What Coordination Bodies Must Be Formed Under PERMENPU 2/2024?
1.0 Executive Summary
Indonesia's water resource governance framework underwent fundamental restructuring with the December 2024 enactment of Minister of Public Works Regulation No. 2/2024 (PERMENPU 2/2024). This regulation establishes the mandatory framework for water resource management coordination bodies at the river basin level, replacing the previous regulatory regime under Permen PUPR 17/PRT/M/2017. The new regulation operationalizes the requirements of Law No. 17/2019 on Water Resources (as amended by Law No. 6/2023) and Government Regulation No. 30/2024 on Water Resource Management by creating a tiered system of coordination mechanisms designed to integrate cross-sectoral and cross-jurisdictional interests in water resource planning and management.
PERMENPU 2/2024 mandates the establishment of River Basin Water Resource Management Coordination Teams (Tim Koordinasi Pengelolaan Sumber Daya Air Wilayah Sungai, or TKPSDA WS) across five distinct categories based on jurisdictional scope. These coordination bodies function as non-structural institutions responsible for harmonizing the interests of multiple sectors, administrative regions, and stakeholder groups within defined river basin management units. The regulation provides comprehensive guidance on organizational positioning, functional mandates, compositional requirements, operational procedures, and funding mechanisms for each category of coordination body. This article examines the typology of coordination bodies prescribed by PERMENPU 2/2024, analyzes the jurisdictional assignment of establishment authority, and assesses the implications of these requirements for Indonesia's evolving water resource governance architecture.
The introduction of mandatory coordination bodies at the river basin level represents a significant departure from previous fragmented approaches to water resource management. By requiring coordination mechanisms that transcend traditional administrative boundaries, PERMENPU 2/2024 attempts to address longstanding challenges in managing water resources that flow across multiple jurisdictions and serve competing sectoral demands. The regulation's effectiveness will depend substantially on the capacity of central, provincial, and district governments to establish functional coordination bodies with adequate stakeholder representation and technical expertise. For water resource planners, government officials, and private sector entities engaged in water-dependent activities, understanding the requirements and operational frameworks of these coordination bodies is essential for navigating Indonesia's water resource regulatory landscape.
2.0 Legal Framework and Regulatory Authority
2.1 Statutory Foundation and Hierarchical Positioning
PERMENPU 2/2024 derives its legal authority from Article 66(6) of Law No. 17/2019 on Water Resources, as amended by Law No. 6/2023 concerning the Job Creation Omnibus Law. The statutory provision mandates ministerial regulation to establish guidelines for water resource management coordination bodies at the river basin level. The regulation operationalizes the policy direction set forth in Presidential Regulation No. 37/2023 on National Water Resource Policy and implements the procedural frameworks established in Government Regulation No. 30/2024 on Water Resource Management. This hierarchical alignment ensures consistency between national water resource strategy, implementing regulations, and operational guidelines for coordination body formation.
The regulation explicitly supersedes Permen PUPR 17/PRT/M/2017, which previously governed the formation of coordination teams for water resource management at the river basin level. The replacement reflects substantive changes in the legal framework following the enactment of Law No. 17/2019 and subsequent amendments under the Job Creation Law. PERMENPU 2/2024 adapts coordination body requirements to align with revised definitions of river basins, updated jurisdictional assignments for water resource management authority, and new provisions for stakeholder participation in water resource planning processes.
2.2 Jurisdictional Scope and Applicability
The regulation applies to all levels of government with water resource management responsibilities. Pasal 2(1) states: "Peraturan Menteri ini merupakan pedoman bagi Pemerintah Pusat, Pemerintah Daerah provinsi, dan Pemerintah Daerah kabupaten/kota dalam pembentukan TKPSDA WS" (This Ministerial Regulation serves as a guideline for the Central Government, Provincial Governments, and District/City Governments in establishing TKPSDA WS). This multi-tiered applicability structure recognizes that river basins in Indonesia vary significantly in geographic scope, with some confined to single districts while others cross provincial or even national boundaries.
The regulation's binding effect on subnational governments stems from Indonesia's hierarchical legal system, where ministerial regulations issued pursuant to statutory mandate carry legal force for implementing agencies at all administrative levels. Provincial and district governments are obligated to establish coordination bodies for river basins under their jurisdictional authority in accordance with the guidelines set forth in PERMENPU 2/2024. Failure to establish required coordination bodies could constitute non-compliance with statutory water resource management obligations, potentially exposing local governments to administrative oversight mechanisms or legal challenges by affected stakeholders.
3.0 Typology and Characteristics of Mandatory Coordination Bodies
3.1 Five-Category Classification System
PERMENPU 2/2024 establishes five distinct categories of coordination bodies based on the jurisdictional characteristics of the river basins they serve. Pasal 4 enumerates these categories: "TKPSDA WS sebagaimana dimaksud dalam Pasal 3 terdiri atas: a. TKPSDA WS lintas negara; b. TKPSDA WS lintas provinsi; c. TKPSDA WS strategis nasional; d. TKPSDA WS lintas kabupaten/kota; dan e. TKPSDA WS dalam satu kabupaten/kota" (TKPSDA WS as referred to in Article 3 consists of: a. trans-national river basin TKPSDA WS; b. inter-provincial river basin TKPSDA WS; c. national strategic river basin TKPSDA WS; d. inter-district/city river basin TKPSDA WS; and e. single district/city river basin TKPSDA WS).
This five-tier classification framework reflects the diversity of Indonesia's hydrological geography and the varying scales of coordination required for effective water resource management. Trans-national river basins involve coordination with neighboring countries and engage international water law principles. Inter-provincial and inter-district river basins require coordination mechanisms that can reconcile competing interests across multiple administrative jurisdictions. Nationally strategic river basins may warrant heightened central government involvement due to their critical importance for national development priorities, food security, or disaster risk management. Single-district river basins allow for more localized coordination processes tailored to specific community needs and watershed characteristics.
Matrix 3.1: Coordination Body Categories and Jurisdictional Characteristics
| Category | Jurisdictional Scope | Geographic Examples | Coordination Complexity | Primary Stakeholder Types |
|---|---|---|---|---|
| Trans-National River Basin | Rivers crossing Indonesia-neighboring country borders | Mekong Basin (potential), Mahakam Basin (if extending to Malaysia/Brunei borders) | Highest - requires international treaty coordination, diplomatic protocols, cross-border data sharing | National governments, international organizations, border province governments, transboundary water users |
| Inter-Provincial River Basin | Rivers flowing through multiple provincial territories | Citarum River Basin (West Java-multiple provinces), Bengawan Solo Basin (Central Java-East Java) | High - requires reconciliation of multiple provincial development priorities, revenue sharing mechanisms | Provincial governments, inter-provincial water users, national infrastructure agencies, environmental protection bodies |
| National Strategic River Basin | River basins designated as nationally critical for development, food security, or disaster management | Designated basins supporting national food estate programs, critical water supply for metropolitan areas | High - involves national policy priorities, significant central government investment, strategic resource allocation | National ministries, provincial governments, state-owned enterprises, national food security agencies |
| Inter-District/City River Basin | Rivers within single province but crossing district/city boundaries | Many medium-sized rivers in Sumatra, Kalimantan, Sulawesi | Moderate - requires coordination among local governments with shared provincial oversight | District/city governments, local water utilities, agricultural cooperatives, local industry associations |
| Single District/City River Basin | Rivers entirely within one district/city jurisdiction | Small watersheds serving individual districts/cities | Lower - primarily local stakeholders with single administrative authority | District/city government, local communities, municipal water utilities, local businesses |
3.2 Organizational Characteristics and Structural Features
All categories of TKPSDA WS share common organizational characteristics defined by the regulation. Each coordination body is established as a non-structural institution rather than a permanent government agency. This non-structural status, explicitly stated for trans-national coordination bodies in Pasal 6 and applicable to all categories, allows for flexible membership composition including government officials, technical experts, private sector representatives, and civil society organizations. The non-structural format enables coordination bodies to convene as needed without creating additional permanent bureaucratic structures or civil service positions.
Coordination bodies operate under the authority of and report to the government entity responsible for establishing them. Pasal 6 specifies for trans-national river basins: "TKPSDA WS lintas negara bersifat nonstruktural, berada di bawah dan bertanggung jawab kepada Menteri" (Trans-national river basin TKPSDA WS is non-structural in nature, positioned under and accountable to the Minister). Similar accountability relationships apply to coordination bodies at provincial and district levels, with bodies reporting to governors or mayors/regents respectively. This accountability structure ensures coordination bodies remain responsive to the policy priorities of the governmental authorities with primary water resource management jurisdiction.
4.0 Establishment Authority and Procedural Requirements
4.1 Jurisdictional Assignment of Establishment Authority
The regulation clearly delineates which governmental authority bears responsibility for establishing each category of coordination body. Pasal 5 provides the jurisdictional assignment: "Pembentukan TKPSDA WS sebagaimana dimaksud dalam Pasal 4 ditetapkan oleh: a. Menteri untuk Wilayah Sungai lintas negara, Wilayah Sungai lintas provinsi, dan Wilayah Sungai strategis nasional; b. Gubernur untuk Wilayah Sungai lintas kabupaten/kota; dan c. Bupati/Wali Kota untuk Wilayah Sungai dalam satu kabupaten/kota" (The establishment of TKPSDA WS as referred to in Article 4 is determined by: a. the Minister for trans-national river basins, inter-provincial river basins, and national strategic river basins; b. the Governor for inter-district/city river basins; and c. the Regent/Mayor for river basins within a single district/city).
This assignment of establishment authority follows the principle of jurisdictional correspondence between river basin geographic scope and governmental authority level. River basins that cross provincial or national boundaries fall under central government jurisdiction through the Minister of Public Works, reflecting the need for higher-level coordination capacity and policy alignment. Inter-district basins within a single province become the responsibility of provincial governors, leveraging their supervisory authority over multiple district governments. Localized river basins within single administrative units appropriately fall under district or city government authority, enabling locally-tailored coordination processes.
Matrix 4.1: Establishment Authority and Coordination Body Formation Matrix
| Coordination Body Category | Establishment Authority | Legal Instrument | Administrative Process | Key Formation Steps | Approval Requirements |
|---|---|---|---|---|---|
| Trans-National River Basin | Minister of Public Works | Ministerial Decree (Keputusan Menteri) | National-level consultation with Ministry of Foreign Affairs, neighboring country water authorities | 1. Hydrological boundary determination; 2. Stakeholder identification and notification; 3. International consultation protocols; 4. Ministerial decree issuance | Minister approval; coordination with Ministry of Foreign Affairs for international river basins |
| Inter-Provincial River Basin | Minister of Public Works | Ministerial Decree | Consultation with relevant provincial governments, review of provincial water resource management plans | 1. River basin delineation; 2. Provincial government consultation; 3. Stakeholder mapping; 4. Ministerial decree issuance | Minister approval; input from affected provincial governors |
| National Strategic River Basin | Minister of Public Works | Ministerial Decree | Designation as nationally strategic basin, consultation with relevant ministries and provincial governments | 1. Strategic designation determination; 2. Multi-ministry consultation; 3. Stakeholder identification; 4. Ministerial decree issuance | Minister approval; coordination with National Development Planning Agency (Bappenas) |
| Inter-District/City River Basin | Provincial Governor | Governor Decree (Keputusan Gubernur) | Consultation with affected district/city governments, review of local water resource plans | 1. Basin boundary confirmation; 2. District/city government consultation; 3. Stakeholder identification; 4. Governor decree issuance | Governor approval; input from affected regents/mayors |
| Single District/City River Basin | Regent (Bupati) or Mayor (Wali Kota) | Regent/Mayor Decree (Keputusan Bupati/Wali Kota) | Local consultation with water users, community representatives, relevant agencies | 1. Local basin delineation; 2. Community stakeholder consultation; 3. Member selection; 4. Decree issuance | Regent/Mayor approval; local legislative notification may be required |
4.2 Functional Mandates and Operational Frameworks
The regulation assigns three core functional mandates to coordination bodies. Pasal 8, addressing trans-national coordination bodies but applicable across all categories, specifies: "TKPSDA WS lintas negara mempunyai tugas: a. menyelaraskan kepentingan antarsektor, antarwilayah, dan antarpemilik kepentingan dalam Pengelolaan Sumber Daya Air pada Wilayah Sungai lintas negara; b. memberikan saran kepada Pemerintah Pusat dan/atau Pemerintah Daerah terkait pelaksanaan Pengelolaan Sumber Daya Air sesuai dengan hasil koordinasi sebagaimana dimaksud dalam huruf a; dan c. memantau dan mengevaluasi pelaksanaan program dan rencana kegiatan Pengelolaan Sumber Daya Air pada Wilayah Sungai lintas negara" (Trans-national river basin TKPSDA WS has the tasks of: a. harmonizing cross-sectoral, cross-regional, and cross-stakeholder interests in water resource management in trans-national river basins; b. providing advice to the Central Government and/or Regional Governments regarding the implementation of water resource management in accordance with the coordination results as referred to in letter a; and c. monitoring and evaluating the implementation of programs and activity plans for water resource management in trans-national river basins).
These three functional mandates - harmonization, advisory, and monitoring/evaluation - define the coordination body's operational role in the water resource governance system. The harmonization function requires coordination bodies to serve as forums where competing sectoral interests (agriculture, industry, urban water supply, environmental conservation, hydropower generation) can negotiate resource allocation priorities and resolve conflicts. The advisory function positions coordination bodies as technical consultants to governmental decision-makers, translating stakeholder coordination outcomes into policy recommendations. The monitoring and evaluation function creates an accountability mechanism, enabling coordination bodies to track whether water resource management programs align with agreed coordination frameworks and stakeholder commitments.
5.0 Implementation Implications and Compliance Requirements
5.1 Institutional Capacity Requirements for Governmental Authorities
The mandatory establishment of coordination bodies under PERMENPU 2/2024 creates significant capacity demands for governmental authorities at all levels. Ministers, governors, and regents/mayors must develop institutional capabilities for river basin delineation, stakeholder identification and engagement, coordination secretariat management, and ongoing operational support for coordination body activities. For many subnational governments, particularly district-level administrations in regions with limited technical capacity, establishing functional coordination bodies will require substantial investments in hydrological expertise, administrative systems, and stakeholder engagement processes.
The regulation's requirement for coordination bodies across all river basin categories, regardless of size or strategic importance, may strain the administrative resources of smaller governments. A single district government may be responsible for establishing multiple coordination bodies if its territory contains several discrete river basins meeting the regulatory definition of "Wilayah Sungai" (unified water resource management area within one or more watersheds and/or small islands with an area of less than or equal to 2,000 square kilometers). Provincial governments with numerous inter-district river basins face similar multiplicative burdens. Central government technical assistance and capacity-building programs will likely be necessary to support effective implementation, particularly in regions with limited prior experience in participatory water resource governance mechanisms.
5.2 Stakeholder Participation and Cross-Sectoral Coordination Challenges
The effectiveness of coordination bodies mandated by PERMENPU 2/2024 depends critically on achieving meaningful stakeholder participation across diverse sectoral interests. The regulation's definition of coordination bodies emphasizes their role in integrating "kepentingan berbagai sektor, wilayah, dan para pemilik kepentingan" (the interests of various sectors, regions, and stakeholders). However, the regulation provides limited specific guidance on minimum stakeholder representation requirements, selection processes for non-governmental members, or mechanisms for ensuring balanced representation between powerful economic interests and marginalized community groups.
Potential implementation challenges include dominance of coordination processes by government agencies or large economic actors, inadequate representation of smallholder farmers and rural communities who depend on water resources for livelihoods, insufficient technical capacity among community representatives to engage effectively in complex water resource planning discussions, and difficulties maintaining consistent stakeholder engagement over long time horizons. Successful implementation will require development of inclusive stakeholder identification methodologies, capacity-building for community representatives, transparent decision-making processes within coordination bodies, and enforcement mechanisms to ensure coordination outcomes are meaningfully incorporated into governmental water resource management decisions.
Matrix 5.1: Implementation Timeline and Compliance Requirements for Governmental Authorities
| Government Level | Coordination Body Categories Under Jurisdiction | Initial Actions Required | Expected Timeline for Compliance | Technical Capacity Requirements | Potential Implementation Challenges |
|---|---|---|---|---|---|
| Central Government (Ministry of Public Works) | Trans-national, inter-provincial, national strategic river basins | 1. Identify all river basins in each category; 2. Develop standard operating procedures for coordination body formation; 3. Establish secretariat support systems; 4. Issue ministerial decrees establishing bodies | 12-24 months from regulation enactment | Advanced hydrological modeling, international water law expertise (for trans-national basins), stakeholder engagement specialists, legal drafting capacity | Coordination with multiple provinces and international counterparts; resource allocation for secretariat support; maintaining coordination across politically diverse regions |
| Provincial Governments | Inter-district/city river basins | 1. Map all inter-district river basins within province; 2. Consult with affected district governments; 3. Identify key stakeholders; 4. Issue governor decrees | 18-36 months from regulation enactment | Hydrological mapping, multi-district coordination capacity, stakeholder facilitation skills | Managing competing interests between district governments; ensuring adequate representation of rural communities; sustaining coordination over time |
| District/City Governments | River basins within single district/city jurisdiction | 1. Delineate local river basins; 2. Conduct community consultations; 3. Select coordination body members; 4. Issue regent/mayor decrees | 12-24 months from regulation enactment | Basic watershed mapping, community engagement, administrative support for coordination meetings | Limited technical capacity in smaller districts; resource constraints for ongoing coordination support; balancing urban and rural interests |
5.3 Funding Mechanisms and Resource Sustainability
PERMENPU 2/2024 identifies funding as one of the six core components of coordination body guidelines (Pasal 3), indicating that the regulation addresses financial sustainability mechanisms. However, the specific funding provisions are contained in subsequent chapters not examined in this analysis. The long-term viability of coordination bodies will depend substantially on securing stable funding sources for secretariat operations, stakeholder convening processes, technical studies to support coordination decisions, and monitoring and evaluation activities.
Potential funding models include direct budget allocations from the governmental authority that established the coordination body, cost-sharing arrangements among multiple government agencies benefiting from improved coordination, levies or fees on water users within the river basin, and development partner or international organization grants for pilot coordination bodies. The appropriate funding model will vary based on river basin category, with trans-national and nationally strategic basins likely requiring more substantial central government investment, while single-district basins may rely primarily on local budget allocations supplemented by water user contributions.
Regulation Reference: Minister of Public Works Regulation No. 2/2024 on Guidelines for Establishing Water Resource Management Coordination Bodies at River Basin Level (PERMENPU 2/2024)
Official Source: https://peraturan.bpk.go.id/Details/328867/permen-pu-no-2-tahun-2024
Legal Foundation: Law No. 17/2019 on Water Resources (as amended by Law No. 6/2023); Government Regulation No. 30/2024 on Water Resource Management; Presidential Regulation No. 37/2023 on National Water Resource Policy
Regulatory Status: Active, enacted December 13, 2024; supersedes Permen PUPR 17/PRT/M/2017
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