| Full title | Peraturan Pemerintah Nomor 23 Tahun 2024 tentang Jalan Tol |
|---|---|
| Citation | PP 23/2024 |
| Jurisdiction | Indonesia |
| Enacted by | President of Indonesia |
| Signed | 20 May 2024 |
| Promulgated | 20 May 2024 |
| Effective | 20 May 2024 |
| Implements | UU 38/2004 on Roads, as last amended by UU 6/2023 |
| Replaces | PP 15/2005 on Toll Roads, as last amended by PP 17/2021 |
Peraturan Pemerintah 23/2024 (Peraturan Pemerintah Nomor 23 Tahun 2024 tentang Jalan Tol) is the Indonesian government regulation on toll roads. It was signed by President Joko Widodo and promulgated on 20 May 2024 as Lembaran Negara 2024 No. 85, and took effect on promulgation.[1] It was issued to implement fifteen delegating provisions of Undang-Undang 38/2004 on Roads, as last amended by the Job Creation law, Undang-Undang 6/2023, and it revoked Peraturan Pemerintah 15/2005 on Toll Roads, which had been amended four times, the last time in 2021.[2][3] It forms part of the body of rules on government infrastructure and concessions surveyed at public administration in Indonesia.
The regulation comprises 115 articles in ten chapters. It places authority over toll roads with the central government, exercised through the minister responsible for roads and, for the regulation, concession and supervision of toll-road companies, through the Toll Road Regulatory Agency (Badan Pengatur Jalan Tol, BPJT).[4][5] Toll roads are operated by business entities under concession agreements with the minister, awarded by open tender, on the initiative of either the government or a business entity, or by assignment to a state-owned enterprise.[6]
It sets the technical and service standards a toll road must meet, the method for setting and adjusting tolls, the sanctions for operators that fail the minimum service standards, and the rights and obligations of users, including tiered fines for unpaid tolls once contactless, non-stop toll collection is introduced.[7][8][9] Surplus toll revenue and excess financial returns are made non-tax state revenue for the development of the network.[10] CRPG's regulatory tracker published an analysis of the regulation on 26 November 2025.[11]
The elucidation (Penjelasan) of the regulation presents toll roads as a means of building national connectivity, improving the efficiency of the national logistics system and reducing disparities between regions, and says that developments in toll-road administration over more than a decade had not been accommodated by the Roads Law, several of whose provisions were later amended, the last time by the Job Creation law.[12] The preamble lists the provisions of the Roads Law it implements, among them Pasal 35H, 43 ayat (5), 50 ayat (16), 51A ayat (7) and 61.[2:1]
Pasal 114 revokes Peraturan Pemerintah 15/2005, as last amended by Peraturan Pemerintah 17/2021, the fourth amendment. Pasal 113 keeps the implementing regulations of the 2005 regulation in force in so far as they do not conflict with the new one.[3:1]
Pasal 1 defines a toll road (Jalan Tol) as a controlled-access road (Jalan Bebas Hambatan) that forms part of the road network and is a national road whose users are required to pay; a controlled-access road is a public road with fully controlled entry, no at-grade crossings and a fence along the road reserve.[4:1] Administration of toll roads is intended to spread development and its results and to balance regional development, and it covers four functions: regulation (pengaturan), development and guidance (pembinaan), concession operation (pengusahaan) and supervision (pengawasan).[13]
A toll road must be a class I road with the specification of a controlled-access road. Intercity toll roads are designed for a minimum speed of 80 kilometres an hour and urban toll roads for 60; interchanges are at least 5 kilometres apart on intercity roads and 2 kilometres apart in urban areas; and the main carriageway has at least two lanes in each direction, separated by a median.[14] Intercity toll roads must have rest and service areas, at least one every 50 kilometres in each direction, and the operator must allocate at least 30 per cent of the commercial area in them to micro, small and medium enterprises.[15] Constructing a building that obstructs access to or from a toll road is prohibited and attracts administrative sanctions ranging from a written warning to demolition.[16]
The minister sets the toll-road planning policy every five years, taking into account at least the national long-term and medium-term development plans, the national spatial plan, the national road safety plan, the national transport system and sustainable road development.[17] The resulting general toll-road network plan is to be included in the national spatial plan and forms part of the general national road network plan; the minister carries out a pre-feasibility study on each planned corridor before designating a toll-road section.[17:1] The long-term development plan for 2025-2045 was later enacted as Undang-Undang 59/2024. Chapter IV assigns to the minister the preparation of technical guidelines and standards, services such as licensing and information, empowerment, and research and development.[18]
Concession operation is the minister's authority and is carried out by a business entity under a toll-road concession agreement (perjanjian pengusahaan Jalan Tol) with the minister. Entities are selected by tender, and the government may assign a state-owned enterprise where this is needed to accelerate regional development and the road has national strategic value; the concession covers financing, technical design, construction, operation and preservation, and is audited by the state audit authority.[6:1] Where a section is economically but not financially viable, the minister may finance, design and build it in whole or in part and leave its operation and preservation to a business entity.[19]
A business entity may itself propose a section. If the minister approves the proposal, the initiator prepares the feasibility study, the environmental impact analysis and the land acquisition plan, and may be compensated by a 10 per cent added value in the tender, a right to match the best bid, or the purchase of its initiative.[20] A state-owned enterprise assigned a concession must be wholly state-owned and receives a government guarantee.[21] Land for toll roads is acquired under the law on land acquisition in the public interest, and may be acquired by the land bank agency; for a road initiated by a business entity, the cost of land falls on the initiator.[22] Where acceleration is required for a government-initiated road, the environmental impact analysis and the environmental feasibility decision may be completed as late as the signing of the concession agreement, a relaxation of the general sequence described at environmental approval in Indonesia.[23]
Tenders are run by a committee formed by BPJT, in two stages, prequalification and a limited tender of those who pass it; the head of BPJT proposes the winner to the minister.[24] The concessionaire must be an Indonesian limited liability company. The agreement must set out at least the scope of the concession, the concession period, the initial toll and its adjustment formula, the allocation of risk, the minimum service standards, sanctions, dispute settlement, termination, force majeure, Indonesian law as the governing law, and the handover of the road at the end of the concession free of any encumbrance or third-party claim.[25] Financing may come from the government, the business entity, or other lawful sources, including creative financing.[26]
Construction follows a final technical plan approved by the minister and may begin once land has been acquired for at least a section that can be operated on completion. An operator whose road crosses an existing road must provide a replacement road fit for use; failure attracts a written warning, then a fine of one per mille of the replacement road's construction cost for each working day, and after fifty working days the cancellation of the concession agreement.[27]
A toll road may open only when it has been certified fit for function, and the operator must then meet the minimum service standards (Standar Pelayanan Minimal Jalan Tol, SPM), which cover the condition of the road, safety and security infrastructure, and services to users, including rest areas that take account of sustainability and gender equality. The operator evaluates its compliance at least every six months and reports to the minister, and the results are public information. An operator that fails the standards is liable to a written warning, postponement of its tariff adjustment, a fine and, if it does not comply within seven days, cancellation of the agreement.[7:1]
Toll roads are for motor vehicles with four or more wheels; motorcycles may use them only on a physically separate lane.[28] Tolls may be collected electronically, including by contactless, non-stop, cashless technology (teknologi nontunai nirsentuh nirhenti). Where the minister runs such a system, through an implementing entity, the minister guarantees the operator all the toll revenue due for each vehicle and may charge the operator a service fee.[29] The minister may close a toll road temporarily for national interest, state security or physical danger, and the operator receives no toll revenue during the closure.[30] When a concession ends, the road reverts to the minister, who may either convert it into a non-toll controlled-access road or assign its operation to an experienced state-owned enterprise at an initial toll lower than the toll at the end of the concession.[31]
The initial toll is calculated from users' ability to pay, the savings in vehicle operating costs against the alternative public road, and the feasibility of the investment, and is set by the minister.[32] Tolls are evaluated and adjusted every two years according to inflation, by the formula new tariff equals old tariff multiplied by one plus inflation, and according to compliance with the minimum service standards over the preceding two years.[8:1] The minister may also adjust tolls between those dates, including by region-based or time-based tariffs to manage traffic on a network.[33]
The difference in revenue produced by a traffic-management adjustment, and any financial return above the level of feasibility set by the government, become non-tax state revenue (penerimaan negara bukan pajak) to be used to develop the toll-road network, a subject treated at public finance and non-tax revenue in Indonesia.[10:1] A fund management unit applying the financial management pattern of a public service agency may be formed to manage those receipts.[34]
Supervision is divided into general supervision of the administration and performance of the network, carried out by the minister, and supervision of concessionaires' performance of their agreements, carried out by BPJT.[35] BPJT is a non-structural body formed by the minister and responsible to the minister. It recommends initial tolls and their adjustment, recommends the takeover of concessions that have expired or failed, prepares concessions, procures toll-road investment by open tender, and supervises business entities' compliance with their agreements. Its members are drawn from the central government, stakeholders and the public: a head, who represents the government and is also a member, and an odd number of members, not more than five, who serve four-year terms renewable once and are funded from the state budget.[36]
Users must pay the toll. Once contactless, non-stop collection is in place they must register their vehicles through an application approved by the minister, and a user who fails to pay through their own fault incurs tiered fines: one times the toll if not paid within 2 × 24 hours of notice, three times the toll after a further 10 × 24 hours, and ten times the toll, with the blocking of the vehicle registration certificate, after that. The third-tier fine is imposed on the owner of the vehicle and may be enforced with the national police.[37] Until that system is in place, a user whose entry gate cannot be read is fined twice the toll for the longest distance on the section.[37:1]
Users may claim compensation from an operator for losses caused by the operator's fault, and are entitled to service meeting the minimum standards. Operators may refuse entry to, or remove, vehicles exceeding the heaviest permitted axle load, and must provide ambulance, rescue and towing units on every section and security and traffic enforcement in cooperation with the police.[38]
K251 · Work URI /akn/id/act/pp/2024/23 · RegVault PP_23_2024[P] PP 23/2024, Pasal 115 and closing formula (Ditetapkan di Jakarta pada tanggal 20 Mei 2024; Diundangkan di Jakarta pada tanggal 20 Mei 2024; Lembaran Negara 2024 No. 85); Tambahan Lembaran Negara No. 6919. regulation_id PP_23_2024. ↩︎
[P] PP 23/2024, preamble, Menimbang (implementing Pasal 35H, 43 ayat (5), 45 ayat (7), 48 ayat (8), 49 ayat (2), 50 ayat (16), 51 ayat (4), 51A ayat (7), 51B ayat (2), 52 ayat (5), 52A ayat (2), 55 ayat (5), 56A ayat (3), 57 ayat (4) and 61 of Undang-Undang 38/2004 tentang Jalan, as last amended by Undang-Undang 6/2023) and Mengingat angka 1 and 2. regulation_id PP_23_2024. ↩︎ ↩︎
[P] PP 23/2024, Pasal 113 and Pasal 114, revoking Peraturan Pemerintah 15/2005 tentang Jalan Tol (Lembaran Negara 2005 No. 32) as last amended by Peraturan Pemerintah 17/2021 tentang Perubahan Keempat atas Peraturan Pemerintah Nomor 15 Tahun 2005 tentang Jalan Tol (Lembaran Negara 2021 No. 27). regulation_id PP_23_2024. ↩︎ ↩︎
[P] PP 23/2024, Pasal 1 angka 2, 3 and 6. regulation_id PP_23_2024. ↩︎ ↩︎
[P] PP 23/2024, Pasal 4 ayat (1)–(3). regulation_id PP_23_2024. ↩︎
[P] PP 23/2024, Pasal 25 ayat (1)–(10). regulation_id PP_23_2024. ↩︎ ↩︎
[P] PP 23/2024, Pasal 61, Pasal 62 ayat (1) and (5), Pasal 63 ayat (1) and (4) and Pasal 64 ayat (1)–(5). regulation_id PP_23_2024. ↩︎ ↩︎
[P] PP 23/2024, Pasal 83 ayat (1)–(3). regulation_id PP_23_2024. ↩︎ ↩︎
[P] PP 23/2024, Pasal 105 ayat (2) and (5)–(6). regulation_id PP_23_2024. ↩︎
[P] PP 23/2024, Pasal 85 ayat (1) and Pasal 87 ayat (1). regulation_id PP_23_2024. ↩︎ ↩︎
[E] "PP 23/2024: Indonesia's Comprehensive Toll Road Regulatory Framework Replaces PP 15/2005", CRPG regulatory tracker, crpg.id, 26 November 2025. https://crpg.id/pp-23-2024-indonesias-comprehensive-toll-road-regulatory-framework-replaces-pp-15-2005/ (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. ↩︎
[P] PP 23/2024, Penjelasan, I. Umum. regulation_id PP_23_2024. ↩︎
[P] PP 23/2024, Pasal 2 ayat (1) and Pasal 3. regulation_id PP_23_2024. ↩︎
[P] PP 23/2024, Pasal 6 ayat (2) and (3) and Pasal 7 ayat (1) huruf c to e. regulation_id PP_23_2024. ↩︎
[P] PP 23/2024, Pasal 8 ayat (2), Pasal 9 ayat (3) and Pasal 10 ayat (2). regulation_id PP_23_2024. ↩︎
[P] PP 23/2024, Pasal 11 ayat (1) and (2) and Pasal 12. regulation_id PP_23_2024. ↩︎
[P] PP 23/2024, Pasal 15, Pasal 17 ayat (2) and (6) and Pasal 18 ayat (1) and (3). regulation_id PP_23_2024. ↩︎ ↩︎
[P] PP 23/2024, Pasal 20 to Pasal 24. regulation_id PP_23_2024. ↩︎
[P] PP 23/2024, Pasal 28 ayat (2)–(4). regulation_id PP_23_2024. ↩︎
[P] PP 23/2024, Pasal 29 and Pasal 30 ayat (2)–(4). regulation_id PP_23_2024. ↩︎
[P] PP 23/2024, Pasal 31 ayat (4) and (6). regulation_id PP_23_2024. ↩︎
[P] PP 23/2024, Pasal 40 ayat (1) and Pasal 41 ayat (2) and (6). regulation_id PP_23_2024. ↩︎
[P] PP 23/2024, Pasal 34 ayat (2), Pasal 37 and Pasal 39 ayat (1) and (2). regulation_id PP_23_2024. ↩︎
[P] PP 23/2024, Pasal 42 ayat (2), Pasal 43 and Pasal 50 ayat (3). regulation_id PP_23_2024. ↩︎
[P] PP 23/2024, Pasal 51 ayat (2), (5) and (6). regulation_id PP_23_2024. ↩︎
[P] PP 23/2024, Pasal 52 ayat (1) and (6). regulation_id PP_23_2024. ↩︎
[P] PP 23/2024, Pasal 54 ayat (1) and (2), Pasal 56 ayat (1) and (7) and Pasal 58 ayat (1)–(6). The vault's OCR text of Pasal 58 ayat (5) renders the rate with a per cent sign, but the words read satu permil. regulation_id PP_23_2024. ↩︎
[P] PP 23/2024, Pasal 65 ayat (1) and (2). regulation_id PP_23_2024. ↩︎
[P] PP 23/2024, Pasal 67 ayat (1)–(5). regulation_id PP_23_2024. ↩︎
[P] PP 23/2024, Pasal 76 ayat (1) and (4). regulation_id PP_23_2024. ↩︎
[P] PP 23/2024, Pasal 78 ayat (1), (2) and (4) and Pasal 79 ayat (2). regulation_id PP_23_2024. ↩︎
[P] PP 23/2024, Pasal 81 ayat (1), (2) and (4). regulation_id PP_23_2024. ↩︎
[P] PP 23/2024, Pasal 84 ayat (1) and (2). regulation_id PP_23_2024. ↩︎
[P] PP 23/2024, Pasal 93 ayat (1). regulation_id PP_23_2024. ↩︎
[P] PP 23/2024, Pasal 90 ayat (2), Pasal 91 ayat (2) and Pasal 92 ayat (2). regulation_id PP_23_2024. ↩︎
[P] PP 23/2024, Pasal 94, Pasal 96 ayat (1), Pasal 97, Pasal 98, Pasal 103 and Pasal 104 ayat (1). regulation_id PP_23_2024. ↩︎
[P] PP 23/2024, Pasal 105 ayat (1)–(8) and Pasal 106 ayat (1) and (2). regulation_id PP_23_2024. ↩︎ ↩︎
[P] PP 23/2024, Pasal 107 to Pasal 110 and Pasal 112. regulation_id PP_23_2024. ↩︎