Indonesia's Protected Area Framework: The 23-Category Classification System and AMDAL Screening Matrix Under PP 22/2021

Executive Summary

Government Regulation No. 22 of 2021 (PP 22/2021) establishes a comprehensive classification system for Indonesia's protected areas (kawasan lindung) through LAMPIRAN I. This framework defines 23 distinct categories of protected areas and creates a systematic approach for determining environmental assessment requirements for activities located within or adjacent to these zones.

The protected area classification spans six major groupings: forest protection zones, water resource protection areas, terrestrial wildlife conservation areas, marine conservation zones, heritage protection sites, and ecosystem corridors. Activities proposed within or directly bordering these protected areas face heightened environmental scrutiny, with location sensitivity serving as a key factor in determining whether full AMDAL assessment is required or whether UKL-UPL or SPPL alternatives apply.

The regulation introduces a four-criteria scoring matrix for AMDAL categorization, combining activity complexity, environmental impact significance, location sensitivity, and carrying capacity status. This scoring system produces three AMDAL categories (A, B, C) that determine assessment rigor. Activities in conservation areas or involving high technology such as nuclear power plants receive automatic Category A designation, requiring the most stringent assessment procedures.

Background & Context

Indonesia's environmental protection framework requires systematic identification of environmentally sensitive areas before business activities can proceed. Prior to PP 22/2021, protected area classifications existed across multiple regulations without unified integration into the environmental assessment process. This fragmentation complicated permit decisions and created uncertainty for project proponents about assessment requirements.

PP 22/2021 addresses this gap by consolidating protected area definitions into a single annex and linking them directly to the AMDAL screening process. LAMPIRAN I provides both the comprehensive protected area list and the procedural guidance for determining assessment requirements. This integration means project location relative to protected areas is now a primary determinant of environmental compliance pathway.

The protected area framework serves dual purposes. It identifies zones requiring heightened environmental protection and establishes objective criteria for determining assessment stringency. By scoring location sensitivity alongside activity characteristics and environmental carrying capacity, the regulation creates proportionate assessment requirements that scale with actual environmental risk.

Key Provisions

Twenty-Three Protected Area Categories

The regulation establishes a comprehensive list of protected areas that trigger enhanced environmental scrutiny.

LAMPIRAN I Bagian I:

"Kawasan lindung yang dimaksud dalam Peraturan Pemerintah ini sebagai berikut: a. kawasan hutan lindung; b. kawasan lindung gambut; c. kawasan resapan air; d. sempadan pantai; e. sempadan sungai; f. kawasan sekitar danau atau waduk; g. suaka margasatwa dan suaka margasatwa laut; h. cagar alam dan cagar alam laut; i. kawasan pantai berhutan bakau; j. taman nasional dan taman nasional laut; k. taman hutan raya; l. taman wisata alam dan taman wisata alam laut; m. kawasan cagar budaya dan ilmu pengetahuan; n. kawasan cagar alam geologi; o. kawasan imbuhan air tanah; p. sempadan mata air; q. kawasan perlindungan plasma nutfah; r. kawasan pengungsian satwa; s. terumbu karang; t. kawasan konservasi pesisir dan pulau-pulau kecil; u. kawasan konservasi maritim; v. kawasan konservasi perairan; dan w. kawasan koridor bagi jenis satwa atau biota laut yang dilindungi."

The 23 categories cover terrestrial and marine ecosystems. Forest-related protections include protection forests and peat protection zones. Water resource protections encompass water recharge areas, coastal setbacks, river setbacks, lake and reservoir surroundings, and spring setbacks. Wildlife and nature conservation includes wildlife reserves (terrestrial and marine), nature reserves, mangrove forests, national parks, grand forest parks, and nature tourism parks. Marine conservation covers coral reefs, coastal and small island conservation zones, maritime conservation zones, and marine conservation areas. Heritage protection includes cultural, scientific, and geological heritage sites. Ecosystem connectivity protections cover germplasm protection areas, wildlife refuges, and species corridors.

Protected Area Definition

The regulation defines the common purpose uniting all 23 protected area categories.

LAMPIRAN I Bagian I:

"Kawasan lindung sebagaimana dimaksud pada huruf a sampai dengan huruf w adalah wilayah yang ditetapkan dengan fungsi utama melindungi kelestarian Lingkungan Hidup yang mencakup sumber daya alam dan sumber daya buatan. Penetapan kawasan lindung tersebut dilakukan sesuai dengan ketentuan peraturan perundang-undangan."

Protected areas are territories designated with the primary function of protecting environmental sustainability, encompassing both natural and man-made resources. Their designation follows applicable laws and regulations, meaning various sectoral regulations (forestry, marine, cultural heritage) establish specific protected area boundaries that then integrate into PP 22/2021's environmental assessment framework.

Location-Based AMDAL Screening

Activities not appearing on the mandatory AMDAL list must be evaluated for protected area proximity.

LAMPIRAN I Bagian III:

"4. Jika rencana Usaha dan/atau Kegiatan yang diusulkan tidak termasuk dalam daftar wajib Amdal, maka lakukan pencocokan lokasi rencana Usaha dan/atau Kegiatan lokasi tersebut berada di dalam dan/atau berbatasan langsung dengan kawasan lindung dengan menggunakan: a. daftar kawasan lindung sebagaimana dimaksud pada lampiran ini; dan/atau b. berbatasan langsung dengan kawasan lindung... 7. Jika rencana Usaha dan/atau Kegiatan yang diusulkan tidak termasuk dalam kriteria pengecualian wajib Amdal, maka terhadap rencana Usaha dan/atau Kegiatan yang diusulkan, disimpulkan wajib memiliki Amdal."

The screening process checks whether proposed activities are located within protected areas or directly border them. If so, AMDAL exemption criteria under Pasal 10 must be evaluated. Activities meeting exemption criteria may proceed with UKL-UPL or SPPL. Those not meeting exemption criteria require full AMDAL assessment regardless of activity type or scale. This means protected area location can independently trigger AMDAL requirements even for activities that would otherwise qualify for simpler assessment pathways.

Four-Criteria Scoring System

AMDAL categorization uses a structured scoring approach across four dimensions.

LAMPIRAN I Bagian IV:

"Penentuan kategori Amdal dilakukan berdasarkan skala nilai sebagai berikut: a. Kompleksitas Rencana Usaha dan/atau Kegiatan: 1. Sangat kompleks (skala 3); 2. Cukup kompleks (skala 2); atau 3. Tidak kompleks (skala 1). b. Dampak Rencana Usaha dan/atau Kegiatan terhadap Lingkungan Hidup: 1. Sangat Penting (skala 3); 2. Lebih Penting (skala 2); atau 3. Penting (skala 1). c. Sensitifitas Lokasi Rencana Usaha dan/atau Kegiatan: 1. di dalam kawasan lindung yang dikategorikan sebagai kawasan konservasi (Tinggi) (skala 3); 2. di dalam kawasan lindung di luar kategori kawasan konservasi (sedang) (skala 2); atau 3. di luar kawasan lindung (Rendah) (skala 1). d. Status Kondisi Daya Dukung dan Daya Tampung Lingkungan Hidup (D3TLH): 1. D3TLH sangat terlampaui (Tinggi) (skala 3); 2. D3TLH telah terlampaui (Sedang) (skala 2); atau 3. D3TLH belum terlampaui (Rendah) (skala 1)."

Each criterion is scored 1-3, with higher scores indicating greater environmental concern. Activity complexity assesses the technical nature of proposed operations. Environmental impact evaluates significance of predicted effects. Location sensitivity directly incorporates protected area status, with conservation zones receiving the highest score. Carrying capacity status examines whether the receiving environment is already stressed. The four scores combine to determine the AMDAL category.

Three AMDAL Categories

The scoring system produces three AMDAL categories with different assessment requirements.

LAMPIRAN I Bagian IV:

"Kategori Amdal dibagi menjadi 3 (tiga) kategori sebagai berikut: a. Amdal Kategori A Suatu rencana Usaha dan/atau Kegiatan yang wajib Amdal ditetapkan menjadi Amdal kategori A bila memiliki skala nilai kumulatif > 9 (lebih besar dari sembilan); b. Amdal Kategori B Suatu rencana Usaha dan/atau Kegiatan yang wajib Amdal ditetapkan menjadi Amdal kategori B bila memiliki skala nilai kumulatif 6 - 9 (enam sampai dengan sembilan); c. Amdal Kategori C Suatu rencana Usaha dan/atau Kegiatan yang wajib Amdal ditetapkan menjadi Amdal kategori C bila memiliki skala nilai kumulatif < 6 (kurang dari enam);"

Category A applies to activities with cumulative scores exceeding 9, indicating highest environmental concern and most rigorous assessment requirements. Category B covers scores from 6 to 9, representing moderate environmental scrutiny. Category C applies to scores below 6, involving simplified assessment procedures. The category determines assessment scope, timeline, and review intensity.

Automatic Category A Designation

Certain activities automatically receive Category A classification regardless of scoring.

LAMPIRAN I Bagian IV Angka 3:

"Kategori Amdal langsung ditetapkan menjadi Kategori Amdal A bila: a. lokasi rencana Usaha dan/atau Kegiatan berada di dalam dan/atau berbatasan langsung dengan kawasan konservasi; dan b. rencana Usaha dan/atau Kegiatan sangat spesifik dan kompleks dan membutuhkan teknologi tinggi (contoh: seperti kegiatan pembangkit listrik dengan menggunakan reaktor nuklir (PLTN));"

Two conditions trigger automatic Category A: location within or directly adjacent to conservation areas combined with highly specific, complex, high-technology activities. The regulation explicitly references nuclear power plants as an example. This automatic classification ensures the most environmentally sensitive combinations receive maximum assessment scrutiny without relying on scoring alone.

Ten AMDAL Exemption Criteria

Activities in protected areas may qualify for AMDAL exemption if meeting all specified criteria.

Pasal 10 Ayat 4:

"Rencana Usaha dan/atau Kegiatan yang dikecualikan dari kewajiban memiliki Amdal... meliputi: a. tidak dilakukan pembangunan dan kegiatan di dalam kawasan lindung; b. tidak menyebabkan Pencemaran Lingkungan Hidup dan/atau Kerusakan Lingkungan Hidup yang melampaui Baku Mutu Lingkungan Hidup; c. tidak menyebabkan penurunan fungsi kawasan lindung; d. tidak menyebabkan ganguan pelestarian fungsi Lingkungan Hidup; e. diizinkan sesuai dengan peraturan perundang-undangan di bidang perlindungan dan pengelolaan kawasan lindung setempat; f. tidak mengganggu kelestarian budaya; g. tidak mengganggu nilai estetika kawasan setempat dan sekitarnya; h. tidak mengganggu fungsi sosial keagamaan; i. tidak mengganggu pemenuhan kebutuhan dasar masyarakat; dan j. bukan merupakan jenis Usaha dan/atau Kegiatan yang menghasilkan Limbah B3 dan/atau memanfaatkan Limbah B3."

Ten criteria must all be satisfied for exemption: no construction within the protected area, no pollution or damage exceeding standards, no reduction in protected area function, no disturbance to environmental preservation, compliance with protected area regulations, no cultural heritage disturbance, no aesthetic degradation, no interference with religious social functions, no interference with basic community needs, and no B3 waste generation or utilization. Failure to meet any single criterion requires full AMDAL.

Implementation & Compliance

Project proponents should determine protected area status early in project planning. The 23 protected area categories are defined by various sectoral regulations, so verification may require consulting forestry maps, marine conservation boundaries, cultural heritage registers, and water resource protection designations. Ministry of Environment and Forestry spatial data and regional spatial plans provide protected area mapping.

For activities within or adjacent to protected areas, document how each of the ten exemption criteria is satisfied if seeking to avoid AMDAL. This documentation becomes part of the environmental assessment application and is subject to government verification. If exemption cannot be demonstrated for all criteria, plan for full AMDAL assessment.

When AMDAL is required, determine the category using the four-criteria scoring matrix. Gather data on activity complexity, environmental impact significance, location sensitivity (based on protected area type), and carrying capacity status. The cumulative score determines the AMDAL category and associated assessment requirements. Projects near conservation areas with high-technology components should assume Category A requirements.

The scoring system requires carrying capacity data that may not exist for all locations. Where carrying capacity calculations are unavailable, adjusted scoring thresholds apply, so confirm the applicable calculation method with the assessment authority.

Conclusion

PP 22/2021's protected area framework creates systematic integration between Indonesia's conservation designations and environmental assessment requirements. The 23 protected area categories establish clear boundaries for enhanced environmental scrutiny, while the four-criteria scoring matrix provides objective methodology for determining assessment intensity.

For business activities, protected area status is now a primary factor in environmental compliance planning. Projects in or near protected areas face either the ten-criterion exemption test or full AMDAL requirements. The scoring system's emphasis on location sensitivity means conservation area proximity directly increases assessment category, potentially moving even straightforward activities into Category A with its more rigorous procedures.

Official Source

This article analyzes Government Regulation No. 22 of 2021 on Implementation of Environmental Protection and Management (PP 22/2021), specifically LAMPIRAN I (Bagian I-IV) on Protected Area Classification and AMDAL Screening, and Pasal 10-11 on AMDAL Exemption Criteria.

The official regulation text can be accessed at:

Primary Source:
PP No. 22 Tahun 2021 - BPK Regulation Portal

Alternative Sources:
- JDIH Kementerian Lingkungan Hidup dan Kehutanan

Official Gazette: Lembaran Negara Republik Indonesia Tahun 2021 Nomor 32

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