Analysis of Government Cooperation Mechanism with Business Entities in Indonesia
From: A.M Oktarina Counsellors at Law Contributors: Pramudya Yudhatama, S.H., Raysha Alfira, S.H., Khaifa Muna Noer Uh’Dina, S.H., Putri Shaquila, S.H. Reviewer: Noverizky Tri Putra Pasaribu, S.H., L.L.M (Adv). Background The role of the Government is very important for infrastructure development in Indonesia. However, the limitations of the State Budget in financing infrastructure development cause a funding gap that must be met. Based on the 2020-2024 Medium-Term Development Plan (“RPJMN“), Indonesia’s infrastructure financing needs are identified as reaching Rp6,445 trillion, while the Government’s ability to finance infrastructure needs is predicted to be only 37% of the total funds needed, which is Rp2,385 trillion. A total of Rp1,253 trillion or 21% was allocated from State-Owned Enterprises (“SOEs“), while Rp2,706 trillion or 42% of the total funds needed were allocated from the private sector (as the attached link). To get around this, the government uses various sources of funding, one of which is a development cooperation scheme involving private parties. This scheme is known as Public-Private Partnership (“PPP“). This scheme is a form of cooperation between the public sector (government) and the private sector (private) in providing public services bound by agreements that regulate the form of cooperation and risk sharing that has been widely exemplified in Indonesia. So how do regulations in Indonesia regulate the PPP scheme? Legal Basis Law Number 5 of 1999 concerning the Prohibition of Monopoly Practices and Unfair Business Competition. (“Law 5/1999“) Law Number 1 of 2022 concerning Financial Relations between the Central Government and Regional Governments. (“Law 1/2022“) Presidential Regulation Number 38 of 2015 concerning Government Cooperation with Business Entities in Infrastructure Provision. (“PERPRES 38/2015“) Before diving further into the PPP mechanism, by definition PPP itself refers to Article 1 number 6 of PERPRES 38/2015 which regulates as follows: “Cooperation between Government and Business Entities, hereinafter referred to as PPP, is cooperation between the government and Business Entities in the Provision of Infrastructure for the public interest by referring to specifications that have been previously determined by the Minister/Head of Institution/Regional Head/State-Owned Enterprises/Regional-Owned Enterprises, which partially or fully use the resources of Business Entities by taking into account the risk sharing between the parties.” The purpose of PPP itself is regulated in Article 3 of PERPRES 38/2015 which reads: “PPP is carried out with the aim to: Sufficient sustainable funding needs in Infrastructure Provision through the deployment of private funds; Realizing the provision of quality, effective, efficient, targeted, and timely infrastructure; Creating an investment climate that encourages the participation of Business Entities in Infrastructure Provision based on sound business principles; Encourage the use of the principle of users paying for services received, or in certain cases considering the ability to pay users; and/or Provide certainty of return on investment of Business Entities in Infrastructure Provision through periodic payment mechanism by the government to Business Entities.” PPP has several principles, one of which is the Efficient principle, namely to cooperate with the private sector, which is regulated in Article 4 letter f of PERPRES 38/2015 which reads: “Efficient, namely cooperation in Infrastructure Provision to meet funding needs in a sustainable manner in Infrastructure Provision through private funding support.” Governments and private businesses can share risks and be accountable in purchasing power parity plans. Public infrastructure will be built by the government, while the role of private business entities is responsible for providing it and managing it within a predetermined period of time. That in PPP, the Government has a role to be the Person in Charge of Cooperation Projects (“PJPK”). In the implementation of PPP, those who act as PJPK are Ministers/Heads of Institutions/Regional Heads in accordance with the provisions in Article 6 paragraph (1) of PERPRES 38/2015. Not only the government, Article 8 of PERPRES 38/2015 stipulates that SOEs and/or Regional-Owned Enterprises (“BUMDs“) can also become PJPK, as long as they are regulated in sector laws and regulations. In infrastructure development, there are restrictions and what development projects can be done with the PPP scheme. The types of infrastructure and forms of cooperation that can be carried out with the PPP scheme are regulated in Article 5 of PERPRES 38/2015 which reads: “(1) The infrastructure that can be cooperated under this Presidential Regulation is economic infrastructure and social infrastructure. (2) Types of economic infrastructure and social infrastructure as referred to in paragraph (1) include: transport infrastructure; road infrastructure; water resources and irrigation infrastructure; drinking water infrastructure; centralized wastewater management system infrastructure; infrastructure of local wastewater management systems; waste management system infrastructure; telecommunications and informatics infrastructure; electricity infrastructure; oil and gas infrastructure and renewable energy; energy conservation infrastructure; infrastructure of urban facilities; infrastructure of educational facilities; infrastructure of sports facilities and infrastructure, as well as the arts; regional infrastructure; tourism infrastructure; health infrastructure; penitentiary infrastructure; and public housing infrastructure. (3) PPP can be a Provision of Infrastructure which is a combination of 2 (two) or more types of infrastructure as referred to in paragraph (2). (4) In order to improve the feasibility of PPP and/or provide greater benefits to the community, PPP may include activities to provide commercial facilities. (5) Further provisions regarding other types of economic and social infrastructure shall be determined by the minister administering government affairs in the field of national development planning.” In implementing PPP, private business entities not only cooperate with the Central Government, but can also cooperate with Regional Governments. This provision is regulated in Article 167 paragraph (4) of Law 1/2022 which reads: “(4) Funding other than the Regional Budget as referred to in paragraph (2) may be in the form of cooperation with private parties, state-owned enterprises, BUMDs, and/or other Regional Governments.” Private business entities can also submit PPP Initiatives in advance to the government, in accordance with the provisions stipulated in Article 14 of PERPRES 28/2015 which reads: “(1) The Minister/Head of Institution/Regional Head initiates the Provision of Infrastructure which will be collaborated with Business Entities through the PPP scheme. (2) Exempted from the provisions in paragraph (1), a Business Entity may
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