What Groundwater Conservation Zone Requirements Apply Under PERMENESDM 31/2018?
1.0 Introduction and Regulatory Context
Indonesia's groundwater resources face mounting pressure from rapid urbanization, industrial expansion, agricultural intensification, and climate variability. The Ministry of Energy and Mineral Resources Regulation Number 31 of 2018 concerning Guidelines for Designation of Groundwater Conservation Zones (PERMENESDM 31/2018) addresses these challenges by establishing a systematic framework for identifying, designating, and managing areas where groundwater resources require special protection or regulated utilization. Enacted on May 30, 2018, and promulgated on June 4, 2018, this ministerial regulation operationalizes the broader water resource management mandates established under Law Number 11 of 1974 concerning Irrigation, Government Regulation Number 22 of 1982 concerning Water Management Arrangements, and Government Regulation Number 121 of 2015 concerning Water Resources Exploitation.
The regulation represents a fundamental shift in Indonesian groundwater governance by moving from reactive crisis management to proactive conservation planning. Rather than waiting until groundwater depletion or contamination reaches critical levels, PERMENESDM 31/2018 establishes a preventive framework that identifies vulnerable areas, designates protection zones, and implements management measures before irreversible damage occurs. This anticipatory approach recognizes that groundwater depletion is difficult to reverse, aquifer contamination can persist for decades, and land subsidence caused by excessive groundwater extraction may be permanent. By establishing conservation zones before crises emerge, the regulation aims to maintain groundwater sustainability for current and future generations.
The regulatory framework emerges from Indonesia's constitutional and statutory commitments to sustainable natural resource management. Article 33 of the 1945 Constitution establishes that natural resources shall be controlled by the state and utilized for the maximum prosperity of the people. This constitutional principle requires that groundwater management balance current utilization needs against long-term sustainability imperatives. PERMENESDM 31/2018 operationalizes this balance by creating conservation zones where utilization is restricted, protected, or managed according to aquifer capacity and environmental sensitivity.
The regulation's legal foundation rests on Law Number 23 of 2014 concerning Regional Government, as amended by Law Number 9 of 2015. This governance framework establishes that groundwater management responsibilities are distributed across multiple governmental levels, with the central government, provincial governments, and district governments each exercising specific authorities according to the geographic extent and jurisdictional significance of groundwater basins. PERMENESDM 31/2018 implements this hierarchical governance structure by establishing distinct processes for conservation zone designation depending on whether groundwater basins are contained within a single province, span multiple provinces, or cross international boundaries.
Understanding PERMENESDM 31/2018 requires recognition that groundwater conservation zone designation is not merely a technical exercise in hydrogeological classification. Conservation zones have direct regulatory consequences for development approvals, extraction permit availability, land use restrictions, and economic activities. When an area is designated as a groundwater protection zone, certain extractive activities may be prohibited, industrial facilities may face enhanced monitoring requirements, and agricultural practices may require modification to prevent aquifer contamination. The regulation's designation framework thus shapes economic development patterns, investment decisions, and community livelihoods while pursuing environmental sustainability objectives.
2.0 Key Definitions and Scope
The definitional architecture of PERMENESDM 31/2018 establishes the conceptual foundation for Indonesia's groundwater conservation zone system. Article 1 (Pasal 1) provides twenty core definitions that delineate the regulation's scope and establish the terminology framework for zone identification, designation, and management. These definitions are not merely semantic clarifications; they operationalize scientific hydrogeological concepts into legally enforceable administrative categories that determine regulatory obligations and management requirements.
The regulation's primary definitional contribution is its establishment of "Zona Konservasi Air Tanah" (Groundwater Conservation Zone) as a legally operational concept. Article 1(16) defines Zona Konservasi Air Tanah as "zona atau daerah yang ditentukan berdasarkan kesamaan kondisi daya dukung Air Tanah, kesamaan tingkat kerusakan Air Tanah, dan kesamaan pengelolaannya" (a zone or area determined based on similar groundwater carrying capacity conditions, similar groundwater degradation levels, and similar management approaches). This definition establishes three conjunctive criteria that must be considered when designating conservation zones: carrying capacity, degradation status, and management requirements.
The groundwater carrying capacity criterion recognizes that different aquifer systems possess different capacities to support sustainable extraction. Factors affecting carrying capacity include aquifer volume, recharge rates, hydraulic conductivity, storage coefficients, and connections to surface water systems. An aquifer with high recharge rates from abundant precipitation can support greater extraction than an aquifer in arid regions with limited recharge. By basing zone designation on carrying capacity conditions, PERMENESDM 31/2018 ensures that management measures align with actual aquifer capabilities rather than applying uniform restrictions across diverse hydrogeological settings.
The groundwater degradation level criterion acknowledges that aquifer systems exist in different states of depletion or contamination. Some aquifers remain pristine with declining water levels or detectable contamination, while others show significant signs of overexploitation such as falling water tables, saltwater intrusion, or quality deterioration. Conservation zones must reflect these varying degradation levels, with more restrictive management applied to severely degraded systems and preventive measures applied to still-healthy aquifers. This differentiated approach avoids both overregulation of sustainable systems and underprotection of vulnerable ones.
Table 1: Foundational Groundwater Concepts (Pasal 1, Ayat 1-8)
| Indonesian Term | English Translation | Regulatory Definition | Hydrogeological Significance | Management Implication |
|---|---|---|---|---|
| Air Tanah | Groundwater | "air yang terdapat di dalam lapisan tanah atau batuan di bawah permukaan tanah" (water contained within soil layers or rocks below the ground surface) | Defines regulatory jurisdiction to subsurface aquifer systems | Establishes scope of conservation measures to underground water resources |
| Akuifer | Aquifer | "lapisan batuan jenuh Air Tanah yang dapat menyimpan dan meneruskan Air Tanah dalam jumlah cukup dan ekonomis" (water-saturated rock layer that can store and transmit groundwater in sufficient and economical quantities) | Identifies economically significant groundwater-bearing formations | Focuses management on productive aquifer systems with extraction potential |
| Akuifer Tertekan | Confined Aquifer | "Akuifer yang dibatasi di bagian atas dan bawahnya oleh lapisan kedap air" (aquifer bounded above and below by impermeable layers) | Creates artesian pressure conditions; isolated from surface contamination | Requires different management than unconfined aquifers; less vulnerable to surface pollution but more sensitive to overpumping |
| Akuifer Tidak Tertekan | Unconfined Aquifer | "Akuifer yang dibatasi di bagian atasnya oleh muka Air Tanah bebas dan di bagian bawahnya oleh lapisan kedap air" (aquifer bounded above by free water table and below by impermeable layer) | Direct connection to surface allows rapid recharge but also contamination pathways | More vulnerable to surface pollution; requires protection of recharge areas |
| Cekungan Air Tanah | Groundwater Basin | "suatu wilayah yang dibatasi oleh batas hidrogeologik, tempat semua kejadian hidrogeologik seperti proses pengimbuhan, pengaliran, dan pelepasan Air Tanah berlangsung" (region bounded by hydrogeological boundaries where all hydrogeological events such as recharge, flow, and discharge processes occur) | Establishes fundamental management unit based on hydraulic connectivity | Conservation zones must be designated within groundwater basin context |
| Daerah Imbuhan Air Tanah | Groundwater Recharge Area | "daerah resapan air yang mampu menambah Air Tanah secara alamiah pada Cekungan Air Tanah" (infiltration area capable of naturally replenishing groundwater in groundwater basin) | Critical source zones for aquifer recharge | Priority areas for protection; land use restrictions to maintain infiltration capacity |
| Daerah Lepasan Air Tanah | Groundwater Discharge Area | "daerah keluaran Air Tanah yang berlangsung secara alamiah pada Cekungan Air Tanah" (natural groundwater outflow area in groundwater basin) | Springs, seeps, baseflow zones where groundwater emerges | Indicators of aquifer health; reductions signal overextraction |
| Konservasi Air Tanah | Groundwater Conservation | "upaya memelihara keberadaan serta keberlanjutan keadaan, sifat, dan fungsi Air Tanah agar senantiasa tersedia dalam kuantitas dan kualitas yang memadai untuk memenuhi kebutuhan makhluk hidup, baik pada waktu sekarang maupun yang akan datang" (efforts to maintain the existence and sustainability of groundwater condition, character, and function so it remains available in adequate quantity and quality to meet the needs of living beings, both now and in the future) | Establishes intergenerational equity principle | Management must balance current utilization with future availability |
The definition of "Air Tanah" (Groundwater) as "air yang terdapat di dalam lapisan tanah atau batuan di bawah permukaan tanah" (water contained within soil layers or rocks below the ground surface) establishes the regulation's jurisdictional scope. This definition encompasses both shallow groundwater in unconsolidated sediments and deep groundwater in fractured bedrock. It includes both saturated zones where all pore spaces are water-filled and vadose zones where water moves through partially saturated materials. This comprehensive scope ensures that PERMENESDM 31/2018 applies to the full spectrum of subsurface water resources.
The regulation distinguishes between "Akuifer Tertekan" (Confined Aquifer) and "Akuifer Tidak Tertekan" (Unconfined Aquifer), recognizing that these different aquifer types exhibit fundamentally different hydraulic behaviors and require different management approaches. A confined aquifer is "Akuifer yang dibatasi di bagian atas dan bawahnya oleh lapisan kedap air" (aquifer bounded above and below by impermeable layers). This geological configuration creates artesian pressure conditions where water levels in wells may rise above the top of the aquifer. Confined aquifers are generally less vulnerable to surface contamination because impermeable confining layers prevent pollutants from infiltrating directly into the aquifer. However, confined aquifers are more sensitive to overpumping because they have limited storage capacity compared to unconfined systems.
An unconfined aquifer is "Akuifer yang dibatasi di bagian atasnya oleh muka Air Tanah bebas dan di bagian bawahnya oleh lapisan kedap air" (aquifer bounded above by a free water table and below by an impermeable layer). In unconfined aquifers, the water table represents the upper boundary where water pressure equals atmospheric pressure. These aquifers are more vulnerable to surface contamination because pollutants can infiltrate directly through the vadose zone into the saturated aquifer. However, unconfined aquifers typically have greater storage capacity and more direct recharge connections than confined systems.
Table 2: Groundwater Monitoring and Assessment Parameters (Pasal 1, Ayat 9-15)
| Indonesian Term | English Translation | Regulatory Definition | Measurement Application | Regulatory Threshold Function |
|---|---|---|---|---|
| Kondisi Air Tanah | Groundwater Condition | "keadaan Air Tanah pada suatu saat yang mencakup kuantitas dan kualitas Air Tanah dalam suatu sistem Akuifer" (groundwater state at a particular time encompassing groundwater quantity and quality within an aquifer system) | Baseline assessment for zone designation | Determines whether aquifer is healthy, stressed, or degraded |
| Kualitas Air Tanah | Groundwater Quality | "sifat fisika, kandungan kimia, serta kandungan bakteri Air Tanah" (physical properties, chemical content, and bacterial content of groundwater) | Laboratory analysis of water samples | Identifies contamination requiring protection measures |
| Lingkungan Air Tanah | Groundwater Environment | "lingkungan fisik yang terpengaruh oleh Kondisi Air Tanah" (physical environment affected by groundwater condition) | Land subsidence, soil moisture, vegetation health | Detects indirect impacts of groundwater depletion |
| Muka Air Tanah | Groundwater Level | "ketinggian permukaan Air Tanah suatu sistem Akuifer pada suatu lokasi dan waktu tertentu" (elevation of groundwater surface in an aquifer system at a specific location and time) | Well measurements and monitoring network | Declining levels indicate overextraction; basis for restriction triggers |
| Muka Piezometrik | Piezometric Surface | "muka Air Tanah pada Akuifer Tertekan" (groundwater surface in confined aquifer) | Pressure head measurements in confined systems | Pressure declines indicate overpumping in artesian aquifers |
| Muka Freatik | Phreatic Surface/Water Table | "muka Air Tanah pada Akuifer Tidak Tertekan" (groundwater surface in unconfined aquifer) | Depth to water measurements in observation wells | Water table declines indicate depletion in unconfined systems |
| Hidrograf | Hydrograph | "grafik yang menggambarkan hubungan antara kedudukan muka Air Tanah dan waktu" (graph depicting relationship between groundwater level position and time) | Time-series analysis of monitoring data | Identifies trends: declining, stable, or recovering |
The definition of "Kondisi Air Tanah" (Groundwater Condition) as "keadaan Air Tanah pada suatu saat yang mencakup kuantitas dan kualitas Air Tanah dalam suatu sistem Akuifer" (groundwater state at a particular time encompassing groundwater quantity and quality within an aquifer system) establishes that zone designation must consider both quantitative and qualitative factors. Groundwater quantity addresses whether sufficient water volumes exist to meet demand without causing depletion. Groundwater quality addresses whether water chemistry, physical properties, and biological characteristics meet standards for intended uses. An aquifer may have abundant quantity but poor quality, or excellent quality but insufficient quantity. Conservation zones must address whichever parameter limits sustainable utilization.
The regulation defines "Muka Air Tanah" (Groundwater Level) as "ketinggian permukaan Air Tanah suatu sistem Akuifer pada suatu lokasi dan waktu tertentu" (elevation of groundwater surface in an aquifer system at a specific location and time). This definition establishes groundwater levels as dynamic parameters that vary spatially and temporally. Seasonal variations are normal in aquifer systems, with water levels rising during wet seasons and declining during dry seasons. However, long-term declining trends indicate that extraction exceeds recharge, signaling unsustainable utilization requiring conservation measures. Monitoring networks that track groundwater levels over time provide the empirical basis for assessing aquifer conditions and designating conservation zones.
The concept of "Hidrograf" (Hydrograph) as "grafik yang menggambarkan hubungan antara kedudukan muka Air Tanah dan waktu" (graph depicting the relationship between groundwater level position and time) provides the analytical tool for identifying unsustainable extraction patterns. A hydrograph that shows long-term declining trends indicates that the aquifer system is being depleted. A hydrograph that shows stable levels with seasonal fluctuations indicates sustainable extraction. A hydrograph that shows rising levels may indicate reduced extraction or increased recharge. These temporal patterns provide the scientific foundation for determining whether conservation zone designation is necessary and what management measures are appropriate.
Table 3: Conservation Zone Classification Framework (Pasal 1, Ayat 16-18)
| Zone Type | Indonesian Designation | Regulatory Definition | Primary Management Objective | Typical Activities Allowed | Typical Activities Restricted |
|---|---|---|---|---|---|
| Zona Konservasi Air Tanah | Groundwater Conservation Zone (General) | "zona atau daerah yang ditentukan berdasarkan kesamaan kondisi daya dukung Air Tanah, kesamaan tingkat kerusakan Air Tanah, dan kesamaan pengelolaannya" (zone determined based on similar groundwater carrying capacity, similar degradation level, similar management) | Adaptive management based on aquifer condition | Varies according to specific zone subtype designation | Varies according to specific zone subtype designation |
| Zona Perlindungan Air Tanah | Groundwater Protection Zone | "daerah yang karena fungsinya terhadap Air Tanah sangat penting sehingga dilindungi" (area which due to its function for groundwater is very important and therefore protected) | Maintain critical recharge functions; prevent contamination pathways | Limited development; low-intensity agriculture; forest conservation | Industrial activities; intensive groundwater extraction; pollution sources |
| Zona Pemanfaatan Air Tanah | Groundwater Utilization Zone | "daerah yang Air Tanahnya dapat dimanfaatkan seperti kawasan budi daya" (area where groundwater can be utilized such as cultivation zones) | Sustainable extraction for productive uses | Controlled groundwater extraction; agricultural irrigation; municipal supply | Unlimited extraction; activities causing quality degradation |
The distinction between "Zona Perlindungan Air Tanah" (Groundwater Protection Zone) and "Zona Pemanfaatan Air Tanah" (Groundwater Utilization Zone) creates a fundamental regulatory dichotomy. Protection zones prioritize aquifer preservation over extraction, typically designating recharge areas, environmentally sensitive locations, or severely degraded systems requiring recovery. Utilization zones allow controlled extraction where aquifer conditions can support sustainable withdrawals. This binary classification provides the regulatory framework for differentiating management requirements according to hydrogeological conditions and conservation priorities.
3.0 Authority and Designation Process
Article 2 through Article 6 of PERMENESDM 31/2018 establish the procedural framework for groundwater conservation zone designation, including jurisdictional authorities, institutional responsibilities, and collaborative mechanisms. These provisions recognize that Indonesia's groundwater resources are managed through a multi-level governance system where different governmental authorities exercise jurisdiction according to the geographic extent of groundwater basins.
Article 2 establishes the foundational principle that "Zona Konservasi Air Tanah disusun berdasarkan Cekungan Air Tanah yang telah ditetapkan oleh Menteri" (Groundwater Conservation Zones are compiled based on Groundwater Basins established by the Minister). This provision creates a critical linkage between the conservation zone framework established by PERMENESDM 31/2018 and the groundwater basin framework established by PERMENESDM 02/2017 concerning Groundwater Basins in Indonesia. Conservation zones cannot be designated arbitrarily across administrative boundaries; they must be delineated within the hydrogeological boundaries of officially designated groundwater basins.
This requirement ensures scientific coherence in groundwater management. Groundwater basins, as defined by PERMENESDM 02/2017, represent discrete hydrogeological systems where recharge, flow, and discharge processes occur within unified aquifer networks. Conservation zones designated within these basin boundaries can effectively regulate extraction and protection measures because hydrogeological connectivity means that management actions in one portion of the basin affect conditions throughout the system. By requiring basin-based zone designation, Article 2 prevents fragmented management that could undermine conservation effectiveness.
Table 4: Designation Authority and Jurisdictional Hierarchy (Pasal 4 & Pasal 5)
| Groundwater Basin Type | Designation Authority | Proposing Agency | Evaluation Entity | Regulatory Instrument | Coordination Requirements | Reporting Obligations |
|---|---|---|---|---|---|---|
| Inter-Provincial Basins (Cekungan Air Tanah lintas daerah provinsi) | Minister (Menteri) | Head of Geological Agency (Kepala Badan) | Geological Agency (Badan Geologi) | Ministerial Regulation (Peraturan Menteri) | Multi-provincial coordination mechanism; involvement of all affected provincial governments | Annual monitoring reports to Minister |
| Transnational Basins (Cekungan Air Tanah lintas negara) | Minister (Menteri) | Head of Geological Agency (Kepala Badan) | Geological Agency (Badan Geologi) | Ministerial Regulation (Peraturan Menteri) | International coordination with neighboring countries; treaty compliance | Annual reports; international data sharing per bilateral agreements |
| Provincial Basins (Cekungan Air Tanah dalam daerah provinsi) | Governor (Gubernur) | Head of Provincial Agency for Groundwater (Kepala Dinas Daerah Provinsi yang membidangi Air Tanah) | Geological Agency (Badan Geologi) provides evaluation | Provincial Regulation (Peraturan Gubernur) | Internal coordination with regencies/municipalities within province | Report to Minister as information; copy to Geological Agency |
Article 4 establishes the designation procedures for inter-provincial and transnational groundwater basins. Article 4(1) states: "Kepala Badan menyampaikan usulan penetapan Zona Konservasi Air Tanah kepada Menteri" (The Head of the Agency submits a proposal for designation of Groundwater Conservation Zones to the Minister). This provision assigns the Geological Agency (Badan Geologi) primary responsibility for developing conservation zone proposals for basins that cross provincial boundaries or international borders. The Geological Agency's technical expertise in hydrogeology, aquifer characterization, and groundwater monitoring positions it to conduct the scientific assessments necessary for zone designation.
Article 4(2) specifies: "Menteri menetapkan Zona Konservasi Air Tanah pada Cekungan Air Tanah lintas daerah provinsi dan lintas negara" (The Minister designates Groundwater Conservation Zones in inter-provincial and transnational Groundwater Basins). This centralization of designation authority for multi-jurisdictional basins recognizes that coordination across multiple provinces or international boundaries requires national-level decision-making. Provincial governments may have different economic priorities, development pressures, or regulatory preferences that could create conflicts in shared aquifer systems. By vesting designation authority in the Minister for these complex scenarios, PERMENESDM 31/2018 ensures unified management approaches that serve national groundwater conservation objectives.
Article 5 establishes parallel designation procedures for groundwater basins contained entirely within a single province. Article 5(1) states: "Kepala Dinas Daerah Provinsi yang membidangi Air Tanah menyampaikan usulan penetapan Zona Konservasi Air Tanah kepada gubernur setelah dievaluasi oleh Badan Geologi" (The Head of the Provincial Agency responsible for Groundwater submits a proposal for designation of Groundwater Conservation Zones to the governor after evaluation by the Geological Agency). This provision decentralizes designation authority to provincial governments for basins within their jurisdictional boundaries, implementing the regional autonomy principles established by Law Number 23 of 2014.
The requirement that provincial proposals must be "dievaluasi oleh Badan Geologi" (evaluated by the Geological Agency) before gubernatorial designation creates a quality control mechanism. Provincial agencies may lack the technical capacity, hydrogeological expertise, or monitoring infrastructure to conduct rigorous aquifer assessments independently. By requiring Geological Agency evaluation, Article 5(1) ensures that provincial conservation zone proposals meet scientific standards and align with national methodological frameworks. This evaluation requirement balances provincial autonomy with technical quality assurance.
Article 5(2) specifies: "Gubernur menetapkan Zona Konservasi Air Tanah pada Cekungan Air Tanah dalam daerah provinsi" (The Governor designates Groundwater Conservation Zones in Groundwater Basins within provincial territory). This provision grants governors final designation authority for provincial-level basins, subject to Geological Agency evaluation requirements. Gubernatorial designation typically occurs through provincial regulations (Peraturan Gubernur) that have legal force within the province and create binding obligations for district governments, extraction permit applicants, and groundwater users.
Table 5: Collaborative Partnerships and Technical Assistance (Pasal 3 & Pasal 8)
| Partner Category | Indonesian Designation | Examples | Permissible Roles | Mandatory Obligations | Data Ownership |
|---|---|---|---|---|---|
| Government Research Agencies | Kementerian/lembaga penelitian negara/daerah | Ministry of Public Works research institutes; provincial technical agencies | Hydrogeological surveys; aquifer testing; water quality analysis | Data security per regulations; full data submission to Geological Agency or Provincial Agency | State ownership of all data generated through collaboration |
| University Research Institutions | Lembaga penelitian perguruan tinggi | ITB Department of Geology; UGM Hydrogeology Laboratory | Specialized studies; isotope analysis; modeling; academic expertise | Data security per regulations; full data submission to Geological Agency or Provincial Agency | State ownership of all data generated through collaboration |
| Private Entities | Badan usaha | Consulting firms; engineering companies; resource assessment contractors | Technical services under contract; field surveys; laboratory analysis | Data security per regulations; full data submission to Geological Agency or Provincial Agency | State ownership of all data generated through collaboration |
Article 3 recognizes that government agencies may require external technical assistance for conservation zone development. Article 3(1) states: "Dalam melakukan kegiatan penyusunan Zona Konservasi Air Tanah, Badan Geologi dan/atau Dinas Daerah Provinsi yang membidangi Air Tanah dapat bekerja sama dengan pihak lain yang memiliki kompetensi di bidang Air Tanah" (In conducting activities for compilation of Groundwater Conservation Zones, the Geological Agency and/or Provincial Agencies responsible for Groundwater may collaborate with other parties having competence in groundwater fields). This provision authorizes partnerships with entities possessing specialized hydrogeological expertise that may not exist within government agencies.
Article 3(2) identifies three categories of permissible partners: "(a) kementerian/lembaga penelitian negara/daerah; (b) lembaga penelitian perguruan tinggi; dan/atau (c) badan usaha" (government research agencies; university research institutions; and/or private entities). This broad partnership framework allows government agencies to access diverse sources of technical expertise, including academic researchers with specialized analytical capabilities, private consulting firms with field survey resources, and other government agencies with complementary technical competencies.
However, Article 3(3) imposes strict obligations on collaborative partners. Subparagraph (a) requires partners to "menyimpan dan mengamankan data dan informasi hasil kerja sama sesuai dengan ketentuan peraturan perundang-undangan" (store and secure data and information resulting from collaboration in accordance with statutory provisions). This data security requirement prevents unauthorized disclosure of sensitive groundwater information that could affect national security, commercial interests, or regulatory enforcement. Subparagraph (b) mandates that partners "menyerahkan seluruh data dan informasi hasil kerja sama kepada Badan Geologi atau Dinas Daerah Provinsi yang membidangi Air Tanah" (submit all data and information resulting from collaboration to the Geological Agency or Provincial Agencies responsible for Groundwater). This comprehensive data transfer requirement ensures that government retains full access to technical information generated through partnerships.
Article 3(4) addresses provincial collaborations specifically: "Dalam hal Dinas Daerah Provinsi yang membidangi air tanah bekerja sama dengan pihak lain, data dan informasi hasil kerja sama sebagaimana dimaksud pada ayat (3) huruf b dilaporkan kepada Kepala Badan" (In cases where Provincial Agencies responsible for groundwater collaborate with other parties, data and information resulting from collaboration as referred to in paragraph (3) subparagraph b is reported to the Head of the Agency). This reporting requirement creates a centralized national groundwater database administered by the Geological Agency, preventing information fragmentation across provincial jurisdictions.
Article 3(5) unambiguously establishes: "Data dan informasi hasil kerja sama sebagaimana dimaksud pada ayat (4) merupakan data dan informasi milik Negara" (Data and information resulting from collaboration as referred to in paragraph (4) constitutes data and information owned by the State). This state ownership provision prevents private partners or academic institutions from claiming proprietary rights over groundwater data generated through government-funded or government-authorized projects. State ownership ensures that conservation zone development benefits from comprehensive data access without restrictions based on commercial confidentiality or intellectual property claims.
4.0 Periodic Review and Update Requirements
Article 6 of PERMENESDM 31/2018 establishes the temporal framework for conservation zone review and updating, recognizing that groundwater conditions change over time due to extraction patterns, land use changes, climate variability, and recharge dynamics. Article 6(1) mandates: "Zona Konservasi Air Tanah yang telah ditetapkan sebagaimana dimaksud dalam Pasal 4 ayat (2) dan Pasal 5 ayat (2) diperbarui paling lambat 5 (lima) tahun sejak tanggal ditetapkan" (Groundwater Conservation Zones that have been designated as referred to in Article 4 paragraph (2) and Article 5 paragraph (2) shall be updated no later than 5 (five) years from the date of designation).
This five-year review cycle reflects the temporal dynamics of groundwater systems. Aquifer conditions can change significantly over multi-year periods as extraction rates fluctuate, land development alters recharge patterns, or climate variations affect precipitation. A conservation zone designation based on conditions assessed in 2018 may no longer reflect aquifer realities in 2023. By mandating updates every five years, PERMENESDM 31/2018 ensures that conservation measures remain aligned with current hydrogeological conditions rather than becoming outdated based on historical data that no longer represents present circumstances.
Table 6: Periodic Review and Update Framework (Pasal 6)
| Review Requirement | Regulatory Provision | Maximum Interval | Triggering Data | Responsible Authority | Procedural Requirements | Consequences of Non-Compliance |
|---|---|---|---|---|---|---|
| Mandatory Five-Year Update | "diperbarui paling lambat 5 (lima) tahun sejak tanggal ditetapkan" (updated no later than 5 years from designation date) | 5 years from original designation or most recent update | Monitoring data accumulated over review period; hydrograph analysis; water quality trends | Same authority that issued original designation (Minister for inter-provincial/transnational; Governor for provincial) | Follow original designation process including Geological Agency evaluation | Designation becomes outdated; management measures may be inappropriate for current conditions |
| Evaluation-Based Updates | "Pembaruan Zona Konservasi Air Tanah sebagaimana dimaksud pada ayat (2) dilakukan berdasarkan evaluasi data hasil pemantauan" (Updates conducted based on evaluation of monitoring data results) | As warranted by monitoring data showing significant changes | Continuous monitoring networks; declining water levels; quality deterioration; land subsidence | Geological Agency or Provincial Agencies conduct monitoring; same designation authority implements updates | Monitoring data evaluation; hydrogeological reassessment; stakeholder consultation | Failure to respond to degrading conditions may allow irreversible aquifer damage |
Article 6(2) specifies that "Pembaruan Zona Konservasi Air Tanah sebagaimana dimaksud pada ayat (2) dilakukan berdasarkan evaluasi data hasil pemantauan" (Updates of Groundwater Conservation Zones as referred to in paragraph (2) are conducted based on evaluation of monitoring data results). This provision establishes monitoring data as the empirical foundation for update decisions. Rather than conducting updates based on anecdotal observations or stakeholder complaints, formal monitoring networks provide objective, quantitative data on groundwater levels, quality parameters, extraction rates, and environmental indicators.
Monitoring networks typically include observation wells that measure groundwater levels continuously or periodically, sampling programs that analyze water quality parameters, extraction reporting systems that track pumping volumes, and geophysical surveys that detect land subsidence or aquifer compaction. The accumulation of monitoring data over the five-year review period reveals trends that may not be apparent from short-term observations. A hydrograph showing consistent water level declines year after year indicates unsustainable extraction requiring more restrictive conservation measures. Conversely, a hydrograph showing stable or rising levels may justify loosening restrictions in currently over-protected zones.
Article 6(3) clarifies that "Pembaruan Zona Konservasi Air Tanah sebagaimana dimaksud pada ayat (2) dilaksanakan oleh Menteri atau gubernur sesuai dengan kewenangannya" (Updates of Groundwater Conservation Zones as referred to in paragraph (2) are implemented by the Minister or governor according to their respective authorities). This provision ensures that update authority aligns with original designation authority. Conservation zones for inter-provincial or transnational basins designated by the Minister must be updated by the Minister. Conservation zones for provincial basins designated by governors must be updated by governors. This consistency prevents jurisdictional confusion where one governmental level designates zones but another level attempts to modify them.
The update mechanism serves multiple regulatory functions. First, it allows conservation zones to respond to improving conditions. If extraction restrictions successfully restore aquifer levels and water quality, updates can transition zones from highly restrictive protection status to controlled utilization status, supporting economic development while maintaining sustainability. Second, updates can respond to deteriorating conditions by imposing stricter restrictions when initial conservation measures prove insufficient to prevent continued degradation. Third, updates can incorporate new scientific understanding, improved monitoring technologies, or refined hydrogeological models that provide better characterization of aquifer systems than was available during original designation.
Article 8 extends the collaborative partnership framework to the update process: "Dalam melakukan kegiatan pembaruan Zona Konservasi Air Tanah sebagaimana dimaksud dalam Pasal 6, Badan Geologi dan Dinas Daerah Provinsi yang membidangi Air Tanah dapat bekerja sama dengan pihak lain yang memiliki kompetensi di bidang Air Tanah sebagaimana dimaksud dalam Pasal 3" (In conducting update activities for Groundwater Conservation Zones as referred to in Article 6, the Geological Agency and Provincial Agencies responsible for Groundwater may collaborate with other parties having competence in groundwater fields as referred to in Article 3). This provision confirms that the same partnership mechanisms available for original zone designation also apply to periodic updates.
This collaborative framework is particularly important for updates because monitoring data evaluation may require specialized analytical expertise not available within government agencies. Time-series analysis of hydrographs, geostatistical modeling of water quality trends, subsidence interpretation from satellite radar interferometry, or isotope analysis to identify recharge sources may necessitate partnerships with academic researchers or specialized consulting firms. By explicitly authorizing such collaborations for updates, Article 8 ensures that zone revisions benefit from the best available technical expertise.
5.0 Implementation Timeline and Procedural Requirements
Article 7 establishes that "Tata cara penyusunan dan pembaruan Zona Konservasi Air Tanah sebagaimana dimaksud dalam Pasal 4 sampai dengan Pasal 6 tercantum dalam Lampiran yang merupakan bagian tidak terpisahkan dari Peraturan Menteri ini" (Procedures for compilation and updating of Groundwater Conservation Zones as referred to in Articles 4 through 6 are set forth in the Annex which constitutes an inseparable part of this Ministerial Regulation). This provision incorporates the regulation's technical annex (Lampiran) as legally binding procedural requirements with the same force as the regulation's operative articles.
The Lampiran attachment provides detailed technical methodologies for conducting hydrogeological assessments, evaluating aquifer conditions, classifying conservation zones, and preparing designation documentation. While the main regulatory text establishes principles, authorities, and timelines, the Lampiran operationalizes these provisions through specific step-by-step procedures, data requirements, analytical methods, and documentation standards. By incorporating the Lampiran as an inseparable component, Article 7 ensures that conservation zone designation follows standardized, scientifically rigorous procedures rather than ad hoc or inconsistent approaches.
The procedural requirements typically include hydrogeological characterization studies that delineate aquifer geometry, extent, thickness, and hydraulic properties; water balance assessments that quantify recharge, extraction, and discharge components; water quality evaluations that identify contamination sources and extent; capacity assessments that determine sustainable extraction limits; and vulnerability analyses that identify areas sensitive to depletion or contamination. These technical studies generate the empirical foundation for classification decisions regarding whether specific areas should be designated as protection zones, utilization zones, or subdivisions thereof.
Table 7: Implementation Timeline and Compliance Deadlines (Pasal 9 & Pasal 10)
| Milestone | Regulatory Provision | Deadline | Responsible Parties | Required Actions | Compliance Verification |
|---|---|---|---|---|---|
| Initial Zone Designation | "Penetapan Zona Konservasi Air Tanah dilaksanakan oleh Menteri atau gubernur sesuai dengan kewenangannya paling lama 2 (dua) tahun terhitung sejak Peraturan Menteri ini diundangkan" (Designation implemented by Minister or governor according to authority no later than 2 years from regulation promulgation) | By June 4, 2020 (2 years after June 4, 2018 promulgation) | Minister (inter-provincial/transnational basins) and Governors (provincial basins) | Complete hydrogeological assessments; designate conservation zones for all groundwater basins | Publication of designation regulations; boundary maps; management requirements |
| Regulation Effective Date | "Peraturan Menteri ini mulai berlaku pada tanggal diundangkan" (This Ministerial Regulation takes effect on the date of promulgation) | June 4, 2018 | All groundwater management authorities and stakeholders | Immediate compliance with procedural requirements; begin designation process | Legal enforceability from promulgation date |
| First Mandatory Update | Pasal 6(1) five-year review requirement applied to initial designations | By June 4, 2025 (5 years after June 4, 2020 initial designation deadline) | Same authorities that completed initial designations | Evaluate monitoring data; update zone boundaries and classifications as warranted | Publication of updated designations; revised management measures |
Article 9 establishes a two-year implementation deadline: "Penetapan Zona Konservasi Air Tanah dilaksanakan oleh Menteri atau gubernur sesuai dengan kewenangannya paling lama 2 (dua) tahun terhitung sejak Peraturan Menteri ini diundangkan" (Designation of Groundwater Conservation Zones is implemented by the Minister or governor according to their respective authorities no later than 2 (two) years from the date this Ministerial Regulation is promulgated). This provision creates an urgent obligation for governmental authorities to complete initial conservation zone designations across Indonesia's groundwater basins within a compressed timeframe.
The two-year deadline reflects recognition that many Indonesian groundwater systems already exhibit signs of stress or depletion that require immediate conservation measures. Waiting extended periods before implementing protective frameworks would allow continued degradation that becomes increasingly difficult to reverse. The deadline creates pressure on the Geological Agency and provincial agencies to mobilize resources, conduct necessary technical studies, and finalize designation proposals within the specified period.
For inter-provincial and transnational basins, this timeline means the Geological Agency must compile designation proposals and the Minister must issue designation regulations by June 4, 2020 (two years after the regulation's June 4, 2018 promulgation date). For provincial basins, governors must issue designation regulations within the same timeframe. This simultaneous deadline across jurisdictional levels ensures that Indonesia's entire groundwater resource base receives conservation zone protection comprehensively rather than piecemeal.
Article 10 establishes immediate legal effect: "Peraturan Menteri ini mulai berlaku pada tanggal diundangkan" (This Ministerial Regulation takes effect on the date of promulgation). Unlike regulations that specify future effective dates to allow preparatory periods, PERMENESDM 31/2018 became legally binding immediately upon its June 4, 2018 promulgation. This immediate effectiveness means that procedural requirements, collaborative partnership provisions, and designation obligations became enforceable without delay.
The immediate effective date creates several legal consequences. Government agencies must comply with the regulation's collaborative partnership requirements and data ownership provisions for any groundwater studies conducted after June 4, 2018. The Geological Agency and provincial agencies must begin designation processes immediately rather than waiting until the two-year deadline approaches. Stakeholders can begin requesting information about conservation zone designation status and participating in any public consultation processes that agencies conduct as part of zone development.
The combination of immediate legal effect with a two-year designation deadline creates a compressed but urgent implementation schedule. Agencies must quickly mobilize technical resources, access monitoring data, conduct hydrogeological assessments, evaluate aquifer conditions, classify conservation zones, prepare designation documentation, conduct any required stakeholder consultations, and obtain final approval from the Minister or relevant governor. This intensive schedule reflects the regulatory framework's underlying premise that Indonesian groundwater resources require immediate protective measures to prevent irreversible degradation.
Conclusion
PERMENESDM 31/2018 establishes a comprehensive, scientifically-grounded framework for groundwater conservation zone designation and management across Indonesia's diverse hydrogeological settings. The regulation transforms groundwater governance from reactive crisis management to proactive conservation planning by requiring systematic identification of aquifer conditions, classification of management zones, and periodic review to ensure ongoing alignment between regulatory measures and hydrogeological realities. By basing zone designation on groundwater basins rather than administrative boundaries, implementing multi-level governance structures that assign authorities according to basin jurisdictional extent, and mandating five-year review cycles that respond to monitoring data, the regulation creates an adaptive management system capable of sustaining groundwater resources for current and future generations.
The framework's effectiveness depends on implementation capacity including technical expertise for hydrogeological assessment, monitoring infrastructure for data collection, institutional coordination across governmental levels, stakeholder engagement for management legitimacy, and enforcement mechanisms for regulatory compliance. The two-year designation deadline imposed by Article 9 creates urgency for establishing conservation zones across Indonesia's groundwater basins, while the five-year review requirement ensures ongoing responsiveness to changing aquifer conditions. As Indonesia confronts mounting groundwater challenges from urbanization, industrial growth, agricultural intensification, and climate variability, PERMENESDM 31/2018 provides the regulatory architecture necessary for balancing development pressures against resource sustainability imperatives.
Statutory Source: Peraturan Menteri Energi dan Sumber Daya Mineral Republik Indonesia Nomor 31 Tahun 2018 tentang Pedoman Penetapan Zona Konservasi Air Tanah (Ministry of Energy and Mineral Resources Regulation Number 31 of 2018 concerning Guidelines for Designation of Groundwater Conservation Zones). Berita Negara Republik Indonesia Tahun 2018 Nomor 733. Ditetapkan di Jakarta pada tanggal 30 Mei 2018; diundangkan di Jakarta pada tanggal 4 Juni 2018.
Official Legal Source: Permen ESDM No. 31 Tahun 2018 - BPK Legal Database
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