How Is EPR Compliance Verified Under SE 11/2025?

1.0 The Verification Framework: Multi-Level Government Oversight

SE 11/2025 establishes a comprehensive verification framework where multiple levels of government verify producer compliance with integrated EPR-Environmental Approval obligations. Section E.6 (Verifikasi) states: "Menteri, Gubernur, Bupati dan/atau Wali Kota sesuai dengan kewenangannya berwenang melakukan verifikasi terhadap: 1) Dokumen laporan pelaksanaan Persetujuan Lingkungan; 2) Data pada Aplikasi Kinerja Produsen; 3) Bukti pelaksanaan di lapangan (bila diperlukan)" (The Minister, Governor, Regent and/or Mayor in accordance with their authority are authorized to verify: 1) Environmental Approval implementation report documents; 2) Data in the Producer Performance Application; 3) Field implementation evidence (if required)). This multi-tier verification approach aligns with Indonesia's decentralized environmental governance structure under PP 22/2021, where environmental approval authority is distributed based on project location and scale. The circular emphasizes data consistency verification: "Verifikasi dilakukan untuk memastikan konsistensi dan kebenaran data antara laporan Persetujuan Lingkungan dengan laporan kinerja pada Aplikasi Kinerja Produsen namun dengan tetap memperhatikan kaidah kerahasiaan data" (Verification is conducted to ensure consistency and accuracy of data between Environmental Approval reports and performance reports in the Producer Performance Application while maintaining data confidentiality principles). Non-compliance triggers regulatory consequences: "Ketidaksesuaian antara pelaporan dan kondisi di lapangan, atau ketiadaan penyampaian peta jalan pengurangan sampah oleh Produsen dan pelaporan pada Aplikasi Kinerja Produsen, akan dikenakan tindakan sesuai ketentuan peraturan perundang-undangan" (Discrepancies between reporting and field conditions, or failure to submit waste reduction roadmap and report to the Producer Performance Application, shall be subject to action per prevailing regulations). This verification framework creates accountability through cross-referencing between two reporting systems (see Matrix 1.1 below).

Matrix 1.1: Verification Authority by Government Level

2.0 Three Key Performance Metrics: Measuring EPR Success

SE 11/2025 establishes three mandatory performance indicators that producers must track and report. These metrics, referenced in Section E.3 on target formulation and detailed in Lampiran I, provide quantifiable measures of EPR program effectiveness. The first metric is Take-back Percentage (Persentase Penarikan Kembali): the proportion of products and packaging successfully recovered after consumer use for recycling, reuse, or proper disposal. The second metric is Waste Reduction Rate (Rate Pengurangan): the percentage reduction in waste generation compared to the producer's established baseline, demonstrating progress toward the 30% national target by 2029 under PERMENLHK 75/2019. The third metric is Leakage Intensity (Intensitas Kebocoran): the proportion of post-consumer waste that escapes proper management systems and enters the environment. Lampiran I of SE 11/2025 provides monitoring standard forms that include calculation formulas for these metrics. The take-back percentage formula involves tracking collected quantities against market release: Persentase penarikan kembali = (Besaran produk/kemasan pasca-konsumsi yang ditarik kembali) ÷ (Besaran produk/kemasan yang dilepas ke pasar) × 100%. The leakage calculation uses the formula referenced in Lampiran I: Intensitas kebocoran = T_R3/T_market, measuring waste escaping formal and informal collection systems. These metrics must be reported both through Environmental Approval periodic reports and the Aplikasi Kinerja Produsen platform (see Matrix 2.1 below).

Matrix 2.1: Performance Metrics Calculation Framework

3.0 Aplikasi Kinerja Produsen: The Digital Reporting Platform

The Aplikasi Kinerja Produsen serves as the centralized digital platform for EPR compliance tracking under PERMENLHK 75/2019, and SE 11/2025 mandates synchronization between this platform and Environmental Approval reporting. SE 11/2025 Section E.5 requires producers to report their registration and reporting status: "Status penyampaian Peta Jalan Pengurangan Sampah oleh Produsen pada Aplikasi Kinerja Produsen (sudah/belum terdaftar)" and "Status pelaporan kinerja melalui Aplikasi Kinerja Produsen (sudah/belum submit laporan)" (Roadmap submission status on Producer Performance Application (registered/not registered) and Performance reporting status via Producer Performance Application (submitted/not submitted)). The verification process cross-references data between these two systems: environmental approval compliance reports submitted to local/provincial/national environmental agencies must align with performance data submitted through Aplikasi Kinerja Produsen. Section E.6.b confirms: "Verifikasi dilakukan untuk memastikan konsistensi dan kebenaran data antara laporan Persetujuan Lingkungan dengan laporan kinerja pada Aplikasi Kinerja Produsen" (Verification is conducted to ensure consistency and accuracy between Environmental Approval reports and performance reports in the Producer Performance Application). Producers who have not yet registered with Aplikasi Kinerja Produsen must submit action plans with implementation timelines as part of their Environmental Approval reporting. This dual-reporting requirement creates redundancy that enables verification through cross-referencing (see Matrix 3.1 below).

Matrix 3.1: Aplikasi Kinerja Produsen Integration Points

4.0 Verification Process: Documents, Data, and Field Evidence

SE 11/2025 Section E.6 establishes a three-tier verification approach. The first tier is document verification: "Dokumen laporan pelaksanaan Persetujuan Lingkungan" (Environmental Approval implementation report documents). This includes reviewing the UKL-UPL/RKL-RPL periodic reports for completeness, accuracy, and compliance with integration requirements. The second tier is data verification: "Data pada Aplikasi Kinerja Produsen" (Data in the Producer Performance Application). This involves cross-referencing data submitted through environmental approval reports against data in the Aplikasi Kinerja Produsen system to identify discrepancies. The third tier is field verification: "Bukti pelaksanaan di lapangan (bila diperlukan)" (Field implementation evidence, if required). This includes site visits to verify that reported waste reduction programs, take-back systems, and collection infrastructure actually exist and operate as described. The circular emphasizes that verification must maintain data confidentiality: "dengan tetap memperhatikan kaidah kerahasiaan data" (while maintaining data confidentiality principles). This protects commercially sensitive information such as production volumes and market share data while still enabling government verification of compliance. Verification findings that reveal discrepancies trigger enforcement actions under prevailing regulations (see Matrix 4.1 below).

Matrix 4.1: Three-Tier Verification Process

5.0 Local Government Responsibilities: Socialization, Facilitation, and Oversight

SE 11/2025 Section 7 assigns specific responsibilities to local government leaders (Gubernur, Bupati, dan Walikota) for implementing the integration mandate. Four responsibilities are specified. First, socialization: "Melakukan sosialisasi Surat Edaran ini kepada Produsen di wilayahnya" (Conduct socialization of this Circular Letter to Producers within their jurisdiction). Local governments must ensure producers are aware of integration requirements. Second, facilitation and supervision: "Memfasilitasi dan mengawasi pelaksanaan integrasi kewajiban pengurangan sampah dengan Persetujuan Lingkungan" (Facilitate and supervise implementation of waste reduction obligation integration with Environmental Approval). This includes providing guidance on document preparation and monitoring compliance. Third, verification: "Melakukan verifikasi laporan pelaksanaan Persetujuan Lingkungan yang disampaikan produsen sesuai kewenangannya" (Verify Environmental Approval implementation reports submitted by producers per their authority). Local governments conduct verification for producers under their environmental approval jurisdiction. Fourth, reporting to central government: "Melaporkan pelaksanaan pengawasan kepada Menteri Lingkungan Hidup dan Kehutanan/Kepala Badan Pengendalian Lingkungan Hidup c.q. Deputi Pengelolaan Sampah, Limbah dan B3" (Report supervision implementation to the Minister of Environment and Forestry/Head of Environmental Control Agency c.q. Deputy for Waste, Hazardous Waste, and B3 Management). This creates an upward reporting chain that provides national visibility into regional implementation (see Matrix 5.1 below).

Matrix 5.1: Local Government Responsibilities Under SE 11/2025

6.0 Enforcement and Consequences: Addressing Non-Compliance

SE 11/2025 Section E.6.c establishes the enforcement framework for non-compliance: "Ketidaksesuaian antara pelaporan dan kondisi di lapangan, atau ketiadaan penyampaian peta jalan pengurangan sampah oleh Produsen dan pelaporan pada Aplikasi Kinerja Produsen, akan dikenakan tindakan sesuai ketentuan peraturan perundang-undangan" (Discrepancies between reporting and field conditions, or failure to submit waste reduction roadmap and report to the Producer Performance Application, shall be subject to action per prevailing regulations). This enforcement provision connects SE 11/2025 to the broader sanction framework under UU 18/2008, PP 81/2012, and PP 22/2021. UU 18/2008 Pasal 28-32 establishes administrative and criminal sanctions for waste management violations. PP 81/2012 provides implementing provisions for producer obligation enforcement. PP 22/2021 establishes sanctions related to Environmental Approval compliance, including permit suspension and revocation for serious violations. The integrated approach under SE 11/2025 means that EPR non-compliance can now trigger Environmental Approval enforcement mechanisms. A producer who fails to meet integrated waste reduction targets may face not only EPR-specific sanctions but also environmental permit consequences. This significantly increases compliance stakes compared to the previous separated enforcement regime. The circular also addresses data confidentiality concerns in verification, noting that while verification must ensure data accuracy, it must also "tetap memperhatikan kaidah kerahasiaan data" (maintain data confidentiality principles), protecting commercially sensitive production and market data (see Matrix 6.1 below).

Matrix 6.1: Non-Compliance Triggers and Potential Consequences

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SE 11/2025 EPR Integration Series

This is Article 3 of 3 in our comprehensive analysis of SE 11/2025's integration of Extended Producer Responsibility into Indonesia's environmental approval system.

Complete Series:

1. How Does SE 11/2025 Connect EPR to Environmental Approvals? - The Integration Mandate
2. What Are the Six Steps for EPR Compliance Under SE 11/2025? - Implementation Framework
3. How Is EPR Compliance Verified Under SE 11/2025? (this article) - Verification and Enforcement

Regulation Reference

Primary Document:
Surat Edaran Menteri Lingkungan Hidup/Kepala Badan Pengendalian Lingkungan Hidup Republik Indonesia Nomor 11 Tahun 2025 tentang Pengintegrasian Kewajiban Pengurangan Sampah oleh Produsen dalam Persetujuan Lingkungan

English Translation:
Circular Letter of the Minister of Environment/Head of Environmental Control Agency of the Republic of Indonesia Number 11 of 2025 on Integration of Producer Waste Reduction Obligations into Environmental Approvals

Short Citation:
SE MENLH 11/2025

Issuance Date: October 14, 2025
Signatory: Hanif Faisol Nurofiq

Related Regulations:

Legal Analysis by the CRPG Environmental Law Team | Analysis Date: December 27, 2025 | Regulation Issued: October 14, 2025

LEGAL DISCLAIMER: This article is provided for informational and educational purposes only and does not constitute legal advice, legal opinion, or professional consultation. The analysis presented herein is based on the authors' interpretation of SE MENLH 11/2025 and related regulations as of the publication date and may contain errors, omissions, or inaccuracies despite reasonable efforts to ensure accuracy. Laws and regulations are subject to amendment, judicial interpretation, and administrative clarification that may affect the applicability or interpretation of the provisions discussed. This article does not create an attorney-client relationship between the authors, the Center for Regulation, Policy and Government (CRPG), and any reader. Readers should not act or refrain from acting based solely on the information contained in this article without seeking appropriate legal counsel from qualified Indonesian legal practitioners licensed to practice environmental law. The application of EPR verification requirements depends on specific factual circumstances including producer category, environmental approval authority level, regional enforcement practices, Aplikasi Kinerja Produsen registration status, and specific violation circumstances, all of which require case-specific legal analysis. Neither the authors nor CRPG assume any liability for actions taken or not taken based on information in this article, nor for any direct, indirect, incidental, consequential, or punitive damages arising from use of or reliance on this material. For specific legal guidance on EPR verification and enforcement, consult with qualified legal counsel familiar with Indonesian environmental and waste management law and current regulatory practice.

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