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Peraturan Pemerintah 23/2021Regulation
Full titlePeraturan Pemerintah Nomor 23 Tahun 2021 tentang Penyelenggaraan Kehutanan
CitationPP 23/2021; Lembaran Negara 2021 No. 33, Tambahan Lembaran Negara No. 6635
JurisdictionIndonesia
Enacted byPresident of Indonesia
Signed2 February 2021
Promulgated2 February 2021
Effective2 February 2021
ImplementsPasal 36 and Pasal 185 huruf b of Undang-Undang 11/2020 on job creation; "UU 41/1999"
ReplacesPP 44/2004; PP 104/2015; PP 24/2010; PP 6/2007; PP 35/2002; PP 51/1998; parts of PP 45/2004 and PP 72/2010

Peraturan Pemerintah 23/2021 (Peraturan Pemerintah Nomor 23 Tahun 2021 tentang Penyelenggaraan Kehutanan) is an Indonesian government regulation on the organisation of forestry. Issued under the job-creation law of 2020, it consolidates into one instrument the rules implementing Law 41/1999 on forestry on forest planning, changes to the allocation and function of forest areas, the use of forest areas for non-forestry purposes, forest structuring, management planning and utilisation, social forestry, forest protection, supervision and administrative sanctions.[1][2] It was signed by President Joko Widodo and promulgated on 2 February 2021, taking effect the same day.[3][4] It is the central implementing regulation of forestry and land use regulation in Indonesia.

The regulation replaced the minimum share of forest area that its predecessor on forest planning had required with a standard of adequate forest area and forest cover for each watershed, island or province, set by the minister.[5][6] It permits forest area boundaries to be fixed as virtual lines on maps, allows the release of forest areas for national strategic projects, food and energy estates and agrarian reform, lists the non-forestry activities for which forest areas may be used, and recognises five forms of social forestry, including customary forest.[7][8][9][10]

On entry into force it revoked eight earlier government regulations on forestry, in whole or in part, while keeping their implementing rules in force so far as they are consistent with it.[11] CRPG's regulatory tracker published two analyses of it on 26 November 2025.[12][13]

Background

The preamble states that the regulation implements Pasal 36 and Pasal 185 huruf b of Law 11/2020 on job creation, which amended the forestry law, and cites Law 41/1999, as amended by Law 19/2004, as a legal basis.[1:1] The general elucidation explains that the government regulations implementing the forestry law needed changing to improve the investment climate, accelerate national strategic projects and make it easier to obtain land, in particular forest land. Among the changes it names are the replacement of the 30 per cent share of forest area to be maintained in each watershed or island under Government Regulation 44/2004, which it describes as often seen as hindering land acquisition, with a standard of adequate forest area and cover, and the acceleration of forest area gazettement through geographic or satellite coordinates and remote sensing.[5:1]

Pasal 2 lists the eight matters the regulation governs, which correspond to its chapters: forest planning; changes to the allocation and function of forest areas; use of forest areas; forest structuring, management planning and utilisation; social forestry; forest protection; supervision; and administrative sanctions.[2:1]

Forest planning

Forest planning comprises forest inventory, the gazettement of forest areas, the allocation of forest area functions, the formation of forest management regions and the preparation of forest plans, supported by forestry maps and numerical data.[14] Inventory is carried out at national, provincial, watershed and forest management unit level, and covers state forest, customary forest and forest subject to rights.[14:1] Gazettement is carried out by the minister to give legal certainty over the status, function, location, boundaries and extent of forest areas; forest area comprises state forest and customary forest.[15]

Boundary marking follows a sequence of trace plans, temporary markers, announcement, settlement of third-party rights, permanent markers, mapping and minutes. For strategic areas (national strategic programmes, national economic recovery, food and energy estates, and land for agrarian reform) a shortened sequence applies, to be completed within two years of the approval of release or use, and a boundary may be fixed virtually on a map drawn from imagery.[7:1] Management regions are formed at provincial level and at the level of forest management units.[16]

Under Pasal 41, the minister sets and maintains an adequate extent of forest area and forest cover, taking account of the physical and geographic conditions of watersheds, islands or provinces, their biogeophysical character, environmental carrying capacity, watershed characteristics and biodiversity. Forest cover includes cover outside forest areas, regional governments must maintain forest that is important for environmental protection, and the minister's determination serves as direction for spatial planning.[6:1]

Changes of allocation and function

The minister decides changes to the allocation (perubahan peruntukan) and to the function (perubahan fungsi) of forest areas on the basis of integrated research.[17] A partial change of allocation takes place through the release (pelepasan) of forest area, which is in principle limited to unproductive convertible production forest. Release for national strategic projects, national economic recovery, food and energy estates, disaster needs, agrarian reform, and businesses already built and licensed in forest areas before the job-creation law may also take place in convertible or permanent production forest.[8:1]

Changes of function aim to stabilise and optimise the function of forest areas, may be partial or province-wide, and may move an area between the three main functions (conservation, protection and production) or within a function.[18] The procedure had earlier been governed by Government Regulation 10/2010, under which Permenhut 34/2010 was made, and by 2021 by Government Regulation 104/2015, which Pasal 301 revoked.[19][20] Transitional provisions keep earlier designations valid and treat limited production forest as permanent production forest.[21]

Use of forest areas

Use of forest areas (penggunaan kawasan hutan) allows part of a forest area to serve development outside forestry, only in production and protection forest and without changing the main function of the area.[22] It is limited to activities with strategic purposes that cannot be avoided: among them religious facilities, mining, power generation and transmission and renewable energy, telecommunications, public roads, toll roads and railways, dams, irrigation, drinking water and sanitation channels, public facilities, non-forestry industry, defence, disaster shelters, and waste disposal and treatment facilities.[9:1] Open-pit and underground mining may take place in production forest; in protection forest only underground mining is allowed, and it must not cause land subsidence, a permanent change of function or damage to aquifers unless the environmental documents assess those impacts and set out mitigation.[23] The minister may also designate forest areas for special purposes, special management or food security.[24]

Management and utilisation

Forest structuring (tata hutan) divides forest areas into blocks by ecosystem, type, function and utilisation plan, and blocks into compartments.[25] Utilisation aims at optimal, fair and sustainable benefits and takes four forms: use of the area, use of environmental services, use of timber and non-timber products, and the collection of timber and non-timber products. It takes place under a forest utilisation business permit (perizinan berusaha pemanfaatan hutan) or through social forestry, in protection, production or conservation forest; permits are subject to performance assessment against sustainable forest management standards set by the minister.[26] In protection forest, utilisation is confined to use of the area, environmental services and the collection of non-timber products in the utilisation block.[27]

Social forestry

Social forestry (perhutanan sosial) in state forest and customary forest aims at forest sustainability, community welfare and environmental balance, through approvals, recognition and capacity building for communities.[28] It takes five forms: village forest (hutan desa), community forest (hutan kemasyarakatan), community plantation forest (hutan tanaman rakyat), customary forest (hutan adat) and forestry partnership (kemitraan kehutanan), which in conservation forest takes the form of conservation partnership. Village and community forests and partnerships may be granted in protection forest, and all but customary forest in production forest.[10:1] Management covers area planning with ten-year and annual plans, business development, the handling of tenurial conflicts, assistance and environmental partnerships.[29]

Customary forest may originate from state forest or from land outside it, may have a conservation, protection or production function, and is managed by the customary law community (masyarakat hukum adat). The existence of a community within state forest is confirmed by regional regulation, and outside it by regional regulation or by decision of the governor, regent or mayor.[30] Forestry partnerships are agreed between local communities and a state forestry enterprise or permit holder, last as long as the underlying permit, and do not transfer the holder's authority.[31] Funding comes from the national and regional budgets and other lawful sources.[32]

Protection, supervision and sanctions

Forest protection forms part of forest management and applies in management regions, forest subject to rights, the work areas of permits and approvals, and areas outside forest areas needed for environmental carrying capacity. It is carried out by the central and regional governments, state forestry enterprises, right holders and permit holders within their areas, with the aims of preventing damage (including to landscapes, endemic species, high conservation value areas, wildlife corridors and mangroves), upholding rights over forests and restoring the environment.[33] The minister or governor supervises compliance with forestry permits and approvals under norms, standards, procedures and criteria set by the minister.[34]

The minister or governor applies administrative sanctions to holders of permits or approvals who breach them or the forestry laws; regional heads may sanction holders of permits they issued before the job-creation law, and the minister may act if they do not.[35] Sanctions vary by chapter: the holder of a forest area release approval who breaches its terms faces freezing or revocation, and the holder of a forest area use approval faces a written warning, freezing or revocation.[36]

Revocations

Pasal 301 revoked Government Regulations 44/2004 on forest planning, 104/2015 on changes to the allocation and function of forest areas, 24/2010 on the use of forest areas (as last amended in 2015), 6/2007 on forest structuring, management planning and utilisation (as amended in 2008), 35/2002 on the reforestation fund (as amended in 2007) and 51/1998 on forest resource provision, and parts of Government Regulations 45/2004 on forest protection and 72/2010 on the state forestry company. Pasal 300 kept the implementing regulations of those instruments in force so far as they do not conflict with the new regulation.[11:1]

See also

Part of a series on Forestry and land use regulation in Indonesia
Permenhut 1/2026 · Permenhut 2/2026 · Permenhut 28/2025 · Permenhut 32/2009 · Permenhut 34/2010 · Permenhut 37/2010 · Permenhut 4/2026 · Permenhut 5/2025 · Permenhut 5/2026 · Permenhut 56/2008 · Permenhut 6/2026 · Permenhut 7/2026 · Permenhut 8/2026 · Permenhut 85/2014 · Permenhut 9/2026 · PMK 63/2026 · Permen LHK 10/2022 · Permen LHK 105/2018 · Permen LHK 14/2017 · Permen LHK 16/2020 · Permen LHK 83/2016 · Permen LHK 9/2021 · PP 22/2021 · PP 23/2021 · PP 26/2025 · PP 46/2017 · PP 8/2026 · Perpres 123/2024 · Perpres 175/2024 · Perpres 176/2024 · Perpres 23/2024 · Perpres 3/2016 · Perpres 85/2024 · UU 41/1999
Identifiers Know ID K191 · Work URI /akn/id/act/pp/2021/23 · RegVault PP_23_2021
Categories Government regulations of Indonesia · Forestry in Indonesia · Environmental law of Indonesia
What links here (13)

References

  1. [P] PP 23/2021, preamble, Menimbang (implementing Pasal 36 and Pasal 185 huruf b of Undang-Undang Nomor 11 Tahun 2020 tentang Cipta Kerja) and Mengingat angka 2 and 3. regulation_id PP_23_2021. ↩︎ ↩︎

  2. [P] PP 23/2021, Pasal 2. regulation_id PP_23_2021. ↩︎ ↩︎

  3. [P] PP 23/2021, Pasal 302 and closing formula (Ditetapkan di Jakarta pada tanggal 2 Februari 2021, signed by President Joko Widodo; Diundangkan di Jakarta pada tanggal 2 Februari 2021; Lembaran Negara 2021 No. 33). regulation_id PP_23_2021. ↩︎

  4. [P] PP 23/2021, Lembaran Negara header (No. 33, 2021 ... Penjelasan dalam Tambahan Lembaran Negara Republik Indonesia Nomor 6635). regulation_id PP_pp23-2021bt. ↩︎

  5. [P] PP 23/2021, general elucidation (Penjelasan Umum), numbered paragraph 1 on Peraturan Pemerintah Nomor 44 Tahun 2004. regulation_id PP_23_2021. ↩︎ ↩︎

  6. [P] PP 23/2021, Pasal 41 ayat (1) to (11). regulation_id PP_23_2021. ↩︎ ↩︎

  7. [P] PP 23/2021, Pasal 19 ayat (1) to (7). regulation_id PP_23_2021. ↩︎ ↩︎

  8. [P] PP 23/2021, Pasal 58 ayat (1) to (5). regulation_id PP_23_2021. ↩︎ ↩︎

  9. [P] PP 23/2021, Pasal 91 ayat (1) and (2). regulation_id PP_23_2021. ↩︎ ↩︎

  10. [P] PP 23/2021, Pasal 204 ayat (1) to (5). regulation_id PP_23_2021. ↩︎ ↩︎

  11. [P] PP 23/2021, Pasal 300 and 301. regulation_id PP_23_2021. ↩︎ ↩︎

  12. [E] "What Comprehensive Forestry Implementation Standards Apply Under PP 23/2021?", CRPG regulatory tracker, crpg.id, 26 November 2025. https://crpg.id/what-comprehensive-forestry-implementation-standards-apply-under-pp-23-2021/ (free sign-in required on crpg.id) The post carries a notice that it is AI-generated; it is cited for the record of the development, not for its legal content. ↩︎

  13. [E] "What Forestry Governance Framework Exists Under PP 23/2021?", CRPG regulatory tracker, crpg.id, 26 November 2025. https://crpg.id/what-forestry-governance-framework-exists-under-pp-23-2021/ (free sign-in required on crpg.id) The post carries a notice that it is AI-generated; it is cited for the record of the development, not for its legal content. ↩︎

  14. [P] PP 23/2021, Pasal 3 and 4. regulation_id PP_23_2021. ↩︎ ↩︎

  15. [P] PP 23/2021, Pasal 14 and 15. regulation_id PP_23_2021. ↩︎

  16. [P] PP 23/2021, Pasal 33 and 34. regulation_id PP_23_2021. ↩︎

  17. [P] PP 23/2021, Pasal 53, 54 and 55. regulation_id PP_23_2021. ↩︎

  18. [P] PP 23/2021, Pasal 75, 76 and 77. regulation_id PP_23_2021. ↩︎

  19. [P] Peraturan Menteri Kehutanan Nomor P.34/Menhut-II/2010 tentang Tata Cara Perubahan Fungsi Kawasan Hutan, Menimbang (implementing Pasal 43 ayat (3) of Peraturan Pemerintah Nomor 10 Tahun 2010). regulation_id PERMENHUT_34_2010. ↩︎

  20. [P] PP 23/2021, Pasal 301, revoking among others Peraturan Pemerintah Nomor 104 Tahun 2015 tentang Tata Cara Perubahan Peruntukan dan Fungsi Kawasan Hutan. regulation_id PP_23_2021. ↩︎

  21. [P] PP 23/2021, Pasal 294 huruf a and b. regulation_id PP_23_2021. ↩︎

  22. [P] PP 23/2021, Pasal 89 and 90. regulation_id PP_23_2021. ↩︎

  23. [P] PP 23/2021, Pasal 92 ayat (1) to (3). regulation_id PP_23_2021. ↩︎

  24. [P] PP 23/2021, Pasal 108. regulation_id PP_23_2021. ↩︎

  25. [P] PP 23/2021, Pasal 117. regulation_id PP_23_2021. ↩︎

  26. [P] PP 23/2021, Pasal 126 and 127. regulation_id PP_23_2021. ↩︎

  27. [P] PP 23/2021, Pasal 128. regulation_id PP_23_2021. ↩︎

  28. [P] PP 23/2021, Pasal 203. regulation_id PP_23_2021. ↩︎

  29. [P] PP 23/2021, Pasal 206 ayat (1) and (2). regulation_id PP_23_2021. ↩︎

  30. [P] PP 23/2021, Pasal 233 and 234. regulation_id PP_23_2021. ↩︎

  31. [P] PP 23/2021, Pasal 244. regulation_id PP_23_2021. ↩︎

  32. [P] PP 23/2021, Pasal 246. regulation_id PP_23_2021. ↩︎

  33. [P] PP 23/2021, Pasal 248, 249 and 250. regulation_id PP_23_2021. ↩︎

  34. [P] PP 23/2021, Pasal 266. regulation_id PP_23_2021. ↩︎

  35. [P] PP 23/2021, Pasal 273. regulation_id PP_23_2021. ↩︎

  36. [P] PP 23/2021, Pasal 274 and 277. regulation_id PP_23_2021. ↩︎