What River and Lake Setback Requirements Apply Under PERMENPUPR 28/2015?
1.0 Regulatory Foundation: Protection Zones for Rivers and Lakes
On May 25, 2015, Indonesia's framework for protecting rivers and lakes fundamentally changed through PERMENPUPR 28/2015. Pasal 3 establishes the regulation's purpose: "Penetapan garis sempadan sungai dan garis sempadan danau dimaksudkan sebagai upaya agar kegiatan perlindungan, penggunaan, dan pengendalian atas sumber daya yang ada pada sungai dan danau dapat dilaksanakan sesuai dengan tujuannya, agar fungsi sungai dan danau tidak terganggu oleh aktifitas yang berkembang di sekitarnya" (Determination of river and lake setback lines is intended as an effort so that protection, use, and control activities of resources in rivers and lakes can be implemented according to their purposes, so that river and lake functions are not disturbed by surrounding activities). This regulation replaced the 1993 framework under Peraturan Menteri PU 63/1993, introducing a more structured approach to water resource protection.
The regulation defines "Garis Sempadan Sungai" (River Setback Line) as "garis maya di kiri dan kanan palung sungai yang ditetapkan sebagai batas perlindungan sungai" (imaginary line on the left and right of the river channel established as a river protection boundary). This invisible boundary creates mandatory protection zones where construction and certain activities are prohibited. The regulation governs five distinct types of waterways: non-embanked rivers in urban areas, non-embanked rivers in non-urban areas, embanked rivers in urban areas, embanked rivers in non-urban areas, and lakes. Each type triggers different setback distance requirements based on depth, location, and infrastructure characteristics (see Matrix 1.1 below). Understanding these distinctions is essential because setback violations can result in forced demolition of structures, development permit denials, and exposure to flood risk.
Matrix 1.1: Key Definitions Under PERMENPUPR 28/2015
| No. | Term | Indonesian Term | Definition | Article Reference |
|---|---|---|---|---|
| 1.1 | River | Sungai | Natural and/or artificial water channel including water network from upstream to downstream, bounded left and right by setback lines | Pasal 1(1) |
| 1.2 | River Setback Line | Garis Sempadan Sungai | Imaginary line on left and right of river channel established as river protection boundary | Pasal 1(2) |
| 1.3 | Lake | Danau | Part of river with width and depth naturally far exceeding other sections of the river | Pasal 1(3) |
| 1.4 | Floodplain Lake | Danau paparan banjir | Natural water reservoir part of river whose water level is directly affected by river water level | Pasal 1(4) |
| 1.5 | Flood | Banjir | Event of river water overflowing beyond the river channel | Pasal 1(6) |
2.0 River Setback Framework: Four Categories Based on Location and Infrastructure
Pasal 4(2) establishes four distinct categories of river setbacks: "Garis sempadan sebagaimana dimaksud pada ayat (1) terdiri atas garis sempadan pada: (a) sungai tidak bertanggul di dalam kawasan perkotaan; (b) sungai tidak bertanggul di luar kawasan perkotaan; (c) sungai bertanggul di dalam kawasan perkotaan; dan (d) sungai bertanggul di luar kawasan perkotaan" (Setback lines as referred to in paragraph (1) consist of setback lines on: (a) non-embanked rivers in urban areas; (b) non-embanked rivers in non-urban areas; (c) embanked rivers in urban areas; and (d) embanked rivers in non-urban areas). This four-part framework recognizes that flood risk, development pressure, and infrastructure presence vary significantly between urban and rural contexts, and between rivers with and without flood control embankments.
The regulation defines "Sempadan sungai" (River setback) in Pasal 4(1) as "ruang di kiri dan kanan palung sungai di antara garis sempadan dan tepi palung sungai untuk sungai tidak bertanggul, atau di antara garis sempadan dan tepi luar kaki tanggul untuk sungai bertanggul" (space on the left and right of the river channel between the setback line and the edge of the river channel for non-embanked rivers, or between the setback line and the outer edge of the embankment base for embanked rivers). For embanked rivers, the setback is measured from the outer edge of the embankment base, not from the water's edge, providing additional protection for flood control infrastructure. For non-embanked rivers, measurement begins at the channel edge itself. The four categories reflect Indonesia's dual challenge of protecting densely developed urban waterways while preserving natural river functions in less developed areas (see Matrix 2.1 below).
Matrix 2.1: Four River Setback Categories Under Pasal 4
| No. | Category | Location | Infrastructure | Measurement Point | Article Reference |
|---|---|---|---|---|---|
| 2.1 | Category 1 | Urban areas | Non-embanked | From river channel edge | Pasal 4(2)(a) |
| 2.2 | Category 2 | Non-urban areas | Non-embanked | From river channel edge | Pasal 4(2)(b) |
| 2.3 | Category 3 | Urban areas | Embanked | From outer embankment base | Pasal 4(2)(c) |
| 2.4 | Category 4 | Non-urban areas | Embanked | From outer embankment base | Pasal 4(2)(d) |
3.0 Urban River Setbacks: Depth-Based Distance Requirements
Pasal 5 establishes graduated setback distances for non-embanked urban rivers based on channel depth. For rivers with "kedalaman sungai kurang dari atau sama dengan 3 (tiga) meter" (river depth less than or equal to 3 meters), the setback is "paling sedikit berjarak 10 (sepuluh) meter dari tepi kiri dan kanan palung sungai sepanjang alur sungai" (at least 10 meters from the left and right edges of the river channel along the river course). For rivers with "kedalaman sungai lebih dari 3 (tiga) meter sampai dengan 20 (dua puluh) meter" (river depth greater than 3 meters up to 20 meters), the setback increases to "paling sedikit berjarak 15 (lima belas) meter" (at least 15 meters). For the deepest urban rivers with "kedalaman sungai lebih dari 20 (dua puluh) meter" (river depth greater than 20 meters), the setback extends to "paling sedikit berjarak 30 (tiga puluh) meter" (at least 30 meters).
This depth-based approach recognizes that deeper rivers carry greater flood volumes and require wider protection zones. The 10-meter minimum for shallow urban streams balances flood protection with urban land constraints, while the 30-meter requirement for major urban rivers like Jakarta's Ciliwung River provides space for flood conveyance and emergency access. Pasal 7 addresses embanked urban rivers separately, requiring "paling sedikit berjarak 3 (tiga) meter dari tepi luar kaki tanggul sepanjang alur sungai" (at least 3 meters from the outer edge of the embankment base along the river course). This reduced setback for embanked rivers reflects the flood protection already provided by the embankment structure itself (see Matrix 3.1 below).
Matrix 3.1: Urban River Setback Distances Under Pasal 5 and Pasal 7
| No. | River Type | Depth Criteria | Minimum Setback Distance | Measurement Point | Article Reference |
|---|---|---|---|---|---|
| 3.1 | Non-embanked urban | ≤ 3 meters | 10 meters from each bank | River channel edge | Pasal 5(a) |
| 3.2 | Non-embanked urban | > 3 meters to ≤ 20 meters | 15 meters from each bank | River channel edge | Pasal 5(b) |
| 3.3 | Non-embanked urban | > 20 meters | 30 meters from each bank | River channel edge | Pasal 5(c) |
| 3.4 | Embanked urban | Any depth | 3 meters from each side | Outer embankment base | Pasal 7 |
4.0 Non-Urban River and Lake Setbacks: Uniform Distance Standards
Pasal 6 establishes a uniform setback for all non-embanked rivers outside urban areas: "Garis sempadan pada sungai tidak bertanggul di luar kawasan perkotaan sebagaimana dimaksud dalam Pasal 4 ayat (2) huruf b, ditentukan paling sedikit berjarak 100 (seratus) meter dari tepi kiri dan kanan palung sungai sepanjang alur sungai" (Setback lines on non-embanked rivers outside urban areas as referred to in Article 4 paragraph (2) letter b, are determined at least 100 meters from the left and right edges of the river channel along the river course). This 100-meter standard applies regardless of river depth, reflecting the regulation's priority on preserving natural river functions in less developed areas where land availability is not a constraint.
For embanked rivers in non-urban areas, Pasal 8 requires "paling sedikit berjarak 5 (lima) meter dari tepi luar kaki tanggul sepanjang alur sungai" (at least 5 meters from the outer edge of the embankment base along the river course), slightly wider than the 3-meter urban standard to accommodate agricultural access and maintenance equipment. Pasal 12 addresses lakes with a single uniform requirement: "Garis sempadan danau ditentukan mengelilingi danau paling sedikit berjarak 50 (lima puluh) meter dari tepi air tertinggi yang pernah terjadi" (Lake setback lines are determined surrounding the lake at least 50 meters from the highest water edge that has ever occurred). This 50-meter lake setback is measured from historical high-water marks, not current water levels, ensuring protection even during drought periods. Pasal 11 establishes the widest setback for springs: "Garis sempadan mata air ditentukan mengelilingi mata air paling sedikit berjarak 200 (dua ratus) meter dari pusat mata air" (Spring setback lines are determined surrounding the spring at least 200 meters from the center of the spring), protecting critical groundwater recharge zones (see Matrix 4.1 below).
Matrix 4.1: Non-Urban River, Lake, and Spring Setback Distances
| No. | Waterway Type | Location | Minimum Setback Distance | Measurement Point | Article Reference |
|---|---|---|---|---|---|
| 4.1 | Non-embanked river | Non-urban areas | 100 meters from each bank | River channel edge | Pasal 6 |
| 4.2 | Embanked river | Non-urban areas | 5 meters from each side | Outer embankment base | Pasal 8 |
| 4.3 | Lake | Any location | 50 meters surrounding | Historical high-water mark | Pasal 12 |
| 4.4 | Spring | Any location | 200 meters surrounding | Spring center point | Pasal 11 |
5.0 Special Provisions: Tidal Rivers, Floodplains, and Embankment Protection
Pasal 10 addresses rivers affected by tidal fluctuations: "Penentuan garis sempadan sungai yang terpengaruh pasang air laut dilakukan dengan cara yang sama dengan penentuan garis sempadan sungai sesuai Pasal 5, Pasal 6, Pasal 7, dan Pasal 8 yang diukur dari tepi muka air pasang rata-rata" (Determination of setback lines for rivers affected by tidal sea water is carried out in the same manner as the determination of river setback lines according to Articles 5, 6, 7, and 8, measured from the edge of the average tidal water surface). This provision extends the regulation's framework to coastal and estuarine rivers, using average high tide as the measurement baseline rather than low tide or mean water level.
Pasal 9 introduces the concept of "bantaran sungai" (river floodplain): "Dalam hal di dalam sempadan sungai terdapat tanggul untuk mengendalikan banjir, ruang antara tepi palung sungai dan tepi dalam kaki tanggul merupakan bantaran sungai, yang berfungsi sebagai ruang penyalur banjir" (In the case that within the river setback there is an embankment for flood control, the space between the edge of the river channel and the inner edge of the embankment base is the river floodplain, which functions as a flood conveyance space). This floodplain zone is distinct from the setback zone and serves specifically for flood conveyance during high-water events.
Pasal 22 protects embankment integrity through three specific prohibitions: "(a) menanam tanaman selain rumput; (b) mendirikan bangunan; dan (c) mengurangi dimensi tanggul" (planting vegetation other than grass; constructing buildings; and reducing embankment dimensions). The prohibition on trees and shrubs prevents root systems from compromising embankment stability, while the building ban ensures flood control infrastructure remains accessible for inspection and emergency repairs. These prohibitions apply specifically to embanked river setbacks where flood control infrastructure exists (see Matrix 5.1 below).
Matrix 5.1: Special Provisions and Prohibitions
| No. | Provision Type | Application | Key Requirement | Article Reference |
|---|---|---|---|---|
| 5.1 | Tidal rivers | Rivers affected by sea tides | Apply standard setbacks measured from average high tide | Pasal 10 |
| 5.2 | Floodplain definition | Embanked rivers | Space between channel and inner embankment functions as flood conveyance | Pasal 9 |
| 5.3 | Vegetation prohibition | Embanked river setbacks | Only grass permitted; trees and shrubs prohibited | Pasal 22(a) |
| 5.4 | Building prohibition | Embanked river setbacks | No structures permitted in setback zone | Pasal 22(b) |
| 5.5 | Embankment alteration | Embanked river setbacks | Reduction of embankment dimensions prohibited | Pasal 22(c) |
Official Source
Peraturan Menteri Pekerjaan Umum dan Perumahan Rakyat Nomor 28/PRT/M/2015 Tahun 2015 tentang Penetapan Garis Sempadan Sungai dan Garis Sempadan Danau
https://peraturan.bpk.go.id/Details/159992/permen-pupr-no-28prtm2015-tahun-2015
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