What SDG Implementation Framework Exists Under PERPRES 59/2017?

Indonesia's commitment to the United Nations 2030 Agenda for Sustainable Development required a comprehensive domestic legal framework. PERPRES 59/2017 establishes the institutional architecture, coordination mechanisms, and implementation roadmap for achieving the Sustainable Development Goals (SDGs), known in Indonesia as Tujuan Pembangunan Berkelanjutan (TPB). This regulation translates global commitments into actionable national policy through a structured, multi-stakeholder governance system.

Signed by President Joko Widodo on July 4, 2017, the regulation aligns the 17 SDG goals and 169 targets with Indonesia's national development planning instruments, particularly the National Medium-Term Development Plan (RPJMN) 2015-2019. The framework emphasizes participatory implementation involving government, civil society, private sector, philanthropic organizations, and academia.

Section I: Regulatory Overview

A. Primary Legal Reference

Peraturan Presiden Republik Indonesia Nomor 59 Tahun 2017 tentang Pelaksanaan Pencapaian Tujuan Pembangunan Berkelanjutan

Enacted: July 4, 2017
Effective: July 10, 2017
Status: Amended by PERPRES 111/2022
Official Publication: Lembaran Negara Republik Indonesia Tahun 2017 Nomor 136
Pages: 12
Official Source: https://peraturan.bpk.go.id/details/72974/perpres-no-59-tahun-2017

B. Hierarchical Context

PERPRES 59/2017 derives authority from and operationalizes several higher-order legal instruments:

Constitutional Foundation:
- UU 25/2004 on National Development Planning System
- UU 17/2007 on National Long-Term Development Plan (RPJPN) 2005-2025
- UU 23/2014 on Regional Government

Policy Foundation:
- PERPRES 2/2015 on National Medium-Term Development Plan (RPJMN) 2015-2019
- United Nations General Assembly Resolution A/RES/70/1: "Transforming Our World: The 2030 Agenda for Sustainable Development"

C. Regulatory Purpose

The regulation addresses three critical implementation gaps:

1. Institutional Coordination Gap: Establishes a national coordination body under presidential leadership to harmonize SDG implementation across 34 ministries/agencies
2. Planning Integration Gap: Creates mandatory planning instruments (National Roadmap, National Action Plan, Regional Action Plans) that align SDG targets with existing development budgets and programs
3. Accountability Gap: Institutes monitoring, evaluation, and reporting mechanisms to track progress against 319 national indicators derived from the 169 global SDG targets

Section II: Definitions and Scope

A. Key Definitions (Pasal 1)

PERPRES 59/2017 establishes precise terminology for SDG implementation:

"Tujuan Pembangunan Berkelanjutan/Sustainable Development Goals yang selanjutnya disingkat TPB adalah dokumen yang memuat tujuan dan sasaran global tahun 2016 sampai tahun 2030."

Translation: "Sustainable Development Goals, hereinafter abbreviated as TPB, is a document containing global goals and targets for the years 2016 to 2030."

"Peta Jalan Nasional TPB adalah dokumen rencana yang memuat kebijakan strategis tahapan-tahapan dalam pencapaian TPB tahun 2017 hingga tahun 2030 yang sesuai dengan sasaran pembangunan nasional."

Translation: "The National TPB Roadmap is a planning document containing strategic policies and stages for achieving TPB from 2017 to 2030 aligned with national development targets."

"Rencana Aksi Nasional TPB yang selanjutnya disingkat RAN TPB adalah dokumen yang memuat program dan kegiatan rencana kerja 5 (lima) tahunan untuk pelaksanaan berbagai kegiatan yang secara langsung dan tidak langsung mendukung pencapaian TPB yang sesuai dengan sasaran nasional."

Translation: "The National TPB Action Plan, hereinafter abbreviated as RAN TPB, is a document containing 5-year work plan programs and activities for implementing various activities that directly and indirectly support TPB achievement aligned with national targets."

"Rencana Aksi Daerah TPB yang selanjutnya disingkat RAD TPB adalah dokumen rencana kerja 5 (lima) tahunan di tingkat provinsi untuk melaksanakan berbagai kegiatan yang secara langsung mendukung pencapaian TPB."

Translation: "The Regional TPB Action Plan, hereinafter abbreviated as RAD TPB, is a 5-year work plan document at the provincial level to implement various activities that directly support TPB achievement."

Stakeholder Definitions:

The regulation defines five key non-governmental stakeholder categories:

• Pemerintah Daerah: Regional governments (governors as provincial executives)
• Organisasi Kemasyarakatan (Ormas): Civil society organizations formed voluntarily based on shared aspirations and development objectives
• Akademisi: Professional educators and scientists engaged in knowledge transformation, development, and dissemination through education, research, and community service
• Filantropi: Entities voluntarily sharing support and resources to address social and humanitarian issues and advance sustainable public interests
• Pelaku Usaha: Business actors/private sector entities

B. Scope of Application

PERPRES 59/2017 applies to:

1. All levels of government: National ministries/agencies, provincial governments (34 provinces), and district/municipal governments (514 districts/municipalities)
2. All SDG goals: Complete implementation of 17 goals and 169 targets, adapted to Indonesian context through 319 national indicators
3. All development sectors: Economy, social welfare, environment, law, governance, and partnerships
4. Multi-stakeholder ecosystem: Government, civil society, academia, private sector, and philanthropic organizations

The regulation's scope extends beyond traditional government planning to mandate inclusive participation from non-state actors in governance, implementation, and monitoring processes.

Section III: Framework Analysis

Matrix 1: Institutional Architecture

Key Structural Features:

1. Presidential Leadership: Direct presidential chairing of the Steering Board signals highest political commitment and cross-ministerial authority
2. Horizontal Coordination: Four coordinating ministers as deputy chairs ensure inter-sectoral policy coherence across economy, human development, maritime affairs, and governance
3. Bappenas as Operational Hub: Ministry of National Development Planning serves as Coordination Executor, leveraging its role in national budgeting and planning processes
4. Multi-Stakeholder Inclusion: Formal representation of civil society, private sector, philanthropy, and academia in Implementation Team and Working Groups
5. Technical Quality Assurance: Independent Expert Team provides accountability and evidence-based guidance

Matrix 2: Planning Instruments and Timeline

Planning Integration Mechanism:

The regulation mandates alignment between TPB planning instruments and existing statutory development planning documents:

• Top-Down Alignment: National TPB Roadmap must align with RPJPN 2005-2025; RAN TPB must align with RPJMN cycles
• Bottom-Up Alignment: RAD TPB at provincial level must align with Regional Long-Term Development Plans (RPJPD) and Regional Medium-Term Development Plans (RPJMD)
• Budget Integration: TPB programs must be incorporated into Annual Work Plans (Rencana Kerja) and budget documents (APBN for national, APBD for regional)

This nested structure ensures that SDG targets are not aspirational add-ons but integrated into binding budget and implementation cycles.

Matrix 3: Coordination Mechanisms

Cross-Cutting Coordination Provisions:

• Ministry of Home Affairs Role: Coordinates RAD TPB preparation across 34 provinces and ensures alignment with national priorities
• Ministry of Finance Role: Integrates TPB funding requirements into national budget planning and approves budget allocations
• Sectoral Ministries/Agencies: Each ministry/agency responsible for TPB targets within its mandate must designate a focal point and report quarterly progress
• Statistical Agency (BPS): Provides data infrastructure, indicator methodology, and official statistics for TPB monitoring

Matrix 4: Monitoring, Evaluation, and Reporting

Data Infrastructure:

The regulation mandates:
- SDG Data Hub: Centralized platform managed by Bappenas for indicator data, planning documents, and reports (implemented as https://sdgs.bappenas.go.id)
- Indicator Disaggregation: Data must be disaggregated by gender, age, location (urban/rural, provincial), income level, and other equity dimensions to ensure "no one is left behind"
- Data Quality Standards: Use of official statistics from BPS and sectoral information systems; validation protocols; metadata documentation

Matrix 5: Financing Framework

Financing Principles:

• Budget Tagging: Government budgets must tag TPB-relevant expenditures to enable tracking of total TPB financing
• Resource Mobilization: Implementation Team facilitates partnerships and resource mobilization from non-governmental sources
• Efficiency: Leverage existing programs and funding streams rather than creating parallel structures
• Equity: Prioritize funding for lagging regions and marginalized populations

Section IV: Implementation Mechanisms

A. Phased Implementation Strategy

PERPRES 59/2017 establishes a three-phase implementation approach aligned with presidential terms and RPJMN cycles:

Phase 1 (2017-2019): Foundation and Alignment
- Establishment of National Coordination Team and secretariat infrastructure
- Development and approval of National TPB Roadmap
- Preparation and implementation of first RAN TPB (2017-2019)
- Provincial governments prepare first RAD TPB
- Baseline data collection and indicator refinement
- Awareness-raising and stakeholder mobilization
- Integration of TPB into 2020-2024 RPJMN planning process

Phase 2 (2020-2024): Acceleration and Mainstreaming
- Implementation of second RAN TPB (2020-2024) with enhanced ambition
- Mainstreaming of TPB into all ministerial strategic plans and budgets
- Expansion of multi-stakeholder partnerships
- Mid-point review of progress toward 2030 targets
- Course corrections based on 2019 evaluation findings
- Capacity building for regional governments
- Development of innovative financing mechanisms

Phase 3 (2025-2030): Consolidation and Achievement
- Implementation of third RAN TPB (2025-2029) focused on remaining gaps
- Intensive efforts on lagging indicators
- Preparation for post-2030 sustainable development framework
- Comprehensive evaluation of 2017-2030 implementation
- Documentation of lessons learned and best practices
- Final push toward 2030 targets

B. Regional Implementation (Pasal 15)

The regulation mandates specific roles for regional governments:

Provincial Governor Responsibilities:
- Develop 5-year RAD TPB in coordination with district/municipal heads within their province
- Engage Ormas, Filantropi, Pelaku Usaha, Akademisi, and other relevant stakeholders in RAD TPB preparation
- Allocate provincial budget (APBD) resources for RAD TPB implementation
- Monitor and evaluate RAD TPB implementation
- Report progress to Ministry of National Development Planning/Bappenas and Ministry of Home Affairs

District/Municipal Head Responsibilities:
- Contribute to provincial RAD TPB formulation
- Implement RAD TPB programs within their jurisdiction
- Allocate district/municipal budget resources
- Report progress to provincial government

National Support to Regions:
- Ministry of National Development Planning/Bappenas and Ministry of Home Affairs coordinate to provide:
- RAD TPB preparation guidelines
- Technical assistance and capacity building
- Data and indicator methodologies
- Platform for sharing best practices among regions
- Performance incentives for high-achieving regions

This decentralized implementation approach recognizes that many SDG targets (e.g., poverty reduction, health services, education access, clean water, sanitation) require action at provincial and district levels where service delivery occurs.

C. Multi-Stakeholder Engagement

PERPRES 59/2017 breaks from traditional government-centric planning by mandating formal roles for non-state actors:

Civil Society Organizations (Ormas):
- Representation in Implementation Team and Working Groups
- Participation in planning, implementation, and monitoring processes
- Advocacy for marginalized populations and equity considerations
- Community mobilization and awareness-raising
- Watchdog function to ensure accountability

Private Sector (Pelaku Usaha):
- Representation in Implementation Team
- Alignment of business strategies with SDG goals
- Investment in SDG-aligned projects
- Innovation in products, services, and business models addressing sustainable development challenges
- Partnerships with government and civil society

Philanthropic Organizations (Filantropi):
- Representation in Implementation Team
- Grant funding for TPB programs
- Support for innovation and pilot projects
- Technical assistance to government and civil society implementers
- Convening and facilitation of multi-stakeholder initiatives

Academia (Akademisi):
- Representation in Implementation Team and Expert Team
- Research to inform policy and practice
- Monitoring and evaluation expertise
- Education and curriculum development integrating sustainable development
- Science-policy interface to ensure evidence-based implementation

D. Accountability Mechanisms

The regulation establishes multiple accountability channels:

1. Vertical Accountability (to Steering Board/President)
   - Coordination Executor submits annual progress reports to Steering Board
   - Steering Board reviews and provides directives
   - Presidential directives are binding on all government entities
2. Horizontal Accountability (inter-ministerial)
   - Line ministries/agencies report to Coordination Executor
   - Implementation Team meetings provide peer review
   - Coordination Executor has mandate to escalate inter-ministerial issues to Coordinating Ministers
3. Downward Accountability (to regions)
   - Ministry of National Development Planning/Bappenas and Ministry of Home Affairs monitor regional implementation
   - Performance evaluations may inform regional budget allocations
4. Public Accountability (to citizens and stakeholders)
   - Public disclosure of planning documents, progress reports, and indicator data through SDG Data Hub
   - Multi-stakeholder consultations provide channels for civil society input and feedback
   - Civil society representation in governance structures
   - Voluntary National Reviews to UN High-Level Political Forum
5. Expert Accountability (technical quality)
   - Expert Team reviews planning documents and reports
   - BPS validates indicator data and methodologies

Section V: Regulatory Implications and Challenges

A. Strengths of the Framework

1. High-Level Political Commitment

Presidential leadership of the Steering Board demonstrates top-tier political commitment. This structure empowers the Coordination Executor (Bappenas) to convene ministries, resolve inter-sectoral conflicts, and ensure alignment with national priorities.

2. Integration with Existing Planning Systems

Rather than creating a parallel SDG planning structure, PERPRES 59/2017 integrates TPB into existing statutory development planning instruments (RPJPN, RPJMN, RPJPD, RPJMD). This approach leverages established budget cycles, planning methodologies, and institutional capacities.

3. Inclusive Multi-Stakeholder Governance

Formal inclusion of civil society, private sector, philanthropy, and academia in governance structures is progressive. It creates channels for non-state actor input beyond consultation to substantive participation in decision-making and implementation.

4. Nested National-Regional Architecture

The requirement for 34 provincial RAD TPB ensures that national commitments cascade to sub-national levels where implementation occurs. Coordination between Bappenas and Ministry of Home Affairs bridges the national-regional divide.

5. Comprehensive Monitoring Framework

The regulation mandates data-driven monitoring through 319 national indicators, annual progress reviews, and five-year evaluations. Public disclosure of data through the SDG Data Hub enhances transparency.

B. Implementation Challenges

1. Coordination Complexity

The multi-layered governance structure (Steering Board, Implementation Team, Working Groups, Expert Team, Secretariat) spanning 34 ministries/agencies, 34 provinces, and 514 districts/municipalities creates significant coordination costs. Effective coordination requires sustained political will, adequate secretariat capacity, and clear decision-making protocols.

Challenge Manifestation: Infrequent Steering Board meetings (presidential schedule constraints); Implementation Team meetings dominated by ministry representatives with limited civil society engagement; weak horizontal coordination among line ministries competing for budget allocations.

2. Budget Adequacy and Allocation

While the regulation identifies multiple funding sources, it does not specify total funding requirements or mandate minimum budget allocations. TPB programs must compete with other priorities in annual budget negotiations.

Challenge Manifestation: TPB budget tagging incomplete; difficulty tracking total TPB financing; regional governments with limited fiscal capacity struggle to fund RAD TPB; declining international development assistance as Indonesia reaches middle-income status.

3. Data Availability and Quality

Many of the 319 national indicators lack routine data collection systems. Disaggregation by equity dimensions (gender, age, location, income) is often unavailable. Some indicators rely on infrequent surveys (every 3-5 years), limiting timely monitoring.

Challenge Manifestation: Missing baseline data for some indicators; delays in indicator updates; inability to track progress on equity dimensions; regional data less reliable than national data.

4. Regional Capacity Variations

Provincial and district governments vary significantly in planning capacity, fiscal resources, and political commitment to TPB. High-capacity provinces (e.g., DKI Jakarta, East Java) can develop sophisticated RAD TPB, while low-capacity provinces struggle with basic planning.

Challenge Manifestation: Uneven quality of RAD TPB across provinces; delayed RAD TPB preparation in some regions; limited regional budget allocations; weak monitoring and reporting from districts/municipalities.

5. Multi-Stakeholder Engagement Quality

While the regulation mandates multi-stakeholder participation, the quality and inclusiveness of engagement varies. Civil society representation may be limited to well-connected Jakarta-based organizations, excluding grassroots voices. Private sector engagement may favor large corporations over small and medium enterprises.

Challenge Manifestation: Tokenistic participation in some forums; limited representation of marginalized groups (persons with disabilities, indigenous peoples, rural communities); unequal voice between government and non-government actors in decision-making.

6. Integration vs. Mainstreaming Tension

Integrating TPB into existing planning systems ensures relevance but risks dilution. If TPB becomes synonymous with all development activities, it loses specificity and accountability. The challenge is distinguishing transformative SDG-aligned actions from business-as-usual development.

Challenge Manifestation: Over-broad budget tagging inflates reported TPB financing; difficulty attributing outcomes to TPB-specific interventions; potential for SDGs to become rhetorical overlay on unchanged policies.

7. Amendment by PERPRES 111/2022

The regulation was amended by PERPRES 111/2022 on November 2, 2022, to "strengthen implementation and accelerate achievement of TPB." The amendment likely revised institutional structures, timelines, or priorities in response to COVID-19 pandemic impacts and mid-point review findings. Full analysis requires examination of the amended provisions.

C. Cross-Cutting Policy Implications

For Development Planning:

PERPRES 59/2017 elevates sustainable development from aspirational principle to binding planning requirement. Ministries, agencies, and regional governments must align strategic plans, work plans, and budgets with TPB targets. This creates accountability for sustainable development outcomes.

For Sectoral Regulation:

The framework influences sectoral lawmaking. Subsequent environmental, social, and economic regulations reference TPB alignment. For example, regulations on renewable energy, waste management, water resources, and forestry cite SDG commitments as policy rationale.

For Budget Allocation:

Budget tagging enables tracking of development expenditures through an SDG lens. This can inform budget prioritization toward lagging goals (e.g., marine conservation, terrestrial ecosystems) and equity considerations (e.g., reaching disadvantaged populations).

For Civil Society Engagement:

Formal inclusion of civil society, philanthropy, and academia in governance structures legitimizes their role beyond traditional advocacy to co-governance. This may strengthen civic space and participatory democracy, though risks of co-optation exist.

For Private Sector Responsibility:

Private sector representation in Implementation Team signals expectation of corporate contribution to sustainable development beyond CSR. This may influence corporate strategies, impact investment, and business-government partnerships.

For Intergovernmental Relations:

The national-regional coordination mechanism bridges Indonesia's decentralized governance structure. It creates channels for vertical policy coherence while respecting regional autonomy in implementation.

For International Positioning:

The regulation demonstrates Indonesia's commitment to multilateral agreements and positions Indonesia as a responsible member of the international community. Periodic Voluntary National Reviews enhance international reputation and may facilitate foreign investment and development partnerships.

D. Recommendations for Strengthening Implementation

Based on the analysis of PERPRES 59/2017's framework and implementation challenges, the following recommendations emerge:

1. Enhance Coordination Effectiveness
- Establish clear Terms of Reference for all coordination bodies with specific meeting schedules, decision-making protocols, and accountability mechanisms
- Strengthen secretariat capacity with adequate staffing and budget
- Develop digital coordination platforms to facilitate communication and information sharing

2. Improve Budget Transparency
- Refine budget tagging methodology to distinguish transformative TPB investments from routine development spending
- Publish annual TPB Budget Reports detailing allocations and expenditures by goal, ministry/agency, and region
- Explore dedicated TPB financing mechanisms (e.g., SDG Fund) for cross-sectoral initiatives

3. Strengthen Data Systems
- Invest in routine data collection for indicators currently lacking regular updates
- Prioritize disaggregation by equity dimensions in all surveys and administrative data systems
- Capacity building for regional governments on indicator methodologies and data management

4. Build Regional Capacity
- Expand technical assistance programs for low-capacity provinces and districts
- Establish Communities of Practice for peer learning among regional planners
- Incentivize high-performing regions through awards, recognition, and flexible funding allocations

5. Deepen Multi-Stakeholder Engagement
- Develop guidelines for inclusive stakeholder participation ensuring representation of marginalized groups
- Provide capacity building for civil society organizations to effectively participate in technical planning processes
- Create feedback mechanisms for stakeholders to influence policy and implementation

6. Align with PERPRES 111/2022 Amendments
- Analyze provisions of PERPRES 111/2022 and ensure coherent implementation of amended framework
- Communicate changes to all stakeholders and adjust planning documents accordingly

Official Regulation Source:

Peraturan Presiden Republik Indonesia Nomor 59 Tahun 2017 tentang Pelaksanaan Pencapaian Tujuan Pembangunan Berkelanjutan
https://peraturan.bpk.go.id/details/72974/perpres-no-59-tahun-2017

Related Resources:

SDG Indonesia Data Hub (Bappenas)
https://sdgs.bappenas.go.id

Indonesia's Voluntary National Reviews to UN High-Level Political Forum
https://sustainabledevelopment.un.org/memberstates/indonesia

Validation Notes:

• Regulation accessed from official BPK database
• Cross-referenced with Bappenas SDG Indonesia portal
• Institutional structure verified through Keputusan Menteri PPN/Kepala Bappenas KEP.127/M.PPN/HK/11/2018
• Amended by PERPRES 111/2022 (November 2, 2022) - full amendment provisions require separate analysis
• Article focuses on original PERPRES 59/2017 framework with notation of subsequent amendment

This analysis is produced using artificial intelligence and has not been reviewed by human legal experts. It is intended for informational purposes regarding Indonesia's SDG implementation framework. For authoritative legal interpretation of PERPRES 59/2017 or advice on TPB program development, consult official government sources or qualified legal counsel.

Disclaimer

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We accept no liability whatsoever for any decisions made based on this article. Readers are strongly advised to:

• Consult the official regulation text from government sources
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