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From Annual to Triennial: Exploring the Shift to 3-Year RKAB in Indonesia’s Mining Industry.


Indonesia’s mining industry is experiencing a significant transformation with the shift from annual to triennial Work and Budget Plans (“RKAB”), mandated in MEMR Regulation 10/2023. This move aims to streamline operations and planning, providing long-term stability for stakeholders. With the separation of RKAB for the Exploration and Production stages, regulatory clarity finds a newfound stronghold, promising smoother sails ahead. While integrating the triennial RKAB with the annual Domestic Market Obligation (“DMO”) may present challenges, particularly in the coal mining sector, the extended RKAB cycle offers opportunities for improved planning and adaptability. Collaboration amongst the government, companies and communities is crucial for successful implementation, ensuring fairness and sustainability in Indonesia’s mining landscape.

Transforming Indonesia’s Mining Landscape: The Move to Triennial RKAB

Indonesia’s mining sector is undergoing a significant transition, marked by a shift from annual to triennial RKAB. Previously, mining businesses were required to prepare and submit an annual RKAB. However, this landscape has now evolved with the enactment of Regulation of the Minister of Energy and Mineral Resources Number 10 of 2023 concerning Procedures for Preparation, Submission, and Approval of Work and Budget Plansand Procedures for Reporting on the Implementation of Mineral and Coal Mining Business Activities (“MEMR Regulation 10/2023“). This regulation extends the RKAB period to three years, signaling a pivotal change with wide-reaching impacts on stakeholders.

In this discourse, we dissect the rationale behind this policy shift and its potential impacts. We also examine how this new directive interacts with the existing one-year Domestic Market Obligation (“DMO”), providing a comprehensive overview of industry dynamics. Moreover, we also address the aspirations and obstacles associated with transformation in this sector.

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Significant Changes in Mining Governance

MEMR Regulation 10/2023 marks a substantial change from its predecessor, Regulation of the Minister of Energy and Mineral Resources Number 7 of 2020 concerning Procedures for Granting Areas, Licensing, and Reporting on Mineral and Coal Mining Business Activities (“MEMR Regulation 7/2020“), in terms of mining governance. The key distinction lies in the separation of previously known RKAB for the Exploration and Production  stages. Holders of Mining Business Permits or Izin Usaha Pertambangan (“IUP”), Special Mining Business Permits or Izin Usaha Pertambangan Khusus (“IUPK”), and IUPKs for Operational Continuity of Contracts/Agreements are now required to prepare an annual Exploration RKAB and a triennial Production Operation RKAB. This timeframe extension aims to streamline the approval process and enhance planning stability for mining companies. Additionally, the regulation clarifies the RKAB submission deadline and introduces a revised evaluation process.

Understanding the regulatory shifts in Indonesia’s mining sector is crucial for stakeholders in navigating this dynamic industry landscape. To provide clarity and insight, we present a comprehensive comparison between the provisions in MEMR Regulation 7/2020 and the significant changes introduced by MEMR Regulation 10/2023.

Aspect MEMR Regulation 10/2023 MEMR Regulation 7/2020 Description
RKAB Timeframe 3 years (Production Operation) 1 year (Overall) Encourages long-term planning and efficiency, but requires market prediction and risk management.
RKAB Nomenclature Separates Exploration & Production Stages Combined Exploration & Production Stages Improves clarity for planning and managing mining activities.
RKAB Submission Deadline (Production) 30 days after permit issuance Not specified Provides certainty for permit holders and the government.
RKAB Evaluation Timeframe 30 working days 14 working days Allows for a more comprehensive evaluation.
Prohibited Mining Activities No RKAB submission, approval, or rejection No RKAB submission Strengthens compliance with regulations.
RKAB Amendments Allowed under specific conditions (force majeure, etc.) Allowed for force majeure and hindering circumstances Provides flexibility for dynamic conditions.
Monthly Reporting Deadline 10th of the following month 5th of the following month Grants more time for report preparation.

Comparison between MEMR Regulation 10/2023 and MEMR Regulation 7/2020.


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New RKAB Provisions: Unveiling Opportunities and Challenges in the Mining Industry

The introduction of the triennial RKAB policy is poised to profoundly impact the mining sector. While offering long-term stability and certainty, this new provisions also present challenges related to market adaptability and innovation.

While this extended planning horizon offers promising opportunities for enhanced efficiency, investment promotion, and long-term stability, it also presents challenges related to data accuracy, adaptability, and risk management. This comparative analysis delves into the key advantages and challenges associated with the triennial RKAB system to provide a comprehensive understanding of its implications for the mining industry.

Aspects Advantages Challenges
Compliance Efficiency Reduced frequency of compliance tasks, streamlined administrative processes, and resource allocation towards core business activities. Possibility of outdated customer information, increased non-compliance risk, and the necessity of robust documentation and monitoring procedures.
Cost Savings Minimal expenses related to frequent updates, reduced personnel costs, and lower technology investment requirements. Effective resource allocation and balance between compliance activities and other operational priorities, particularly for smaller organizations with limited resources.
Risk Management Enhanced identification and mitigation of money laundering, fraud, and other financial crimes through periodic customer information reviews. Increased vulnerability to undetected suspicious activities and changes in customer behavior between updates, requiring continuous monitoring and risk assessment.
Investment and Revenue Certainty Predictable revenue streams for the government and stable investment flows for businesses, fostering long-term planning and risk reduction. Adaptability to rapid changes in regulatory requirements, industry standards, and market conditions, potentially limiting responsiveness to evolving dynamics.
Competitive Advantage Resources availability for innovation, customer service, and strategic initiatives due to efficient compliance practices, enhancing market competitiveness. Balance between compliance with customer satisfaction, avoiding potential frustration, dissatisfaction, and brand damage.
Scalability and Adaptability Flexibility to accommodate different business models and regulatory environments, catering to the needs of both small and large enterprises. Continuous vigilance due to the need to maintain compliance over a three-year period, the need to comply with evolving regulations, and the potential risk of non-compliance penalties.

Key Advantages and Challenges Associated with the Trinneal RKAB Policy

Impact of Trinneal RKAB on Annual DMO

In the mining industry, the RKAB policy plays a significant role in company operations. However, with the extension of the RKAB timeframe to three years, questions arise regarding how this policy will integrate with the DMO, particularly in the context of coal mining.

Before delving into the integration of RKAB and DMO, it is crucial to grasp the concept of DMO. DMO mandates coal mining companies to sell a portion of their production domestically at predetermined prices, thereby ensuring adequate and affordable supplies for domestic power plants and industries. The legal basis for DMO in Indonesia is established by two key Ministerial Regulations:

  • Decree of the Minister of Energy and Mineral Resources Number 399.K/MB.01/MEM.B/2023 (Ministerial Regulation of the Minister of Energy and Mineral Resources Number 399/2023), which amends the previous regulation.
  • Decree of the Minister of Energy and Mineral Resources Number 267.K/MB.01/MEM.B/2022 (Ministerial Regulation of the Minister of Energy and Mineral Resources Number 267/2022) on the Fulfillment of Domestic Coal Needs.

DMO is allocated annually, thus creating challenges when integrating it with the triennial RKAB planning cycle. This presents a unique set of challenges for coal mining companies, where companies must effectively reconcile long-term production planning under the triennial RKAB with the need to fulfill annual DMO quotas. Therefore, careful consideration of DMO quotasis required within the triennial RKAB policy, which may potentially affect investment decisions and business strategies related to resource allocation and sales projections.

Inaccuracies in production estimates can disrupt DMO fulfillment, leading to potential penalties and reputational damage for companies. Fluctuations in coal prices may impact the ability of companies to meet DMO quotas at the set prices, potentially affecting their profitability. Over-reliance on the domestic market can expose companies to significant risks if they fail to meet DMO obligations, particularly in the face of changing market conditions or demand fluctuations. Additionally, inadequate infrastructure investments can hinder the ability of companies to transport and deliver coal to domestic consumers, further complicating DMO fulfillment.

Despite the challenges, the RKAB timeframe extention offers several advantages for coal mining companies. The longer timeframe facilitates the development of more detailed and accurate RKAB, fostering long-term planning stability and enabling companies to make informed investment decisions. This extended planning horizon also provides greater flexibility for companies to adjust their strategies in response to changes in market conditions, evolving government policies, or technological advancements.


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Dilemmas of Efficiency, Sustainability, and Fairness

The extension of the RKAB cycle from one to three years presents a double-edged sword for Indonesia’s mining industry. While promising increased efficiency through reduced administrative burdens, the extension of the RKAB timeframe from one to three years also raises concerns about adaptation, innovation, and potential discrepancies between plans and reality.

The triennial RKAB offers companies more time and resources for core operations, potentially boosting competitiveness and profitability. However, this extended timeframe necessitates robust market forecasting and risk mitigation strategies to avoid disruptions to operational and financial stability.

Sustainable Implementation of Trinneal RKAB

Effective implementation of the triennial RKAB requires collaboration and synergy from all parties. The government is encouraged to take a proactive approach in formulating adaptive and flexible regulations, providing incentives to drive innovation and strengthening education and support for companies. Companies, on the other hand, must improve their market prediction capabilities and build effective risk mitigation strategies. Consultants and experts can play an active role in helping companies prepare adaptive and innovative RKABs, acting as a compass guiding them through the sea of change.

On the other hand, ensuring fairness for local communities is also a primary concern. Local communities need to have access to adequate information and participation in the RKAB preparation and monitoring process. This is crucial to ensure that they are not marginalized and receive fair benefits from mining activities in their area.


In the mining industry, the transition from the old to the new RKAB carries significant implications. MEMR Regulation 10/2023 introduces a triennial RKAB approach, altering the landscape of planning and regulation. This change provides long-term clarity for mining companies, fostering sustainable strategies and alignment with market needs and government policies.

Close collaboration among the government, mining companies, and local communities is essential for successful implementation. Open dialogue and cooperation address challenges and promote fair and sustainable solutions.

ADCO Law underscores the importance of stakeholder involvement, particularly from the legal perspective, in the RKAB preparation and implementation process. With our expertise, we offer assistance and consultation, ensuring compliance and understanding of the new RKAB and its implications. Contact us for support in achieving sustainable solutions for all stakeholders involved.


About ADCO Law:

ADCO Law is a firm that offers clients a wide range of integrated legal services, including in commercial transactions and corporate disputes in a variety of industry sectors. Over the course of more than a decade, we have grown to understand our client’s industry and business as well as the regulatory aspect. In dealing with business dynamics, we provide comprehensive solid legal advice and solutions to minimize legal and business risks.

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Disclaimer: This article has been prepared for scientific reading and marketing purposes only from ADCO Law. Accordingly, all the writings contained herein do not constitute the formal legal opinion of ADCO Law. Therefore, ADCO Law should be held harmless of and/or cannot be held responsible for anything performed by entities who use this writing outside the purposes of ADCO Law.