Indonesia's Protected Species Framework: Legal Architecture for Biodiversity Conservation

Executive Summary

Indonesia's protected species framework is established under Law No. 5 of 1990 on Conservation of Living Natural Resources and Ecosystems (UU 5/1990), enacted on August 10, 1990. This foundational law creates a comprehensive legal architecture for protecting plant and animal species facing extinction or population decline, replacing colonial-era ordinances and establishing Indonesia's first modern biodiversity conservation regime.

The law is significant because it establishes strict prohibitions covering the entire supply chain of wildlife exploitation, from capture to possession to trade, while defining narrow exceptions for scientific research, conservation, and human safety. Indonesia's system classifies species into protected and non-protected categories, with protected species further divided into those in danger of extinction and those with rare populations. This classification enables adaptive management as species status changes.

Key provisions include comprehensive prohibitions on taking, possessing, transporting, and trading protected species, mandatory confiscation of specimens involved in violations with priority given to habitat reintroduction, and criminal penalties of up to five years imprisonment and Rp 100 million fines for intentional violations. The framework provides legal foundation for Indonesia's 919 protected animal species and 798 protected plant species as of 2018.

Background & Context

Indonesia is recognized as one of the world's megadiverse countries, hosting approximately 17 percent of global species despite covering only 1.3 percent of Earth's land area. This extraordinary biodiversity faces mounting threats from habitat loss, illegal wildlife trade, and human-wildlife conflict. Prior to 1990, Indonesia's wildlife protection relied on fragmented Dutch colonial ordinances dating from 1931 to 1941, which proved inadequate for addressing modern conservation challenges in a rapidly developing nation.

The enactment of UU 5/1990 represented a paradigm shift in Indonesian environmental law, establishing for the first time a unified national framework that balanced conservation with sustainable use. The law emerged from recognition that biodiversity conservation required comprehensive legal instruments capable of addressing multiple threats simultaneously while providing clear authority for enforcement agencies. Indonesia's participation in international conservation frameworks, particularly the Convention on International Trade in Endangered Species (CITES) which Indonesia ratified in 1978, created additional impetus for modernizing domestic legislation.

The regulatory evolution continued through implementing regulations, most notably Government Regulation No. 7 of 1999 on Conservation of Plant and Animal Species, which operationalized the protected species classification system. Subsequent ministerial regulations from the Ministry of Environment and Forestry have updated protected species lists to reflect changing conservation status, with Regulation No. P.106 of 2018 providing the current comprehensive lists. This adaptive management approach allows Indonesia's legal framework to respond to emerging threats and new scientific understanding of species vulnerability.

The protected species framework under UU 5/1990 remains foundational despite subsequent environmental legislation including Law No. 32 of 2009 on Environmental Protection and Management. While Law No. 41 of 1999 on Forestry superseded aspects of UU 5/1990 related to forest management, the species protection provisions in Chapter V remain the primary legal basis for wildlife conservation enforcement throughout Indonesia.

Key Provisions

Classification System for Protected Species

Indonesian law establishes a clear hierarchical system for categorizing plant and animal species according to their conservation status, providing the foundation for all protective measures.

Pasal 20 Ayat (1) dan (2): Klasifikasi Tumbuhan dan Satwa

"Tumbuhan dan satwa digolongkan dalam jenis: a. tumbuhan dan satwa yang dilindungi; b. tumbuhan dan satwa yang tidak dilindungi. Jenis tumbuhan dan satwa yang dilindungi sebagaimana dimaksud dalam ayat (1) digolongkan dalam: a. tumbuhan dan satwa dalam bahaya kepunahan; b. tumbuhan dan satwa yang populasinya jarang."

This provision establishes a two-tier classification system where all species are first categorized as either protected or not protected. Protected species are further subdivided into two critical categories: those in danger of extinction and those with rare populations. The danger of extinction category encompasses species nearing extinction or already at critically low numbers, including endemic species with extremely slow reproductive rates. The rare population category includes species with small populations or limited distribution such that breeding becomes extremely difficult. This classification framework enables authorities to apply different management strategies based on conservation urgency.

The law delegates to Government Regulation the authority to define specific species lists, allowing for adaptive management as scientific understanding improves and species status changes. This delegation proved crucial, as PP 7/1999 established detailed criteria and procedures for species classification, while subsequent ministerial regulations have periodically updated protected species lists to reflect field research and population monitoring data.

Comprehensive Prohibitions on Protected Plants

The law establishes an expansive prohibition regime covering all conceivable activities that could harm protected plant species, creating what amounts to a complete ban on unauthorized exploitation.

Pasal 21 Ayat (1): Larangan Tumbuhan Dilindungi

"Setiap orang DILARANG untuk: a. mengambil, menebang, memiliki, merusak, memusnahkan, memelihara, mengangkut, dan memperniagakan tumbuhan yang dilindungi atau bagian-bagiannya dalam keadaan hidup atau mati; b. mengeluarkan tumbuhan yang dilindungi atau bagian-bagiannya dalam keadaan hidup atau mati dari suatu tempat di Indonesia ke tempat lain di dalam atau di luar Indonesia."

This provision prohibits every person from taking, cutting, possessing, damaging, destroying, maintaining, transporting, and trading protected plants or any parts thereof, whether alive or dead. The prohibition extends to removing protected plants from any location in Indonesia to another location within or outside Indonesia. The comprehensive nature of these prohibitions is deliberate, ensuring that no link in the exploitation chain escapes regulation.

The inclusion of "possessing" as a prohibited activity is particularly significant, as it eliminates the defense that a violator merely found or received the plant rather than actively collecting it. Similarly, the prohibition on "parts" prevents circumvention through harvesting only seeds, bark, roots, or other components. The domestic movement prohibition addresses internal trafficking, while the international movement prohibition aligns with CITES obligations.

Comprehensive Prohibitions on Protected Animals

Protected animal prohibitions are even more detailed than plant prohibitions, reflecting the greater complexity of animal exploitation and trade.

Pasal 21 Ayat (2): Larangan Satwa Dilindungi

"Setiap orang DILARANG untuk: a. menangkap, melukai, membunuh, menyimpan, memiliki, memelihara, mengangkut, dan memperniagakan satwa yang dilindungi dalam keadaan hidup; b. menyimpan, memiliki, memelihara, mengangkut, dan memperniagakan satwa yang dilindungi dalam keadaan mati; c. mengeluarkan satwa yang dilindungi dari suatu tempat di Indonesia ke tempat lain di dalam atau di luar Indonesia; d. memperniagakan, menyimpan atau memiliki kulit, tubuh atau bagian-bagian lain satwa yang dilindungi atau barang-barang yang dibuat dari bagian-bagian satwa tersebut atau mengeluarkannya dari suatu tempat di Indonesia ke tempat lain di dalam atau di luar Indonesia; e. mengambil, merusak, memusnahkan, memperniagakan, menyimpan atau memiliki telur dan/atau sarang satwa yang dilindungi."

Every person is prohibited from capturing, injuring, killing, storing, possessing, maintaining, transporting, and trading protected animals in living condition. The prohibition extends to dead specimens, with separate clauses addressing storage, possession, maintenance, transport, and trade of deceased protected animals. Additional prohibitions cover animal parts including skin, body parts, and derivative products manufactured from protected species, as well as eggs and nests.

This exhaustive enumeration ensures comprehensive coverage of wildlife trafficking patterns. The live animal prohibitions target the exotic pet trade and captive wildlife industries. Dead animal prohibitions address trophy hunting and traditional medicine markets. The body parts and derivatives clause combats trade in ivory, rhino horn, tiger bones, and similar high-value wildlife products. The eggs and nests prohibition protects reproductive capacity, recognizing that egg collection can devastate populations even without directly killing adults.

Exceptions for Research, Conservation, and Safety

While prohibitions are strict, the law recognizes legitimate circumstances requiring access to protected species, defining narrow exceptions subject to government authorization.

Pasal 22 Ayat (1), (2), dan (3): Pengecualian Larangan

"Pengecualian dari larangan sebagaimana dimaksud dalam Pasal 21 hanya dapat dilakukan untuk keperluan: Penelitian; Ilmu pengetahuan; Penyelamatan jenis tumbuhan dan satwa yang bersangkutan. Termasuk dalam penyelamatan sebagaimana dimaksud dalam ayat (1) adalah pemberian atau penukaran jenis tumbuhan dan satwa kepada pihak lain di luar negeri dengan izin Pemerintah. Pengecualian dari larangan menangkap, melukai, dan membunuh satwa yang dilindungi dapat pula dilakukan dalam hal oleh karena suatu sebab satwa yang dilindungi membahayakan kehidupan manusia."

Exceptions to Pasal 21 prohibitions may only be granted for research purposes, science and knowledge activities, and species rescue operations. Species rescue includes ex-situ conservation measures such as captive breeding programs and medical treatment when animals are threatened in their natural habitat. International exchange of specimens is permitted under government authorization, specifically for transfers between conservation institutions or as diplomatic gifts between governments.

An additional exception allows capturing, injuring, or killing protected animals when they pose danger to human life. The explanatory notes clarify that danger encompasses threats to human safety, causing public disturbance, or inflicting material losses such as crop destruction. However, this exception is not carte blanche for elimination, authorities must first attempt non-lethal measures such as capture, relocation, or deterrence before resorting to lethal control.

The requirement for government authorization across all exceptions ensures centralized oversight and prevents abuse. Research permits require demonstrating scientific value and proper protocols. Conservation transfers require documenting institutional capacity and conservation benefits. Self-defense claims require evidence of actual danger and failure of alternative measures.

Confiscation and Management of Seized Specimens

The law establishes clear procedures for handling protected species confiscated during enforcement operations, prioritizing conservation outcomes over destruction.

Pasal 24: Penyitaan dan Pengelolaan

"Apabila terjadi pelanggaran terhadap larangan sebagaimana dimaksud dalam Pasal 21, tumbuhan dan satwa tersebut dirampas untuk negara. Jenis tumbuhan dan satwa yang dilindungi atau bagian-bagiannya yang dirampas untuk negara: Dikembalikan ke habitatnya (prioritas utama); Diserahkan kepada lembaga konservasi (jika tidak dapat beradaptasi atau untuk barang bukti): Kebun binatang, Kebun botani, Museum biologi, Herbarium, Taman safari; Dimusnahkan (jika keadaan rusak, cacat, tidak memungkinkan hidup)."

When violations occur, confiscated plants and animals are seized for the state with a clear three-tier priority system for disposition. The highest priority is returning specimens to their natural habitat, recognizing that wild populations benefit most from successful reintroductions. If habitat return is impossible due to behavioral issues, health problems, or evidentiary requirements for ongoing prosecution, specimens are transferred to authorized conservation institutions including zoos, botanical gardens, biological museums, herbariums, and safari parks. Only when specimens are damaged, diseased, or otherwise unable to survive are they destroyed.

This framework prevents illegal traders from profiting through confiscation while maximizing conservation benefits. Government officials possess authority to confiscate specimens immediately upon discovering violations, before criminal proceedings conclude, enabling rapid intervention to save animal lives. The institutional transfer option supports conservation education and breeding programs at facilities equipped for long-term care.

The destruction provision, while seeming harsh, serves important purposes for non-living specimens. Destroyed ivory, rhino horn, and similar contraband cannot re-enter illegal markets, eliminating incentives for trafficking. Public destruction events demonstrate government commitment to enforcement while removing any perception that confiscated items benefit officials personally.

Criminal Penalties for Violations

UU 5/1990 establishes substantial criminal penalties for protected species violations, reflecting the seriousness with which Indonesian law treats biodiversity crimes.

Pasal 40 Ayat (2) dan (4): Sanksi Pidana

"Barangsiapa dengan sengaja melakukan pelanggaran terhadap ketentuan sebagaimana dimaksud dalam Pasal 21 ayat (1) dan ayat (2) serta Pasal 33 ayat (3) dipidana dengan pidana penjara paling lama 5 (lima) tahun dan denda paling banyak Rp 100.000.000,- (seratus juta rupiah). Barangsiapa karena kelalaiannya melakukan pelanggaran terhadap ketentuan sebagaimana dimaksud dalam Pasal 21 ayat (1) dan ayat (2) serta Pasal 33 ayat (3) dipidana dengan pidana kurungan paling lama 1 (satu) tahun dan denda paling banyak Rp 50.000.000,- (lima puluh juta rupiah)."

Intentional violations of Pasal 21 protected species prohibitions carry maximum penalties of five years imprisonment and Rp 100 million fines. Negligent violations receive reduced but still significant penalties of up to one year imprisonment and Rp 50 million fines. The law distinguishes between intentional acts, where the violator knowingly engaged in prohibited conduct, and negligent acts, where the violation resulted from carelessness or inadequate precautions.

These penalties place wildlife crimes in the same seriousness category as significant property crimes and certain drug offenses under Indonesian law. The five-year maximum imprisonment provides sufficient deterrent effect for commercial wildlife traffickers, who often conduct cost-benefit analyses when deciding whether to engage in illegal trade. The Rp 100 million fine, approximately USD 6,500 at 2025 exchange rates, exceeds typical profits from single transactions, eliminating financial incentives.

The cumulative nature of penalties, allowing both imprisonment and fines to be imposed simultaneously, strengthens enforcement. Judges possess discretion to tailor penalties to offense severity, imposing lighter sanctions for first-time minor violations while reserving maximum penalties for organized trafficking operations. The negligence provision enables prosecution of habitat destruction and indirect harm cases where specific intent to violate the law may be difficult to prove.

Implementation & Compliance

UU 5/1990's protected species framework applies to all persons, both Indonesian nationals and foreigners, operating within Indonesian jurisdiction or engaging in activities affecting Indonesian biodiversity. The term "every person" in Pasal 21 encompasses individuals, corporations, associations, and foundations, with corporate liability extending to directors and responsible officers. No exemptions exist based on traditional practices, customary rights, or economic necessity, though exceptions may be granted through proper permit procedures.

Implementation responsibility falls primarily to the Ministry of Environment and Forestry (KLHK), which maintains protected species lists, issues research and conservation permits, coordinates enforcement operations, and manages confiscated specimens. The ministry works in coordination with law enforcement agencies including the Indonesian National Police, which investigates wildlife crimes, and the Attorney General's Office, which prosecutes violations. Provincial and district governments play supporting roles in monitoring local populations and enforcing regulations within their territories under Indonesia's decentralized governance structure.

Compliance mechanisms center on the permit system established under PP 7/1999 and subsequent implementing regulations. Entities seeking to conduct research on protected species must apply for permits demonstrating scientific value, proper ethical protocols, and qualified personnel. Conservation institutions seeking to maintain protected species collections must obtain facility licenses demonstrating adequate housing, veterinary care, and security measures. International transfers require CITES permits demonstrating legal acquisition and conservation benefits, with applications processed through KLHK's Directorate General of Natural Resources and Ecosystem Conservation.

Practical implications for businesses and stakeholders are significant. Companies operating in sectors with potential protected species impacts, including forestry, agriculture, plantation development, mining, and infrastructure construction, must implement biodiversity screening protocols to identify protected species presence before commencing operations. Discovery of protected species habitats may trigger requirements for avoidance, minimization, or offset measures under environmental impact assessment regulations. Tourism operators offering wildlife viewing experiences must ensure activities comply with protected species prohibitions, avoiding harassment, feeding, or habitat disturbance.

Conclusion

Indonesia's protected species framework under UU 5/1990 represents a comprehensive legal architecture for biodiversity conservation, establishing clear classifications, strict prohibitions, limited exceptions, robust enforcement mechanisms, and substantial penalties. By covering the entire exploitation chain from initial capture through final trade while providing pathways for legitimate research and conservation activities, the framework balances preservation imperatives with scientific and practical needs. The law's longevity, remaining foundational 35 years after enactment, demonstrates its adaptability and continued relevance.

As Indonesia confronts accelerating biodiversity loss from habitat destruction, climate change, and illegal wildlife trade, the protected species framework faces both challenges and opportunities. Key areas requiring attention include strengthening field enforcement capacity, enhancing inter-agency coordination, updating species lists more frequently to reflect changing conservation status, and increasing penalties to match modern trafficking profits. Success ultimately depends on sustained political commitment, adequate resource allocation, effective community engagement, and continued international cooperation through frameworks like CITES. Indonesia's extraordinary biodiversity heritage merits nothing less than full implementation of this robust legal framework.

Official Source

This article analyzes Law No. 5 of 1990 on Conservation of Living Natural Resources and Ecosystems (UU 5/1990), specifically Chapter V on Conservation of Plant and Animal Species.

The official regulation text can be accessed at:

Primary Source:
UU No. 5 Tahun 1990 - BPK Regulation Portal

Alternative Sources:
- JDIH Kementerian Lingkungan Hidup dan Kehutanan
- JDIH Sekretariat Kabinet

Official Gazette: Lembaran Negara Republik Indonesia Tahun 1990 Nomor 49, Tambahan Lembaran Negara Nomor 3419

Regulation Status: Active and Enforceable
Verified: December 17, 2025 via RegulationVault

Disclaimer

This article was AI-generated under an experimental legal-AI application. It may contain errors, inaccuracies, or hallucinations. The content is provided for informational purposes only and should not be relied upon as legal advice or authoritative interpretation of regulations.

We accept no liability whatsoever for any decisions made based on this article. Readers are strongly advised to:
- Consult the official regulation text from government sources
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- Verify all information independently

This experimental AI application is designed to improve access to regulatory information, but accuracy cannot be guaranteed.

Disclaimer

This article was AI-generated under an experimental legal-AI application. It may contain errors, inaccuracies, or hallucinations. The content is provided for informational purposes only and should not be relied upon as legal advice or authoritative interpretation of regulations.

We accept no liability whatsoever for any decisions made based on this article. Readers are strongly advised to:

• Consult the official regulation text from government sources
• Seek professional legal counsel for specific matters
• Verify all information independently

This experimental AI application is designed to improve access to regulatory information, but accuracy cannot be guaranteed.