What Environmental Protection Implementation Rules Apply Under PP 22/2021?
1.0 Introduction and Regulatory Context
Government Regulation No. 22 of 2021 on the Implementation of Environmental Protection and Management (PP 22/2021) represents a fundamental transformation in Indonesia's environmental regulatory framework. Enacted on February 2, 2021, as implementing legislation for Law No. 11 of 2020 (Job Creation Law/Omnibus Law), this regulation consolidates and modernizes environmental approval requirements, pollution control standards, and administrative enforcement mechanisms across multiple environmental media.
Status: Active (Berlaku) since February 2, 2021
Official Source: https://peraturan.bpk.go.id/Details/161852/pp-no-22-tahun-2021
PP 22/2021 replaces five previously separate environmental regulations, creating an integrated environmental management system:
- PP No. 101 of 2014 (Hazardous and Toxic Waste Management)
- PP No. 27 of 2012 (Environmental Permits)
- PP No. 82 of 2001 (Water Quality Management)
- PP No. 41 of 1999 (Air Pollution Control)
- PP No. 19 of 1999 (Marine Pollution Control)
This consolidation aligns environmental requirements with Indonesia's business licensing reforms under the OSS (Online Single Submission) system, embedding environmental approval as a prerequisite for business licensing (Perizinan Berusaha) rather than a standalone permit.
1.1 Regulatory Scope and Coverage
Article 2 of PP 22/2021 establishes comprehensive coverage across ten critical areas:
| Regulatory Domain | Key Focus |
|---|---|
| Environmental Approval (Persetujuan Lingkungan) | Mandatory approval for all significant business activities |
| Water Quality Protection and Management | Rivers, lakes, groundwater, and watersheds |
| Air Quality Protection and Management | Ambient air quality and emission standards |
| Marine Quality Protection and Management | Coastal waters, coral reefs, mangroves, seagrass beds |
| Environmental Damage Control | Prevention, mitigation, and restoration |
| B3 Hazardous Waste Management | Toxic and hazardous materials lifecycle |
| Non-B3 Waste Management | General solid and liquid waste |
| Environmental Recovery Guarantee Fund | Financial assurance mechanisms |
| Environmental Information System | Data integration and public access |
| Supervision and Administrative Sanctions | Enforcement and compliance mechanisms |
1.2 Strategic Context: OSS Integration
PP 22/2021 fundamentally restructures environmental compliance by integrating environmental approval into business licensing procedures. Under the previous regulatory regime, environmental permits were separate administrative documents. The new framework treats environmental approval (Persetujuan Lingkungan) as a prerequisite embedded within Perizinan Berusaha, creating a streamlined but more stringent compliance pathway.
This integration has three critical implications:
1. Mandatory Pre-Licensing: Environmental approval must be obtained before business operations commence
2. Lifecycle Linkage: Environmental approval duration is tied to business license validity
3. Unified Enforcement: Administrative sanctions apply through business licensing authority
1.3 Regulatory Objectives and Principles
PP 22/2021 advances three core regulatory objectives:
Prevention-Focused Environmental Management: The regulation emphasizes proactive environmental assessment and planning rather than reactive pollution control. Articles 3-4 mandate environmental approval for all activities with environmental impacts, shifting the compliance burden to the planning phase.
Media-Specific Protection Standards: Distinct protection frameworks for water, air, and marine environments recognize the unique characteristics of each environmental medium while maintaining integrated management principles.
Ultimum Remedium Enforcement: The regulation explicitly adopts the principle of administrative sanctions as the primary enforcement mechanism, reserving criminal prosecution as a last resort. This graduated enforcement approach prioritizes compliance restoration over punitive measures.
2.0 Key Definitions and Scope
PP 22/2021 establishes a comprehensive definitional framework comprising 103 key terms (Pasal 1). These definitions provide legal clarity for environmental compliance obligations, administrative procedures, and enforcement mechanisms. This section presents verbatim Indonesian definitions for core regulatory concepts, followed by English translations and practical implications.
2.1 Foundational Environmental Concepts
Pasal 1 Ayat (1)
Lingkungan Hidup adalah kesatuan ruang dengan semua benda, daya, keadaan, dan makhluk hidup, termasuk manusia dan perilakunya, yang mempengaruhi alam itu sendiri, kelangsungan perikehidupan, dan kesejahteraan manusia serta makhluk hidup lain.
Translation: "Environment" is a unified space encompassing all objects, energy, conditions, and living organisms, including humans and their behavior, that influences nature itself, the continuity of life, and the welfare of humans and other living beings.
Pasal 1 Ayat (2)
Perlindungan dan Pengelolaan Lingkungan Hidup adalah upaya sistematis dan terpadu yang dilakukan untuk melestarikan fungsi Lingkungan Hidup dan mencegah terjadinya pencemaran dan/atau kerusakan Lingkungan Hidup yang meliputi perencanaan, pemanfaatan, pengendalian, pemeliharaan, pengawasan, dan penegakan hukum.
Translation: "Environmental Protection and Management" means systematic and integrated efforts undertaken to preserve environmental functions and prevent pollution and/or environmental damage, encompassing planning, utilization, control, maintenance, supervision, and law enforcement.
2.2 Environmental Approval Framework (Persetujuan Lingkungan)
Pasal 1 Ayat (4)
Persetujuan Lingkungan adalah Keputusan Kelayakan Lingkungan Hidup atau pernyataan Kesanggupan Pengelolaan Lingkungan Hidup yang telah mendapatkan persetujuan dari Pemerintah Pusat atau Pemerintah Daerah.
Translation: "Environmental Approval" means an Environmental Feasibility Decision or Statement of Environmental Management Capability that has obtained approval from the Central Government or Regional Government.
This definition establishes two distinct pathways for environmental approval:
| Approval Type | Indonesian Term | Applicability |
|---|---|---|
| Environmental Feasibility Decision | Keputusan Kelayakan Lingkungan Hidup | Activities requiring AMDAL (Environmental Impact Assessment) |
| Statement of Environmental Management Capability | Pernyataan Kesanggupan Pengelolaan Lingkungan Hidup | Activities requiring UKL-UPL (Environmental Management and Monitoring Efforts) |
Pasal 1 Ayat (5)
Analisis Mengenai Dampak Lingkungan Hidup yang selanjutnya disebut Amdal adalah Kajian mengenai dampak penting pada Lingkungan Hidup dari suatu usaha dan/atau kegiatan yang direncanakan, untuk digunakan sebagai prasyarat pengambilan keputusan tentang penyelenggaraan usaha dan/atau kegiatan serta termuat dalam Perizinan Berusaha, atau persetujuan Pemerintah Pusat atau Pemerintah Daerah.
Translation: "Environmental Impact Assessment" (AMDAL) means an assessment of significant impacts on the Environment from a planned business and/or activity, to be used as a prerequisite for decision-making regarding the implementation of business and/or activities and included in Business Licensing or approval from the Central Government or Regional Government.
Pasal 1 Ayat (6)
Upaya Pengelolaan Lingkungan Hidup dan Upaya Pemantauan Lingkungan Hidup yang selanjutnya disebut UKL-UPL adalah rangkaian proses pengelolaan dan pemantauan Lingkungan Hidup yang dituangkan dalam bentuk standar untuk digunakan sebagai prasyarat pengambilan keputusan serta termuat dalam Perizinan Berusaha, atau persetujuan Pemerintah Pusat atau Pemerintah Daerah.
Translation: "Environmental Management and Monitoring Efforts" (UKL-UPL) means a series of environmental management and monitoring processes formulated as standards to be used as prerequisites for decision-making and included in Business Licensing or approval from the Central Government or Regional Government.
Pasal 1 Ayat (9)
Surat Pernyataan Kesanggupan Pengelolaan dan Pemantauan Lingkungan Hidup yang selanjutnya disebut SPPL adalah pernyataan kesanggupan dari penanggung jawab Usaha dan/atau Kegiatan untuk melakukan pengelolaan dan pemantauan Lingkungan Hidup atas Dampak Lingkungan Hidup dari Usaha dan/atau Kegiatannya di luar Usaha dan/atau Kegiatan yang wajib Amdal atau UKL-UPL.
Translation: "Statement of Environmental Management and Monitoring Capability" (SPPL) means a statement of capability from the person responsible for a Business and/or Activity to conduct environmental management and monitoring for Environmental Impacts from their Business and/or Activity, excluding those requiring AMDAL or UKL-UPL.
2.3 Pollution and Damage Concepts
Pasal 1 Ayat (28)
Pencemaran Lingkungan Hidup adalah masuk atau dimasukkannya makhluk hidup, zat, energi, dan/atau komponen lain ke dalam Lingkungan Hidup oleh kegiatan manusia sehingga melampaui baku mutu Lingkungan Hidup yang telah ditetapkan.
Translation: "Environmental Pollution" means the entry or introduction of living organisms, substances, energy, and/or other components into the Environment by human activities such that it exceeds established Environmental Quality Standards.
Pasal 1 Ayat (29)
Kerusakan Lingkungan Hidup adalah perubahan langsung dan/atau tidak langsung terhadap sifat fisik, kimia, dan/atau hayati Lingkungan Hidup yang melampaui Kriteria Baku Kerusakan Lingkungan Hidup.
Translation: "Environmental Damage" means direct and/or indirect changes to the physical, chemical, and/or biological properties of the Environment that exceed Environmental Damage Standard Criteria.
Pasal 1 Ayat (30)
Perusakan Lingkungan Hidup adalah tindakan orang yang menimbulkan perubahan langsung atau tidak langsung terhadap sifat fisik, kimia, dan/atau hayati Lingkungan Hidup sehingga melampaui Kriteria Baku Kerusakan Lingkungan Hidup.
Translation: "Environmental Destruction" means actions by persons that cause direct or indirect changes to the physical, chemical, and/or biological properties of the Environment such that it exceeds Environmental Damage Standard Criteria.
The distinction between "Kerusakan" (damage as a state) and "Perusakan" (destruction as an action) establishes critical legal differentiation for administrative and criminal liability.
2.4 Hazardous and Toxic Substances
Pasal 1 Ayat (67)
Bahan Berbahaya dan Beracun yang selanjutnya disingkat B3 adalah zat, energi, dan/atau komponen lain yang karena sifat, konsentrasi, dan/atau jumlahnya, baik secara langsung maupun tidak langsung, dapat mencemarkan dan/atau merusak Lingkungan Hidup, dan/atau membahayakan Lingkungan Hidup, kesehatan, serta kelangsungan hidup manusia dan makhluk hidup lain.
Translation: "Hazardous and Toxic Materials" (B3) means substances, energy, and/or other components that, due to their nature, concentration, and/or quantity, whether directly or indirectly, can pollute and/or damage the Environment, and/or endanger the Environment, health, and the survival of humans and other living beings.
Pasal 1 Ayat (69)
Limbah Bahan Berbahaya dan Beracun yang selanjutnya disebut Limbah B3 adalah sisa suatu usaha dan/atau kegiatan yang mengandung B3.
Translation: "Hazardous and Toxic Waste" (Limbah B3) means residues from a business and/or activity containing B3.
2.5 Administrative Enforcement Concepts
Pasal 1 Ayat (98)
Pengawasan adalah kegiatan yang dilaksanakan secara langsung atau tidak langsung oleh pejabat pengawas Lingkungan Hidup untuk mengetahui dan/atau menetapkan tingkat ketaatan penanggung jawab Usaha dan/atau Kegiatan atas ketentuan yang ditetapkan dalam Perizinan Berusaha atau Persetujuan Pemerintah serta peraturan perundang-undangan di bidang Perlindungan dan Pengelolaan Lingkungan Hidup.
Translation: "Supervision" means activities carried out directly or indirectly by Environmental Supervisory Officials to ascertain and/or determine the level of compliance of persons responsible for Business and/or Activities with provisions established in Business Licensing or Government Approval and regulations in the field of Environmental Protection and Management.
Pasal 1 Ayat (99)
Sanksi Administratif adalah perangkat sarana hukum administrasi yang bersifat pembebanan kewajiban/perintah dan/atau penarikan kembali keputusan tata usaha negara yang dikenakan kepada penanggung jawab Usaha dan/atau Kegiatan atas dasar ketidaktaatan terhadap ketentuan yang ditetapkan dalam peraturan perundang-undangan di bidang Perlindungan dan Pengelolaan Lingkungan Hidup serta Perizinan Berusaha atau Persetujuan Pemerintah.
Translation: "Administrative Sanctions" means administrative legal instruments in the form of imposing obligations/orders and/or withdrawing state administrative decisions imposed on persons responsible for Business and/or Activities based on non-compliance with provisions established in regulations in the field of Environmental Protection and Management and Business Licensing or Government Approval.
3.0 Core Requirements and Provisions
3.1 Mandatory Environmental Approval Requirements
Pasal 3: Universal Environmental Approval Obligation
PP 22/2021 establishes environmental approval as a universal prerequisite for all business activities with environmental impacts, fundamentally restructuring Indonesia's environmental compliance framework.
Verbatim Text (Indonesian):
Pasal 3 Ayat (1): Persetujuan Lingkungan sebagaimana dimaksud dalam Pasal 2 huruf a wajib dimiliki oleh setiap Usaha dan/atau Kegiatan yang memiliki Dampak Penting atau tidak penting terhadap lingkungan.
Pasal 3 Ayat (2): Persetujuan Lingkungan sebagaimana dimaksud pada ayat (1) diberikan kepada Pelaku Usaha atau Instansi Pemerintah.
Pasal 3 Ayat (3): Persetujuan Lingkungan sebagaimana dimaksud pada ayat (2) menjadi prasyarat penerbitan Perizinan Berusaha atau Persetujuan Pemerintah.
Translation:
- Article 3(1): Environmental Approval as referred to in Article 2 letter a must be possessed by every Business and/or Activity that has significant or insignificant Environmental Impacts.
- Article 3(2): Environmental Approval as referred to in paragraph (1) is granted to Business Actors or Government Institutions.
- Article 3(3): Environmental Approval as referred to in paragraph (2) becomes a prerequisite for the issuance of Business Licensing or Government Approval.
Matrix 1: Environmental Approval Pathway Determination
| Impact Category | Documentation Required | Approval Pathway | Issuing Authority | Validity Period |
|---|---|---|---|---|
| Significant Environmental Impact | AMDAL (Environmental Impact Assessment) comprising: • Kerangka Acuan (Terms of Reference) • ANDAL (Impact Analysis) • RKL (Management Plan) • RPL (Monitoring Plan) |
Keputusan Kelayakan Lingkungan Hidup (Environmental Feasibility Decision) issued after formal assessment | Ministry of Environment (central), Provincial Environmental Office, or District/City Environmental Office based on activity scale | Tied to Business License validity (Article 3(5)) |
| Non-Significant Environmental Impact | UKL-UPL (Environmental Management and Monitoring Efforts) in standardized form | Pernyataan Kesanggupan Pengelolaan Lingkungan Hidup (Statement of Environmental Management Capability) after form review | Same hierarchy as AMDAL based on authority distribution | Tied to Business License validity |
| Minor Environmental Impact | SPPL (Statement of Environmental Management and Monitoring Capability) - self-declaration | Self-certification with verification during supervision | Business actor submits to relevant environmental authority | Tied to Business License validity |
Critical Compliance Points:
- No Environmental Impact Exemption: Article 3(1) explicitly covers activities with both "significant or insignificant" (Dampak Penting atau tidak penting) environmental impacts, eliminating exemptions based on impact magnitude.
- Pre-Licensing Requirement: Article 3(3) establishes environmental approval as a "prasyarat" (prerequisite), meaning business licensing cannot be issued without prior environmental approval.
- Lifecycle Integration: Article 3(5) ties environmental approval duration to business license validity, creating automatic expiration when business operations cease.
3.2 Three-Tiered Environmental Assessment System
Pasal 4: Mandatory Environmental Documentation
Verbatim Text (Indonesian):
Pasal 4: Setiap rencana Usaha dan/atau Kegiatan yang berdampak terhadap Lingkungan Hidup wajib memiliki:
a. Amdal;
b. UKL-UPL; atau
c. SPPL.
Translation: Every planned Business and/or Activity that impacts the Environment must possess: (a) AMDAL; (b) UKL-UPL; or (c) SPPL.
Matrix 2: Environmental Documentation Requirements by Activity Type
| Activity Characteristics | Required Documentation | Assessment Rigor | Processing Timeline | Key Regulatory References |
|---|---|---|---|---|
| Large-scale activities meeting AMDAL thresholds (e.g., mining >100 ha, industrial estates >150 ha, power plants >10 MW) | AMDAL (Full Environmental Impact Assessment) • Mandatory public consultation • Independent feasibility review by Tim Uji Kelayakan Lingkungan Hidup • Multi-disciplinary impact analysis |
High rigor: • Baseline environmental conditions survey • Impact prediction modeling • Alternative analysis • Mitigation plan development |
75-105 working days from complete document submission | Pasal 5 Ayat (2): Activities with significant scale/magnitude or located within/adjacent to protected areas |
| Activities within/bordering protected conservation areas (hutan lindung, kawasan konservasi, DAS kritis) | AMDAL (mandatory regardless of scale) | Highest rigor: • Ecological function impact assessment • Carrying capacity analysis • Scientific review by Tim Uji Kelayakan |
Same as above | Pasal 5 Ayat (2) huruf b: Location-based AMDAL trigger |
| Medium-scale activities below AMDAL thresholds but with measurable environmental impacts | UKL-UPL (Standardized Environmental Management and Monitoring Forms) | Moderate rigor: • Standardized impact checklist • Management and monitoring commitments • Administrative review (no feasibility assessment) |
20 working days from form submission | Pasal 6 Ayat (1): Non-significant impact activities |
| Small and micro businesses with minimal environmental impacts | SPPL (Self-Declaration Statement) | Low rigor: • Self-certification of management capability • No pre-approval review • Verified during operational supervision |
Immediate (self-certification) | Pasal 7 Ayat (1): Activities not meeting AMDAL or UKL-UPL criteria |
Pasal 5 Ayat (2): AMDAL Mandatory Criteria
Verbatim Text (Indonesian):
Pasal 5 Ayat (2): Rencana Usaha dan/atau Kegiatan yang wajib memiliki Amdal sebagaimana dimaksud pada ayat (1) meliputi:
a. jenis rencana Usaha dan/atau Kegiatan yang besaran/skalanya wajib Amdal; dan/atau
b. jenis rencana Usaha dan/atau Kegiatan yang lokasi Usaha dan/atau Kegiatan dilakukan di dalam dan/atau berbatasan langsung dengan kawasan lindung.
Translation: Planned Business and/or Activities that must have AMDAL as referred to in paragraph (1) include:
- (a) types of planned Business and/or Activities whose magnitude/scale requires AMDAL; and/or
- (b) types of planned Business and/or Activities whose location is within and/or directly adjacent to protected areas.
3.3 Protected Area Location Triggers
Pasal 5 Ayat (4): Adjacent Protected Area Impact Assessment
Verbatim Text (Indonesian):
Pasal 5 Ayat (4): Rencana Usaha dan/atau Kegiatan yang lokasinya berbatasan langsung dengan kawasan lindung sebagaimana dimaksud pada ayat (2) huruf b, meliputi jenis rencana Usaha dan/atau Kegiatan yang:
a. batas tapak proyeknya bersinggungan langsung dengan batas kawasan lindung; dan/atau
b. berdasarkan pertimbangan ilmiah memiliki potensi dampak yang mempengaruhi fungsi kawasan lindung tersebut.
Translation: Planned Business and/or Activities whose location directly borders protected areas as referred to in paragraph (2) letter b include types of planned Business and/or Activities that:
- (a) have project site boundaries directly adjacent to protected area boundaries; and/or
- (b) based on scientific consideration have potential impacts affecting the functions of such protected areas.
Key Compliance Insight: Article 5(4)(b) introduces a scientific impact radius assessment, requiring AMDAL even for activities not physically bordering protected areas if scientific evidence demonstrates functional impact potential. This addresses downstream pollution, watershed degradation, and ecological connectivity impacts.
3.4 AMDAL Exemptions and Alternatives
Pasal 10: AMDAL Exemptions
PP 22/2021 provides ten categories of AMDAL exemptions despite activities meeting scale/location triggers, reflecting pragmatic regulatory flexibility for specific circumstances.
Verbatim Text (Indonesian):
Pasal 10 Ayat (1): Kewajiban memiliki Amdal sebagaimana dimaksud dalam Pasal 5 ayat (2) dikecualikan bagi rencana Usaha dan/atau Kegiatan yang:
a. lokasi rencana Usaha dan/atau Kegiatannya berada pada kabupaten/kota yang memiliki rencana detail tata ruang yang telah dilengkapi dengan kajian Lingkungan Hidup strategis yang dibuat dan dilaksanakan secara komprehensif dan rinci sesuai dengan ketentuan peraturan perundang-undangan;
b. lokasi rencana Usaha dan/atau Kegiatannya berada pada kawasan hutan yang telah memiliki rencana kelola hutan yang telah dilengkapi dengan kajian Lingkungan Hidup strategis yang dibuat dan dilaksanakan secara komprehensif dan rinci sesuai dengan ketentuan peraturan perundang-undangan;
c. program Pemerintah dan/atau Pemerintah Daerah yang telah memiliki kebijakan, rencana, dan/atau program berupa rencana induk yang telah dilengkapi dengan kajian Lingkungan Hidup strategis yang dibuat dan dilaksanakan secara komprehensif dan rinci sesuai dengan ketentuan peraturan perundang-undangan;
d. rencana Usaha dan/atau Kegiatan yang dilakukan di dalam dan/atau berbatasan langsung dengan kawasan lindung yang dikecualikan;
e. merupakan kegiatan Pemerintah dan/atau Pemerintah Daerah yang dilakukan dalam rangka penelitian dan bukan untuk tujuan komersial;
f. rencana Usaha dan/atau Kegiatan yang berada di dalam kawasan yang telah dilengkapi dengan Amdal kawasan dan Persetujuan Lingkungan kawasan;
g. rencana Usaha dan/atau Kegiatan yang berada di dalam kawasan yang berdasarkan peraturan perundang-undangan, Usaha dan/atau Kegiatan di dalam kawasan dipersyaratkan menyusun RKL-RPL rinci yang telah dilengkapi dengan Amdal kawasan dan Persetujuan Lingkungan kawasan;
h. dilakukan dalam kondisi tanggap darurat bencana;
i. dalam rangka pemulihan fungsi Lingkungan Hidup yang dilakukan oleh Pemerintah dan/atau Pemerintah Daerah di kawasan yang tidak dibebani Perizinan Berusaha; dan/atau
j. rencana Usaha dan/atau Kegiatan selain sebagaimana dimaksud dalam Pasal 5 ayat (2) huruf a, yang berbatasan langsung atau berada dalam kawasan lindung, yang telah mendapatkan penetapan pengecualian wajib Amdal dari instansi yang berwenang dan bertanggung jawab terhadap pengelolaan kawasan lindung.
Translation: The obligation to have AMDAL as referred to in Article 5 paragraph (2) is exempted for planned Business and/or Activities that:
- (a) are located in districts/cities with detailed spatial plans equipped with comprehensive and detailed Strategic Environmental Assessments (SEA);
- (b) are located in forest areas with forest management plans equipped with comprehensive and detailed SEA;
- (c) are government programs with master plans equipped with comprehensive and detailed SEA;
- (d) are conducted within or directly adjacent to exempted protected areas;
- (e) are government research activities not for commercial purposes;
- (f) are located within areas already equipped with zone AMDAL and zone Environmental Approval;
- (g) are located within areas required to prepare detailed RKL-RPL based on zone AMDAL and zone Environmental Approval;
- (h) are conducted under disaster emergency response conditions;
- (i) are environmental function restoration activities by government in areas without business licensing burdens; and/or
- (j) activities adjacent to or within protected areas that have obtained exemption determination from authorities responsible for protected area management.
Matrix 3: AMDAL Exemption Categories and Alternative Requirements
| Exemption Category | Rationale | Alternative Requirement | Key Limitation |
|---|---|---|---|
| Comprehensive SEA-covered spatial plans (Article 10(1)(a-c)) | Environmental impacts already assessed at strategic planning level | UKL-UPL or SPPL depending on activity scale | SEA must be "comprehensive and detailed" (komprehensif dan rinci) with holistic, integrative, thematic, and spatial approaches (Article 10(2)) |
| Zone AMDAL areas (Article 10(1)(f)) | Environmental carrying capacity already assessed for entire zone | Individual activities subject to zone's RKL-RPL commitments | Zone AMDAL must remain valid and applicable |
| RKL-RPL Rinci (Detailed Management Plans) (Article 10(1)(g)) | Specific management plans derived from zone AMDAL | Detailed RKL-RPL required before operations (Article 11(2)) | Must be consistent with zone Environmental Approval |
| Emergency response activities (Article 10(1)(h)) | Urgent environmental protection needs supersede procedural requirements | No environmental documentation required (Article 11(4)) | Limited to disaster response period |
| Government restoration activities (Article 10(1)(i)) | Public environmental remediation objectives | No environmental documentation required (Article 11(4)) | Only for areas without existing business licenses |
| Scientific research (non-commercial) (Article 10(1)(e)) | Low environmental risk from controlled research | UKL-UPL or SPPL depending on research scale | Commercial research activities NOT exempted |
4.0 Implementation Framework
4.1 Environmental Approval Authority Distribution
PP 22/2021 establishes a three-tiered governmental authority structure for environmental approval issuance, based on activity scale, sector, and geographic scope. This hierarchy determines which level of government reviews environmental documentation and issues binding decisions.
Authority Hierarchy:
| Authority Level | Jurisdiction | Typical Activities | Legal Basis |
|---|---|---|---|
| Ministry of Environment and Forestry (KLHK) | National-scale activities, cross-provincial impacts, strategic sectors | Mining concessions >500 ha, oil and gas facilities, trans-provincial infrastructure, power plants >200 MW | Pasal 21-22 (authority delegation based on activity characteristics) |
| Provincial Environmental Office (Dinas Lingkungan Hidup Provinsi) | Provincial-scale activities, cross-district impacts | Provincial roads, industrial estates 150-500 ha, waste treatment facilities serving multiple districts | Same as above |
| District/City Environmental Office (Dinas Lingkungan Hidup Kabupaten/Kota) | Local activities within single district/city boundaries | Local industrial facilities, commercial developments <150 ha, small-scale waste management | Same as above |
4.2 AMDAL Preparation and Review Process
Pasal 21-25: AMDAL Development Requirements
Verbatim Text (Indonesian):
Pasal 21 Ayat (1): Amdal disusun oleh penanggung jawab Usaha dan/atau Kegiatan pada tahap perencanaan suatu Usaha dan/atau Kegiatan.
Pasal 21 Ayat (2): Lokasi rencana Usaha dan/atau Kegiatan sebagaimana dimaksud pada ayat (1) wajib sesuai dengan rencana tata ruang.
Pasal 23 Ayat (2): Penyusunan Amdal wajib dilakukan oleh penyusun yang memiliki sertifikat kompetensi.
Translation:
- Article 21(1): AMDAL is prepared by the person responsible for the Business and/or Activity during the planning stage.
- Article 21(2): The location of the planned Business and/or Activity as referred to in paragraph (1) must comply with spatial planning.
- Article 23(2): AMDAL preparation must be conducted by preparers holding competency certificates.
Key Compliance Requirements:
- Spatial Plan Conformity (Kesesuaian Tata Ruang): Article 21(2-4) mandates spatial plan compliance verification through "konfirmasi kesesuaian kegiatan pemanfaatan ruang" (spatial utilization conformity confirmation) or "rekomendasi kesesuaian kegiatan pemanfaatan ruang" (spatial utilization conformity recommendation). Non-conforming activities are immediately rejected without substantive review.
- Certified Preparers: Article 23(2) requires AMDAL preparation by individuals holding competency certificates issued through national certification bodies. This professionalization requirement aims to improve assessment quality and standardize methodologies.
- Preparer Independence: Article 24(1-2) prohibits civil servants working for environmental agencies from preparing AMDAL, except when the environmental agency itself is the project proponent.
Matrix 4: AMDAL Document Components and Content Requirements
| AMDAL Component | Indonesian Term | Purpose | Key Content Requirements | Review Focus |
|---|---|---|---|---|
| Terms of Reference | Kerangka Acuan (KA) | Define assessment scope based on impact scoping | • Scoping results identifying significant impacts • Study area boundaries • Environmental components to assess • Assessment methodologies • Public consultation results |
Completeness of scoping, appropriateness of methodology, inclusion of stakeholder concerns |
| Impact Analysis | Analisis Dampak Lingkungan (ANDAL) | Detailed scientific assessment of significant environmental impacts | • Baseline environmental conditions (rona lingkungan awal) • Impact prediction for each significant aspect • Impact evaluation against quality standards • Alternative analysis (project design, location, technology) • Cumulative impact assessment |
Scientific rigor, impact prediction accuracy, baseline data quality, consideration of alternatives |
| Management Plan | Rencana Pengelolaan Lingkungan (RKL) | Mitigation and management measures for identified impacts | • Impact-specific mitigation measures • Management responsibilities • Implementation schedule • Management locations • Performance indicators |
Feasibility of mitigation measures, adequacy to address predicted impacts, clear responsibility assignment |
| Monitoring Plan | Rencana Pemantauan Lingkungan (RPL) | Monitoring program to verify impact predictions and mitigation effectiveness | • Monitoring parameters • Monitoring methods and frequencies • Monitoring locations • Institutional responsibilities • Reporting mechanisms |
Alignment with RKL commitments, adequacy of monitoring frequencies, clear reporting structure |
4.3 Feasibility Review Process (Uji Kelayakan)
Lembaga Uji Kelayakan Lingkungan Hidup (Environmental Feasibility Review Commission) conducts formal assessment of AMDAL documents through Tim Uji Kelayakan Lingkungan Hidup (Environmental Feasibility Review Team).
Review Process Elements:
- Technical Document Review: Assessment of AMDAL completeness, methodological soundness, and impact prediction accuracy
- Field Verification: Optional site visits to verify baseline conditions and assess impact plausibility
- Public Consultation Review: Verification that meaningful public participation occurred and concerns were addressed
- Expert Panel Assessment: Multi-disciplinary review by environmental scientists, sectoral experts, and community representatives
- Feasibility Recommendation: Commission determination of "Layak" (Feasible), "Layak dengan Perbaikan" (Feasible with Improvements), or "Tidak Layak" (Not Feasible)
Outcome: Keputusan Kelayakan Lingkungan Hidup (Environmental Feasibility Decision) — binding administrative decision that becomes prerequisite for business licensing.
4.4 UKL-UPL and SPPL Procedures
Pasal 6-7: Simplified Environmental Documentation
Unlike AMDAL's comprehensive assessment process, UKL-UPL and SPPL utilize streamlined administrative procedures reflecting lower environmental risk profiles.
UKL-UPL Process:
- Standardized form completion (Formulir UKL-UPL) covering:
- Activity description and scale
- Potential environmental impacts (checklist-based)
- Management commitments
- Monitoring commitments
- Administrative review (not feasibility assessment)
- Issuance of Pernyataan Kesanggupan Pengelolaan Lingkungan Hidup (Statement of Environmental Management Capability)
- Maximum 20 working day review period
SPPL Process:
- Self-declaration of environmental management capability
- No pre-approval review required
- Immediate processing upon submission
- Verification through operational supervision rather than pre-licensing review
4.5 Administrative Sanctions and Enforcement
Pasal 99: Administrative Sanction Definition
Verbatim Text (Indonesian):
Pasal 1 Ayat (99): Sanksi Administratif adalah perangkat sarana hukum administrasi yang bersifat pembebanan kewajiban/perintah dan/atau penarikan kembali keputusan tata usaha negara yang dikenakan kepada penanggung jawab Usaha dan/atau Kegiatan atas dasar ketidaktaatan terhadap ketentuan yang ditetapkan dalam peraturan perundang-undangan di bidang Perlindungan dan Pengelolaan Lingkungan Hidup serta Perizinan Berusaha atau Persetujuan Pemerintah.
Translation: Administrative Sanctions are administrative legal instruments in the form of imposing obligations/orders and/or withdrawing state administrative decisions imposed on persons responsible for Business and/or Activities based on non-compliance with provisions established in regulations in the field of Environmental Protection and Management and Business Licensing or Government Approval.
Types of Administrative Sanctions:
- Written Warning (Teguran Tertulis): Initial formal notice of non-compliance
- Government Coercion (Paksaan Pemerintah): Mandatory compliance actions including:
- Activity cessation
- Closure of water/sewage discharge channels
- Closure of air pollution sources
- Physical facility demolition - Freezing of Business License: Temporary suspension pending compliance restoration
- Revocation of Business License: Permanent termination for irreparable or repeated violations
Ultimum Remedium Principle: PP 22/2021 explicitly adopts administrative sanctions as primary enforcement mechanism, with criminal prosecution reserved as last resort. This graduated approach prioritizes compliance restoration over punitive measures.
Supervision Framework (Pengawasan):
- Routine compliance inspections
- Document verification (RKL-RPL implementation reports)
- Field monitoring of environmental quality
- Stakeholder complaint investigation
- Performance evaluation against Environmental Approval commitments
5.0 Practical Implications
5.1 For Industrial and Commercial Operators
PP 22/2021 fundamentally alters the compliance timeline and risk profile for business operations with environmental impacts. Key practical implications include:
Pre-Investment Environmental Due Diligence:
- Environmental approval requirements must be assessed before site selection and investment commitments
- Spatial plan conformity (kesesuaian tata ruang) is now an absolute prerequisite — non-conforming locations result in automatic rejection without substantive review
- Protected area proximity triggers AMDAL requirements regardless of activity scale, significantly expanding assessment burdens for certain locations
- Strategic Environmental Assessment (SEA) coverage may provide AMDAL exemptions, incentivizing investment in comprehensively planned zones
Operational Compliance Obligations:
- Environmental approval validity is tied to business license duration, creating automatic expiration upon license termination (Article 3(5))
- RKL-RPL (Management and Monitoring Plans) constitute binding legal commitments subject to administrative sanctions for non-compliance
- Routine supervision includes document verification (implementation reports) and field inspections of environmental quality
- Administrative sanctions operate on graduated escalation from written warnings to license revocation, emphasizing compliance restoration
License Renewal Considerations:
- Article 3(6) allows business license renewal using existing Environmental Approval if activity characteristics remain unchanged
- Significant operational changes (production capacity increases, process modifications, product changes) may trigger new environmental approval requirements
- Documentation of post-operation environmental management is required to close Environmental Approval when ceasing operations (Article 3(7))
5.2 For Government Agencies
Environmental Approval Processing:
- Integration with OSS (Online Single Submission) system requires coordinated processing between environmental agencies and licensing authorities
- Environmental approval issuance timelines (75-105 days for AMDAL, 20 days for UKL-UPL) become critical path items for business licensing
- Authority distribution (central/provincial/district-city) determines processing location and requires clear jurisdictional delineation
Enforcement and Supervision:
- Pejabat Pengawas Lingkungan Hidup (Environmental Supervisory Officials) conduct compliance monitoring covering:
- RKL-RPL implementation verification
- Environmental quality monitoring data review
- Facility inspection
- Complaint investigation
- Administrative sanction imposition requires documented non-compliance and graduated escalation
- Ultimum remedium principle reserves criminal prosecution for severe or repeated violations after administrative sanctions prove ineffective
5.3 For Environmental Consultants and Practitioners
Professional Certification Requirements:
- Article 23(2) mandates AMDAL preparation by certified competency holders
- Certification programs conducted by national certification bodies (LSP - Lembaga Sertifikasi Profesi)
- Ongoing professional development requirements to maintain certification validity
Quality Assurance Obligations:
- AMDAL preparers bear professional responsibility for document quality and accuracy
- Scientific rigor in baseline assessments, impact predictions, and mitigation design subject to peer review during feasibility assessment
- Public consultation facilitation and stakeholder concern integration required for AMDAL validity
5.4 For Affected Communities and Civil Society
Public Participation Rights:
- Mandatory public consultation for all AMDAL processes
- Community input during scoping phase (Kerangka Acuan development) and ANDAL review
- Feasibility review commissions include community representatives
- Access to environmental information through Sistem Informasi Lingkungan Hidup (Environmental Information System)
Enforcement Advocacy:
- Community complaints trigger mandatory investigation by environmental supervisory officials
- Administrative sanction procedures provide formal mechanisms for compliance restoration advocacy
- Public access to RKL-RPL implementation reports enables monitoring of corporate environmental commitments
5.5 Strategic Considerations: OSS Integration and Regulatory Streamlining
PP 22/2021's integration with Indonesia's business licensing reforms creates tension between environmental protection rigor and investment facilitation objectives. Strategic considerations include:
Streamlining vs. Safeguards:
- Environmental approval embedded within business licensing reduces procedural steps but may decrease environmental agency autonomy
- Shortened timelines for environmental review (especially UKL-UPL's 20-day maximum) create pressure for accelerated assessments
- AMDAL exemptions for SEA-covered areas transfer environmental assessment to strategic planning phase, requiring robust SEA implementation to maintain protection standards
Regulatory Consolidation Benefits:
- Single regulation replacing five separate environmental regulations reduces regulatory fragmentation
- Unified standards for water, air, and marine quality enable integrated pollution control
- Coordinated approach to hazardous waste management addresses lifecycle concerns
Implementation Challenges:
- Capacity constraints for environmental agencies processing increased volumes under compressed timelines
- Coordination requirements between environmental agencies, licensing authorities, and spatial planning agencies
- Technology infrastructure for OSS integration and environmental information systems
- Enforcement resource allocation for supervision and sanction imposition
5.6 Sectoral Implications
Natural Resources and Extractive Industries:
- Mining, forestry, and oil/gas operations face stringent AMDAL requirements due to scale and environmental sensitivity
- Protected area proximity creates additional assessment burdens
- Rehabilitation and post-operation environmental management obligations documented in Environmental Approval
Manufacturing and Industrial Facilities:
- Water discharge, air emissions, and hazardous waste generation trigger comprehensive permitting requirements
- Industrial estate location may provide AMDAL exemptions if zone AMDAL exists
- Pollution control technology requirements embedded in RKL-RPL commitments
Infrastructure and Real Estate Development:
- Large-scale developments (>150 ha) require AMDAL
- Spatial plan conformity prerequisite creates alignment between environmental approval and land use planning
- Watershed and protected area considerations influence site suitability
Conclusion
PP 22/2021 represents Indonesia's most comprehensive environmental regulatory modernization in two decades, fundamentally restructuring environmental approval requirements, pollution control frameworks, and administrative enforcement mechanisms. By consolidating five separate regulations and integrating environmental approval into business licensing procedures, the regulation advances streamlined compliance pathways while maintaining stringent environmental protection standards.
Key Regulatory Achievements:
- Universal Environmental Approval Mandate: Article 3's requirement that all activities with environmental impacts (significant or insignificant) obtain environmental approval eliminates historical exemptions and creates comprehensive coverage.
- Three-Tiered Assessment System: The AMDAL-UKL-UPL-SPPL framework provides proportional environmental review rigor matched to impact significance, balancing thorough assessment for high-risk activities with streamlined procedures for lower-risk operations.
- Strategic Planning Integration: AMDAL exemptions for areas covered by comprehensive Strategic Environmental Assessments (SEA) incentivize proactive environmental planning at regional and sectoral levels.
- Graduated Enforcement: The ultimum remedium principle prioritizes administrative sanctions and compliance restoration over criminal prosecution, creating practical enforcement mechanisms focused on environmental improvement rather than purely punitive measures.
- Media-Specific Protection Standards: Distinct frameworks for water, air, and marine quality protection recognize environmental medium characteristics while enabling integrated management approaches.
Implementation Success Factors:
Effective implementation of PP 22/2021 requires sustained attention to:
- Institutional Capacity: Environmental agencies processing environmental approvals within compressed OSS timelines need adequate personnel, technical expertise, and technology infrastructure
- Inter-Agency Coordination: Seamless integration between environmental agencies, licensing authorities, spatial planning agencies, and sectoral ministries
- Public Participation: Meaningful stakeholder engagement in AMDAL processes and access to environmental information
- Enforcement Resources: Adequate supervision capacity and political will to impose administrative sanctions for non-compliance
- Regulatory Predictability: Clear implementing regulations, technical guidelines, and threshold criteria to reduce discretionary interpretation
Looking Forward:
PP 22/2021's success will be measured not by procedural streamlining alone but by tangible environmental quality improvements. The regulation's integration with business licensing creates opportunities for preventive environmental management through careful site selection, technology choices, and operational design. However, compressed assessment timelines and AMDAL exemptions create risks of inadequate impact evaluation if not implemented with rigorous safeguards.
For businesses, the regulation necessitates early environmental due diligence in investment planning, treating environmental approval as a critical path item rather than a post-decision formality. For government, the challenge lies in balancing investment facilitation with environmental protection rigor. For civil society, the regulation provides formal participation rights and enforcement advocacy mechanisms that require active engagement to realize.
PP 22/2021 establishes the regulatory architecture for environmental protection in Indonesia's post-Omnibus Law era. Its effectiveness in advancing both economic development and ecological sustainability will depend on committed implementation by all stakeholders.
References:
- Peraturan Pemerintah Republik Indonesia Nomor 22 Tahun 2021 tentang Penyelenggaraan Perlindungan dan Pengelolaan Lingkungan Hidup, https://peraturan.bpk.go.id/Details/161852/pp-no-22-tahun-2021
- Undang-Undang Nomor 32 Tahun 2009 tentang Perlindungan dan Pengelolaan Lingkungan Hidup (as amended by UU 11/2020)
- Undang-Undang Nomor 11 Tahun 2020 tentang Cipta Kerja
- Lampiran I PP 22/2021: Kawasan Lindung dan Tata Cara Pengecualian
- Salinan PP Nomor 22 Tahun 2021 (official PDF text)
Disclaimer:
This legal analysis is provided for informational purposes only and does not constitute legal advice. Readers should consult qualified legal professionals and refer to official government sources for specific compliance guidance. Environmental approval requirements and administrative procedures may be subject to implementing regulations and technical guidelines issued by the Ministry of Environment and Forestry and regional environmental agencies.
Disclaimer
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