What Are the Six Steps for EPR Compliance Under SE 11/2025?

1.0 The Implementation Framework: From Inventory to Verification

SE 11/2025 Section E (Pelaksanaan) establishes a systematic six-step implementation framework for integrating Extended Producer Responsibility (EPR) obligations into Environmental Approval (Persetujuan Lingkungan) documents. The circular states: "Untuk pengintegrasian kewajiban Produsen dalam pengurangan sampah dalam Persetujuan Lingkungan, Produsen dan Instansi Berwenang agar melaksanakan langkah-langkah sebagai berikut" (For integrating Producer obligations in waste reduction into Environmental Approvals, Producers and Authorized Agencies shall implement the following steps). These six steps transform EPR from standalone compliance into an integral part of environmental management documentation. Step 1 requires comprehensive product and packaging inventory. Step 2 mandates incorporation into UKL-UPL/RKL-RPL documents. Step 3 addresses target and indicator formulation. Step 4 establishes monitoring plan requirements. Step 5 governs periodic reporting obligations. The framework also addresses producers who have not yet submitted their waste reduction roadmaps to the Aplikasi Kinerja Produsen system. This structured approach ensures that EPR obligations become measurable, reportable, and verifiable through existing environmental compliance mechanisms. Each step builds upon the previous one, creating a comprehensive compliance pathway that connects inventory data to environmental document integration, target setting, monitoring, and ultimately to periodic government reporting (see Matrix 1.1 below).

Matrix 1.1: Six Implementation Steps Overview

2.0 Step 1: Product and Packaging Inventory (Inventarisasi)

The first implementation step requires producers to conduct comprehensive inventories of all products and packaging that may become post-consumer waste. SE 11/2025 Section E.1 specifies: "Produsen melakukan pendataan seluruh jenis produk dan/atau kemasan yang diproduksi, didistribusikan, atau dijual dalam kegiatan usahanya, yang berpotensi menjadi sampah pasca-konsumsi" (Producers shall collect data on all types of products and/or packaging produced, distributed, or sold in their business activities that have potential to become post-consumer waste). The inventory must contain four categories of information. First, material types (jenis material): "plastik, logam, kertas, kaca, dan lainnya" (plastic, metal, paper, glass, and others). Second, market release volume: "Volume/tonase yang dilepas ke pasar per periode" (Volume/tonnage released to market per period). Third, packaging characteristics: "Karakteristik kemasan (sekali pakai, dapat diguna ulang, dapat didaur ulang)" (Packaging characteristics: single-use, reusable, recyclable). Fourth, product categories per PERMENLHK 75/2019: "Kategori produk dan/atau kemasan sesuai Peraturan Menteri Lingkungan Hidup dan Kehutanan Nomor P.75 Tahun 2019, termasuk kemasan primer, kemasan sekunder, kemasan tersier, produk yang menggunakan kemasan, dan produk dengan menggunakan wadah yang tidak dapat atau sulit terurai" (Product and/or packaging categories per PERMENLHK 75/2019, including primary packaging, secondary packaging, tertiary packaging, products using packaging, and products using containers that cannot or are difficult to decompose). The inventory data becomes the foundation for calculating waste generation potential (potensi timbulan sampah pasca-konsumsi) and developing reduction plans (see Matrix 2.1 below).

Matrix 2.1: Inventory Information Requirements

3.0 Step 2: Integration into Environmental Documents (UKL-UPL/RKL-RPL)

The second step requires producers to incorporate waste reduction activities into their Environmental Approval documents. SE 11/2025 Section E.2 establishes: "Kegiatan pengurangan sampah pasca-konsumsi dicantumkan dalam uraian mengenai komponen rencana Usaha dan/atau Kegiatan yang dapat menimbulkan Dampak Lingkungan, secara khusus pada tahap operasi" (Post-consumer waste reduction activities shall be included in the description of Business and/or Activity plan components that may cause Environmental Impact, specifically at the operational stage). The activity description must include three elements. First, impact source (Sumber dampak): "penjualan dan/atau pendistribusian produk dan/atau kemasan yang menimbulkan sampah pasca-konsumsi" (sales and/or distribution of products and/or packaging generating post-consumer waste). Second, impact type (Jenis dampak): "potensi timbulan sampah yang tidak tertangani" (potential unmanaged waste generation). Third, impact magnitude (Besaran dampak): "jumlah potensi timbulan sampah yang dihitung berdasarkan jumlah unit produk dan/atau kemasan yang dilepas ke pasar dikalikan dengan berat rata-rata per unit, berdasarkan hasil inventarisasi" (potential waste generation quantity calculated based on product and/or packaging units released to market multiplied by average weight per unit, based on inventory results). The format must align with UKL-UPL and/or RKL-RPL matrices per prevailing regulations, with a sample matrix format provided in Lampiran I of the circular. This integration ensures that waste reduction becomes a formal environmental commitment subject to the same compliance monitoring as other environmental management measures (see Matrix 3.1 below).

Matrix 3.1: UKL-UPL/RKL-RPL Integration Elements

4.0 Step 3: Target and Indicator Formulation (Perumusan Target)

The third step requires producers to establish measurable waste reduction targets and success indicators. SE 11/2025 Section E.3 specifies: "Target pengurangan sampah ditetapkan sesuai ketentuan Peraturan Menteri Lingkungan Hidup dan Kehutanan Nomor P.75/MENLHK/SETJEN/KUM.1/10/2019 tentang Peta Jalan Pengurangan Sampah oleh Produsen, dimana persentase pengurangan sampah per tahun terhadap potensi timbulan didasarkan kepada Peta Jalan yang telah disusun dan/atau yang ditetapkan oleh Pemerintah, jika ada" (Waste reduction targets shall be set per PERMENLHK 75/2019 on Producer Waste Reduction Roadmap, where the annual waste reduction percentage against generation potential is based on the Roadmap prepared and/or established by the Government, if available). The circular mandates three specific success indicators for environmental documents (specifically the RKL-RPL matrix). First, take-back percentage (Persentase penarikan kembali produk dan/atau kemasan pasca-konsumsi): the proportion of products and packaging recovered after consumer use. Second, waste reduction rate (Rate pengurangan sampah): the percentage reduction achieved against baseline. Third, leakage intensity (Intensitas kebocoran): the proportion of waste escaping proper management into the environment. These indicators must be measurable and aligned with both the producer's own baseline and roadmap, as well as any government-established targets. Targets and indicators are adjusted according to the baseline and roadmap established by the producer (see Matrix 4.1 below).

Matrix 4.1: Three Mandatory Performance Indicators

5.0 Step 4: Monitoring Plan Development (Rencana Pemantauan)

The fourth step establishes monitoring plan requirements to track waste reduction progress. SE 11/2025 Section E.4 states: "Produsen menyusun metode pemantauan yang mencakup: 1) Pengumpulan data timbulan dan penarikan kembali sampah pasca-konsumsi; 2) Analisis kuantitatif efektivitas program pengurangan sampah; 3) Evaluasi pencapaian target dan indikator" (Producers shall develop monitoring methods covering: 1) Data collection on waste generation and post-consumer waste take-back; 2) Quantitative analysis of waste reduction program effectiveness; 3) Evaluation of target and indicator achievement). The monitoring frequency is specified as minimum monthly: "Pemantauan dilakukan secara berkala dengan frekuensi minimal 1 (satu) bulan sekali" (Monitoring shall be conducted periodically with minimum frequency of once per month). The monitoring methods must be integrated into the applicable Environmental Approval monitoring system: "Metode pemantauan diintegrasikan ke dalam sistem pemantauan Persetujuan Lingkungan yang berlaku" (Monitoring methods shall be integrated into the applicable Environmental Approval monitoring system). This integration means that EPR performance monitoring becomes part of the regular environmental compliance monitoring that producers already conduct for their UKL-UPL/RKL-RPL documents. Monitoring must cover both formal waste management channels (formal waste managers, recycling partners) and informal channels (through consumer information and informal waste collector networks) where applicable (see Matrix 5.1 below).

Matrix 5.1: Monitoring Plan Requirements

6.0 Step 5: Periodic Reporting and Non-Registered Producer Requirements

The fifth step governs periodic reporting obligations. SE 11/2025 Section E.5 establishes: "Laporan pelaksanaan kewajiban pengurangan sampah disampaikan bersamaan dengan laporan pelaksanaan Persetujuan Lingkungan kepada instansi berwenang sesuai ketentuan pelaporan UKL-UPL dan/atau RKL-RPL" (Waste reduction obligation implementation reports shall be submitted together with Environmental Approval implementation reports to authorized agencies per UKL-UPL and/or RKL-RPL reporting requirements). The periodic report must contain five categories of information: "1) Jumlah potensi timbulan sampah yang diperoleh dari pelaksanaan inventarisasi produk dan/atau kemasan pada periode pelaporan; 2) Status penyampaian Peta Jalan Pengurangan Sampah oleh Produsen pada Aplikasi Kinerja Produsen (sudah/belum terdaftar); 3) Status pelaporan kinerja melalui Aplikasi Kinerja Produsen (sudah/belum submit laporan); 4) Realisasi pencapaian target dan indikator pengurangan sampah; 5) Kendala dan upaya perbaikan yang dilakukan" (1) Potential waste generation from inventory for reporting period; 2) Roadmap submission status on Aplikasi Kinerja Produsen (registered/not registered); 3) Performance reporting status via Aplikasi Kinerja Produsen (submitted/not submitted); 4) Target and indicator achievement realization; 5) Challenges and improvement efforts undertaken). For producers who have not yet registered with Aplikasi Kinerja Produsen, the circular provides a transition mechanism: "Produsen yang belum melakukan penyampaian peta jalan pengurangan sampah oleh Produsen dan/atau belum melaporkan kinerja melalui Aplikasi Kinerja Produsen wajib menyampaikan rencana tindak lanjut dan jadwal pelaksanaan" (Producers who have not submitted their waste reduction roadmap and/or have not reported performance via Aplikasi Kinerja Produsen must submit an action plan and implementation schedule). Data must be presented in the table format specified in Lampiran II of the circular (see Matrix 6.1 below).

Matrix 6.1: Periodic Report Content Requirements

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SE 11/2025 EPR Integration Series

This is Article 2 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? (this article) - Implementation Framework
3. How Is EPR Compliance Verified Under SE 11/2025? - 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 implementation requirements depends on specific factual circumstances including producer category, packaging materials inventory, existing UKL-UPL/RKL-RPL document status, Aplikasi Kinerja Produsen registration status, regional environmental agency requirements, and current baseline calculations, 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 compliance implementation, consult with qualified legal counsel familiar with Indonesian environmental and waste management law and current regulatory practice.

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