Preparing and Submitting UKL-UPL Documents in Indonesia: Form Requirements, Risk-Based Processing, and Approval Timelines Under PP 22/2021
Executive Summary
For business activities that do not require a full AMDAL but still have environmental impacts, Government Regulation No. 22 of 2021 (PP 22/2021) mandates the preparation and approval of Environmental Management and Monitoring Efforts (Upaya Pengelolaan Lingkungan Hidup dan Upaya Pemantauan Lingkungan Hidup, or UKL-UPL). The regulation establishes a structured process for preparing, submitting, and obtaining approval for UKL-UPL documents.
PP 22/2021 introduces significant innovations to the UKL-UPL system. Two form types exist: sector-specific standard forms developed by line ministries and general standard forms for activities without sector-specific templates. The regulation integrates UKL-UPL processing into Indonesia's electronic business licensing system (OSS), enabling automatic approval for medium-low risk activities while maintaining manual review for higher-risk projects.
Understanding the UKL-UPL preparation and submission process is essential for project proponents seeking environmental approval. The approval timeline is notably efficient, with straightforward applications receiving approval within two working days and even applications requiring corrections completing the process within nine working days total.
Background & Context
The UKL-UPL system addresses environmental management requirements for activities that fall below AMDAL thresholds but still warrant environmental oversight. These are typically medium-scale projects with localized environmental impacts that can be managed through standard measures without requiring the comprehensive impact assessment process mandated for larger projects.
Before PP 22/2021, UKL-UPL preparation and approval varied across jurisdictions and sectors. Different forms, submission processes, and examination standards created uncertainty for project proponents. The regulation addresses these inconsistencies by establishing standardized forms, electronic submission requirements, and clear examination criteria applicable throughout Indonesia.
The integration of UKL-UPL processing into Indonesia's risk-based business licensing framework represents a significant modernization. The Online Single Submission (OSS) system now handles UKL-UPL submissions alongside other business licensing requirements, streamlining the approval process and reducing administrative burden. This electronic integration also enables automatic processing for lower-risk activities while preserving manual review for projects with greater environmental implications.
The UKL-UPL approval functions as an Environmental Approval (Persetujuan Lingkungan), serving as a prerequisite for business permit issuance. This integration means that environmental compliance verification occurs automatically within the business licensing process, ensuring that all licensed activities have addressed their environmental management obligations.
Key Provisions
Form Completion at Planning Stage
UKL-UPL forms must be completed during the project planning phase, before construction begins, with mandatory verification of spatial plan compliance.
Pasal 52:
"(1) Formulir UKL-UPL diisi oleh penanggung jawab Usaha dan/atau Kegiatan pada tahap perencanaan Usaha dan/atau Kegiatan. (2) Lokasi rencana Usaha dan/atau Kegiatan sebagaimana dimaksud pada ayat (1) wajib sesuai dengan rencana tata ruang. (3) Kesesuaian lokasi rencana Usaha dan/atau Kegiatan dengan rencana tata ruang sebagaimana dimaksud pada ayat (2) dibuktikan dengan konfirmasi kesesuaian kegiatan pemanfaatan ruang atau rekomendasi kesesuaian kegiatan pemanfaatan ruang..."
Project proponents must complete the UKL-UPL form at the planning stage before commencing activities. Critically, the location must comply with spatial plans, evidenced by spatial confirmation or recommendation documents. If the location does not comply with spatial plans, the form cannot be examined and is returned to the proponent, making spatial compliance a threshold requirement for UKL-UPL processing.
Two Form Types: Standard Specific and Standard
The regulation establishes two types of UKL-UPL forms, with sector-specific forms taking precedence where available.
Pasal 55:
"(1) Formulir UKL-UPL disusun dalam bentuk standar pengelolaan dan pemantauan Lingkungan Hidup. (2) Kementerian/lembaga pemerintah nonkementerian yang membidangi sektor bidang Usaha dan/atau Kegiatan wajib UKL-UPL menyusun Formulir UKL-UPL standar spesifik sesuai dengan jenis Usaha dan/atau Kegiatan. (3) Kementerian/lembaga pemerintah nonkementerian yang membidangi sektor bidang Usaha dan/atau Kegiatan wajib UKL-UPL, dalam menyusun Formulir UKL-UPL standar spesifik sebagaimana dimaksud pada ayat (2) berkoordinasi dengan Menteri."
Sector ministries must develop sector-specific standard forms (Formulir UKL-UPL standar spesifik) for activities within their jurisdiction, coordinating with the Ministry of Environment and Forestry. When sector-specific forms exist, proponents must use them. For activities without sector-specific forms, proponents use the general standard form (Formulir UKL-UPL standar) following the format in LAMPIRAN III of the regulation.
Environmental Management Commitment Statement
Every UKL-UPL submission must include a signed commitment statement affirming the proponent's willingness to implement environmental management measures.
Pasal 56 Ayat 3-4:
"(3) Formulir UKL-UPL standar spesifik atau Formulir UKL-UPL standar yang telah diisi sebagaimana dimaksud pada ayat (1) dan ayat (2) disertai dengan Pernyataan Kesanggupan Pengelolaan Lingkungan Hidup. (4) Pernyataan Kesanggupan Pengelolaan Lingkungan Hidup sebagaimana dimaksud pada ayat (3) disusun dengan menggunakan format sebagaimana tercantum dalam Lampiran III..."
The Environmental Management Commitment Statement (Pernyataan Kesanggupan Pengelolaan Lingkungan Hidup) accompanies the completed form and represents the proponent's formal commitment to implement all environmental management and monitoring measures identified in the UKL-UPL. This statement follows the format specified in LAMPIRAN III of the regulation.
Jurisdiction and Submission Channels
UKL-UPL submissions follow jurisdictional rules based on permit authority and project location, with electronic submission mandatory.
Pasal 57 Ayat 1-2:
"(1) Penanggung jawab Usaha dan/atau Kegiatan mengajukan permohonan pemeriksaan Formulir UKL-UPL standar spesifik atau Formulir UKL-UPL standar yang telah diisi kepada: a. Menteri, untuk Usaha dan/atau Kegiatan yang: 1. Perizinan Berusaha atau Persetujuan Pemerintah diterbitkan oleh Pemerintah; 2. berlokasi di lintas provinsi; dan/atau 3. berlokasi di wilayah laut lebih dari 12 (dua belas) mil laut diukur dari garis pantai ke arah laut lepas; b. gubernur, untuk Usaha dan/atau Kegiatan yang: 1. Perizinan Berusaha atau Persetujuan Pemerintah diterbitkan oleh gubernur; atau 2. berlokasi di lintas kabupaten/kota yang berada dalam 1 (satu) provinsi; c. bupati/wali kota, untuk Usaha dan/atau Kegiatan yang Perizinan Berusaha atau Persetujuan Pemerintah diterbitkan oleh Pemerintah Daerah kabupaten/kota. (2) Pengajuan permohonan pemeriksaan Formulir UKL-UPL... dilakukan melalui: a. sistem Perizinan Berusaha terintegrasi secara elektronik, dalam hal penanggung jawab Usaha dan/atau Kegiatan merupakan Pelaku Usaha; atau b. sistem informasi dokumen Lingkungan Hidup, dalam hal penanggung jawab Usaha dan/atau Kegiatan merupakan Instansi Pemerintah."
Submissions go to the Minister for central government permits, cross-provincial locations, or offshore locations beyond 12 nautical miles. Governors receive submissions for provincial permits or cross-district locations within a single province. Regents/Mayors handle submissions for local government permits. Business entities submit through the OSS system, while government agencies submit through the Environmental Information System (SILH).
Administrative Examination Requirements
Before substantive review, all UKL-UPL submissions undergo administrative examination verifying completeness and compliance.
Pasal 58 Ayat 2-3:
"(2) Pemeriksaan administrasi sebagaimana dimaksud pada ayat (1) dilakukan terhadap: a. konfirmasi kesesuaian kegiatan pemanfaatan ruang atau rekomendasi kesesuaian kegiatan pemanfaatan ruang; b. persetujuan awal terkait rencana Usaha dan/atau Kegiatan; c. Persetujuan Teknis; dan d. kesesuaian isi Formulir UKL-UPL standar spesifik atau Formulir UKL-UPL standar dengan pedoman pengisian. (3) Dalam hal hasil pemeriksaan administrasi menyatakan Formulir UKL-UPL... a. telah lengkap dan benar, dilakukan pemeriksaan substansi; atau b. belum lengkap dan benar, penanggung jawab Usaha dan/atau Kegiatan melengkapi Formulir UKL-UPL..."
Administrative examination verifies spatial compliance documentation, preliminary approvals, technical approvals, and proper form completion. Complete and correct submissions proceed to substantive examination. Incomplete submissions are returned for completion before substantive review begins.
Automatic Approval for Low-Risk Activities
Medium-low risk business activities benefit from automatic UKL-UPL processing through the electronic licensing system.
Pasal 60:
"(1) Pemeriksaan substansi Formulir UKL-UPL standar spesifik untuk usaha dengan tingkat risiko menengah rendah sebagaimana dimaksud dalam Pasal 57 ayat (5) huruf a dilakukan secara otomatis melalui sistem Perizinan Berusaha terintegrasi secara elektronik untuk Formulir UKL-UPL standar spesifik yang diisi oleh Pelaku Usaha. (2) Berdasarkan pemeriksaan substansi sebagaimana dimaksud pada ayat (1) diterbitkan: a. persetujuan Pernyataan Kesanggupan Pengelolaan Lingkungan Hidup; atau b. penolakan Pernyataan Kesanggupan Pengelolaan Lingkungan Hidup."
For medium-low risk activities using sector-specific standard forms, substantive examination occurs automatically through the OSS system. The system automatically issues either approval or rejection of the Environmental Management Commitment Statement, significantly accelerating the approval process for lower-risk projects.
Manual Examination for Higher-Risk Activities
Medium-high risk, high-risk, and government activities require manual substantive examination by environmental officials.
Pasal 61 Ayat 1-2:
"(1) Pemeriksaan substansi Formulir UKL-UPL standar spesifik atau Formulir UKL-UPL standar dilakukan untuk: a. usaha dengan tingkat risiko menengah tinggi sebagaimana dimaksud dalam Pasal 57 ayat (5) huruf b; b. usaha dengan tingkat risiko tinggi sebagaimana dimaksud dalam Pasal 57 ayat (5) huruf c; atau c. kegiatan yang dilakukan oleh Instansi Pemerintah sebagaimana dimaksud dalam Pasal 57 ayat (5) huruf d. (2) Pemeriksaan substansi sebagaimana dimaksud pada ayat (1) dilakukan oleh: a. Menteri dengan menugaskan pejabat yang membidangi Amdal, UKL-UPL, dan SPPL; atau b. gubernur atau bupati/wali kota melalui organisasi perangkat daerah yang membidangi Lingkungan Hidup."
Manual examination applies to medium-high risk activities, high-risk activities, and government activities. The Minister delegates examination to AMDAL/UKL-UPL/SPPL officials at the central level, while governors and regents/mayors work through their regional environmental agencies. This tiered approach ensures appropriate scrutiny for projects with greater environmental implications.
Approval Timeline: Two Days Plus Correction Period
The regulation establishes efficient approval timelines with defined periods for initial review and corrections.
Pasal 62:
"(1) Dalam hal hasil pemeriksaan substansi Formulir UKL-UPL standar spesifik atau Formulir UKL-UPL standar sebagaimana dimaksud dalam Pasal 61 ayat (4) dan ayat (5) tidak terdapat perbaikan, Menteri, gubernur, atau bupati/wali kota sesuai dengan kewenangannya memberikan persetujuan Pernyataan Kesanggupan Pengelolaan Lingkungan Hidup dalam jangka waktu paling lama 2 (dua) hari kerja... (3) Penanggung jawab Usaha dan/atau Kegiatan wajib melakukan perbaikan Formulir UKL-UPL... dalam jangka waktu paling lama 5 (lima) hari kerja sejak diterimanya arahan perbaikan... (4) Berdasarkan perbaikan Formulir UKL-UPL... Menteri, gubernur, atau bupati/wali kota sesuai dengan kewenangannya menerbitkan persetujuan Pernyataan Kesanggupan Pengelolaan Lingkungan Hidup dalam jangka waktu paling lama 2 (dua) hari kerja sejak perbaikan Formulir UKL-UPL standar diterima..."
For complete applications requiring no corrections, approval issues within two working days. When corrections are needed, proponents have five working days to submit corrections, followed by a two-day approval period after corrections are received. The maximum total timeline is nine working days, making UKL-UPL approval notably faster than AMDAL processes.
Approval as Environmental Approval
UKL-UPL approval constitutes the Environmental Approval required for business permit issuance.
Pasal 64:
"(1) Persetujuan Pernyataan Kesanggupan Pengelolaan Lingkungan Hidup sebagaimana dimaksud dalam Pasal 63 merupakan: a. bentuk Persetujuan Lingkungan; dan b. prasyarat penerbitan Perizinan Berusaha atau Persetujuan Pemerintah. (2) Perizinan Berusaha atau Persetujuan Pemerintah sebagaimana dimaksud pada ayat (1) menjadi dasar pelaksanaan pengawasan Usaha dan/atau Kegiatan."
The Environmental Management Commitment Statement Approval serves as the Environmental Approval (Persetujuan Lingkungan) for the activity and is a prerequisite for business permit issuance. Once the business permit is issued, it becomes the basis for government supervision of the activity's environmental compliance. This integration ensures that environmental requirements are embedded in the business licensing framework.
Implementation & Compliance
Project proponents should determine which UKL-UPL form type applies to their activity before beginning preparation. Sector-specific standard forms must be used where available through the Environmental Information System. When no sector-specific form exists, the general standard form following LAMPIRAN III applies. Proponents should verify spatial plan compliance early, as non-compliant locations prevent UKL-UPL examination entirely.
The UKL-UPL form must comprehensively address all project phases: pre-construction, construction, operation, and post-operation or closure. The impact matrix should identify all significant environmental impacts, their sources, management measures, and monitoring parameters. The Environmental Management Commitment Statement represents a binding commitment to implement these measures throughout the project lifecycle.
For business entities, submission through the OSS system is mandatory and enables integration with other business licensing requirements. Medium-low risk activities benefit from automatic processing, but proponents should ensure complete and accurate form completion since automatic systems cannot interpret ambiguous information. Higher-risk activities should anticipate manual review and potentially prepare supporting documentation to address examiner questions.
Proponents should track the examination timeline actively. If corrections are required, the five-day correction period is mandatory, and failure to submit corrections within this period may require restarting the process. Maintaining communication with the examining authority and responding promptly to correction requests ensures efficient processing.
Conclusion
PP 22/2021's UKL-UPL framework establishes a structured, efficient process for environmental approval of medium-impact activities. The dual form system ensures that sector-specific environmental concerns are addressed through specialized forms while maintaining general standards for all activities. Integration with Indonesia's electronic business licensing system enables automatic processing for lower-risk activities while preserving manual review for projects requiring closer environmental scrutiny.
For project proponents, understanding the form requirements, jurisdictional rules, and approval timelines enables efficient navigation of the UKL-UPL process. The relatively short approval timelines, combined with electronic submission and risk-based processing, support Indonesia's business environment improvement goals while maintaining environmental protection standards. The UKL-UPL approval's function as the Environmental Approval ensures that all licensed activities have demonstrated their commitment to environmental management.
Official Source
This article analyzes Government Regulation No. 22 of 2021 on Implementation of Environmental Protection and Management (PP 22/2021), specifically BAB II Bagian Ketiga (Pasal 52-64) on UKL-UPL Preparation and Examination, plus LAMPIRAN III on UKL-UPL Form Guidelines.
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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