nitrat (as N) | mg/L | 10 | 10 | 20 | 20 | Moderate |
| 12 | Nitrit (as N) | mg/L | 0.06 | 0.06 | 0.06 | - | High toxicity concern |
| 13 | Amoniak (as N) | mg/L | 0.1 | 0.2 | 0.5 | - | Toxicity and indicator |
| 14 | Total Nitrogen | mg/L | 15 | 15 | 25 | - | Nutrient loading control |
| 15 | Total Fosfat (as P) | mg/L | 0.2 | 0.2 | 1.0 | - | Primary eutrophication driver |
Nutrient standards are notably stricter for Classes 1-2 (drinking water and recreation) because elevated nitrogen and phosphorus levels can promote algal blooms that affect taste, odor, and aesthetic quality of water.
3.4 Heavy Metal Standards
| No | Parameter | Unit | Kelas 1 | Kelas 2 | Kelas 3 | Kelas 4 | Health Concern |
|---|---|---|---|---|---|---|---|
| 22 | Merkuri (Hg) | mg/L | 0.001 | 0.002 | 0.002 | 0.005 | Neurological toxicity |
| 23 | Arsen (As) | mg/L | 0.05 | 0.05 | 0.05 | 0.10 | Carcinogenic |
| 26 | Kadmium (Cd) | mg/L | 0.01 | 0.01 | 0.01 | 0.01 | Kidney damage |
| 32 | Timbal (Pb) | mg/L | 0.03 | 0.03 | 0.03 | 0.5 | Neurotoxic |
| 33 | Kromium VI (Cr) | mg/L | 0.05 | 0.05 | 0.05 | 1 | Carcinogenic |
| 31 | Tembaga (Cu) | mg/L | 0.02 | 0.02 | 0.02 | 0.2 | Aquatic toxicity |
| 30 | Seng (Zn) | mg/L | 0.05 | 0.05 | 0.05 | 2 | Aquatic toxicity |
Mercury has the strictest standards across all metals, with Class 1 requiring levels below 0.001 mg/L (1 μg/L), reflecting its extreme bioaccumulation potential and neurological toxicity. Cadmium standards remain constant across all classes at 0.01 mg/L, indicating that even irrigation waters cannot tolerate elevated cadmium due to soil accumulation and crop uptake concerns.
3.5 Pesticide Standards
| No | Parameter | Unit | Kelas 1 | Kelas 2-4 | Regulatory Status |
|---|---|---|---|---|---|
| 37 | Aldrin/Dieldrin | μg/L | 17 | - | Persistent organic pollutant |
| 40 | DDT | μg/L | 2 | 2 | Banned but monitored |
| 41 | Endrin | μg/L | 1 | 4 | Highly toxic |
| 38 | BHC | μg/L | 210 | 210 | Legacy pesticide |
| 39 | Chlordane | μg/L | 3 | - | Class 1 only |
Many pesticide parameters only apply to Class 1 waters (drinking water sources), as indicated by "-" for other classes. This reflects that persistent organic pollutants are primarily of concern for human consumption rather than ecological or agricultural uses.
3.6 Biological and Radioactive Parameters
| No | Parameter | Unit | Kelas 1 | Kelas 2 | Kelas 3 | Kelas 4 |
|---|---|---|---|---|---|---|
| 46 | Fecal Coliform | MPN/100mL | 100 | 1,000 | 2,000 | 2,000 |
| 47 | Total Coliform | MPN/100mL | 1,000 | 5,000 | 10,000 | 10,000 |
| 48 | Sampah (Trash) | - | nihil | nihil | nihil | nihil |
| 49a | Gross-A (radioactive) | Bq/L | 0.1 | 0.1 | 0.1 | 0.1 |
| 49b | Gross-B (radioactive) | Bq/L | 1 | 1 | 1 | 1 |
The "nihil" (nil/zero) standard for trash applies universally across all water classes, establishing an absolute prohibition on solid waste in water bodies. Radioactive standards remain constant across all classes, as radiation exposure risks do not diminish based on intended water use.
4.0 Lake Water Quality Standards (Baku Mutu Air Danau)
LAMPIRAN VI Section II establishes stricter standards for lakes and similar standing water bodies (danau dan sejenisnya), recognizing their greater vulnerability to eutrophication and longer residence times.
4.1 Key Differences from River Standards
| Parameter | Rivers (Kelas 1) | Lakes (Kelas 1) | Strictness Ratio | Rationale |
|---|---|---|---|---|
| TSS | 40 mg/L | 25 mg/L | Lakes 1.6x stricter | Sedimentation impact |
| Total Nitrogen | 15 mg/L | 0.65 mg/L | Lakes 23x stricter | Eutrophication control |
| Total Phosphate | 0.2 mg/L | 0.01 mg/L | Lakes 20x stricter | Algal bloom prevention |
| Manganese | 0.1 mg/L | 0.4 mg/L | Rivers stricter | Different exposure pathway |
The dramatic difference in nutrient limits between rivers and lakes reflects the fundamental differences in hydraulic residence time. Lake systems retain nutrients far longer than flowing rivers, making them highly susceptible to eutrophication even at low nutrient concentrations.
4.2 Lake-Specific Parameters
| No | Parameter | Unit | Kelas 1 | Kelas 2 | Kelas 3 | Kelas 4 | Purpose |
|---|---|---|---|---|---|---|---|
| 4 | Transparansi | m | 10 | 4 | 2.5 | - | Eutrophication indicator |
| 46 | Klorofil-a | mg/m³ | 10 | 50 | 100 | 200 | Algal biomass measurement |
Transparency and chlorophyll-a are unique to lake standards. Class 1 lakes must maintain minimum transparency of 10 meters and chlorophyll-a below 10 mg/m³, indicating oligotrophic (low-nutrient) conditions suitable for drinking water abstraction.
4.3 Lake Nutrient Standards by Class
| Class | Total N (mg/L) | Total P (mg/L) | Chlorophyll-a (mg/m³) | Trophic Status |
|---|---|---|---|---|
| Kelas 1 | 0.65 | 0.01 | 10 | Oligotrophic |
| Kelas 2 | 0.75 | 0.03 | 50 | Mesotrophic |
| Kelas 3 | 1.90 | 0.10 | 100 | Eutrophic |
| Kelas 4 | - | - | 200 | Hypereutrophic allowed |
The nutrient standards effectively define trophic categories. Class 1 lakes must be maintained in oligotrophic condition, while Class 4 waters can tolerate hypereutrophic conditions as long as they remain suitable for irrigation.
5.0 Institutional Framework and Authority Distribution
Articles 113-116 establish the authority distribution for water quality standard setting, incorporating coordination requirements and substitution mechanisms.
5.1 Authority Distribution Matrix
| Authority Level | Indonesian Term | Standard Setting Scope | Legal Basis |
|---|---|---|---|
| National | Menteri | National standards (Lampiran VI); can substitute for Governor | Pasal 113-114 |
| Provincial | Gubernur | Provincial water body segmentation/zoning | Pasal 113-114 |
| District/City | Bupati/Wali Kota | Local water body segmentation/zoning | Pasal 113-114 |
Article 113 paragraph 1 states that authorities "menyusun dan menetapkan Baku Mutu Air" (prepare and establish Water Quality Standards) for groundwater and surface water "berdasarkan segmentasi atau zonasi Badan Air" (based on water body segmentation or zoning).
5.2 Ministerial Coordination Requirements
| Coordinating Ministry | Indonesian Description | Coordination Focus |
|---|---|---|
| Water Resources | Menteri urusan sumber daya air | Hydrological management |
| Energy and Mineral Resources | Menteri urusan energi dan sumber daya mineral | Groundwater, mining impacts |
| Spatial Planning | Menteri urusan tata ruang | Land use compatibility |
| Forestry | Menteri urusan kehutanan | Watershed protection |
Article 114 paragraph 1 requires the Minister of Environment and Forestry to coordinate with these ministries before establishing water quality standards, ensuring inter-sectoral alignment.
5.3 Regional Coordination and Technical Consideration
| Authority | Coordination Requirement | Technical Consideration |
|---|---|---|
| Governor | Coordinate with Regent/Mayor | Must obtain from Minister |
| Regent/Mayor | Coordinate with Governor | Must obtain from Minister |
Article 114 paragraphs 2-3 require regional authorities to obtain "pertimbangan teknis dari Menteri" (technical consideration from the Minister) before establishing local standards, ensuring consistency with national requirements.
5.4 Substitution Mechanism
| Failure Level | Substitute Authority | Legal Basis |
|---|---|---|
| Regent/Mayor fails to act | Governor substitutes | Pasal 115 ayat (1) |
| Governor fails to act | Minister substitutes | Pasal 115 ayat (2) |
Article 115 ensures that water quality standards are always established even if local authorities fail to act. The Minister serves as the ultimate backstop authority, preventing regulatory gaps from leaving water bodies unprotected.
6.0 Watershed-Based Planning Framework
Article 108 establishes that water quality protection planning uses watershed-based approaches, integrating hydrological, geological, and ecological considerations.
6.1 Four Planning Components
| Component | Indonesian Term | Regulatory Basis | Purpose |
|---|---|---|---|
| Water body inventory | Inventarisasi Badan Air | Pasal 108(2)(a) | Baseline mapping |
| Quality standards development | Penyusunan dan penetapan Baku Mutu Air | Pasal 108(2)(b) | Threshold setting |
| Pollution load allocation | Perhitungan dan penetapan alokasi beban pencemar air | Pasal 108(2)(c) | Discharge permits basis |
| Management plan | Penyusunan dan penetapan rencana Perlindungan dan Pengelolaan Mutu Air | Pasal 108(2)(d) | Implementation roadmap |
Article 108 paragraph 1 specifies that planning "diselenggarakan dengan pendekatan DAS, CAT, dan ekosistemnya" (is conducted using watershed, aquifer, and ecosystem approaches), ensuring that standards consider the full hydrological system.
6.2 Water Body Characterization Requirements
| Characterization Aspect | Indonesian Term | Data Requirements |
|---|---|---|
| Hydrology/Hydrogeology | Aspek hidrologi dan hidrogeologi | Flow patterns, groundwater connection |
| Geology | Aspek geologi | Substrate, natural water quality |
| Morphology | Aspek morfologi | Physical form, dimensions |
| Ecology | Aspek ekologi | Aquatic ecosystems, biodiversity |
| Water quality | Aspek Mutu Air | Baseline water quality parameters |
| Pollution sources | Aspek sumber pencemar | Point and non-point sources |
| Water utilization | Aspek pemanfaatan air | Current and planned uses |
Article 112 requires characterization data to be compiled on water body maps at minimum scale of 1:50,000, providing the technical foundation for segmentation and zoning decisions.
6.3 Pollution Load Allocation Sectors
| Sector | Indonesian Term | Typical Parameters of Concern |
|---|---|---|
| Industry | Industri | Heavy metals, COD, toxic organics |
| Domestic | Domestik | BOD, nutrients, pathogens |
| Mining | Pertambangan | Metals, TSS, acid drainage |
| Oil and Gas | Minyak dan gas bumi | Oil/grease, hydrocarbons |
| Agriculture/Plantations | Pertanian dan perkebunan | Nutrients, pesticides |
| Fisheries | Perikanan | Organic matter, nutrients |
| Livestock | Peternakan | Pathogens, nutrients, ammonia |
| Other sectors | Sektor lain | As technology develops |
Article 116 paragraph 2 lists these sectors for pollution load allocation, with paragraph 1 explaining that allocation "untuk mendapatkan nilai beban pencemar air paling tinggi dari sumber pencemar yang diperbolehkan dibuang ke Badan Air permukaan" (to determine the maximum pollution load from sources permitted to be discharged to surface water bodies).
7.0 Special Conditions and Exemptions
LAMPIRAN VI includes several special conditions recognizing Indonesia's unique aquatic environments.
7.1 Special Condition Categories
| Condition | Indonesian Description | Parameters Affected | Justification |
|---|---|---|---|
| Peat water (Air gambut) | Berdasarkan kondisi alaminya | pH, Color | Natural acidity and color |
| Estuaries (Muara) | Tidak berlaku untuk muara | TDS | Natural salinity mixing |
| Drinking water source | Bagi air baku air minum | Free chlorine | Treatment requirement differs |
The peat water exemption recognizes that Indonesia's extensive peat forests naturally produce acidic, dark-colored waters that would fail standard pH and color criteria even in pristine condition.
7.2 Temperature Standard Application
| Standard | Measurement Method | Universal Application |
|---|---|---|
| Dev 3°C | Deviation from air temperature above water surface | All classes, all water types |
The temperature standard of maximum 3°C deviation applies universally across all water classes and body types, preventing thermal pollution from industrial cooling water discharges regardless of receiving water designation.
Conclusion: Implementing Freshwater Quality Standards Compliance
Indonesia's national freshwater quality standards under PP 22/2021 Lampiran VI create a scientifically-grounded, use-based classification system that every water user, discharger, and environmental manager must understand. Key implementation considerations include: (1) identifying the classification of receiving water bodies to determine applicable standards; (2) understanding the 49 parameters for rivers and 48 for lakes that may require monitoring; (3) recognizing the dramatically stricter nutrient limits for lakes compared to rivers due to eutrophication vulnerability; (4) complying with the universal "nihil" standard for trash and constant radioactive limits across all classes; (5) accounting for special conditions applicable to peat waters, estuaries, and drinking water sources; (6) participating in pollution load allocation processes that determine individual discharge permits; and (7) understanding the substitution mechanism that ensures standards are established even when local authorities fail to act. Environmental compliance officers should develop monitoring programs aligned with the parameter lists in Lampiran VI, while project developers should verify the classification of receiving waters during Environmental Approval preparation to ensure their wastewater treatment systems can achieve the applicable discharge limits.
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