.png)
Indonesia's Legal System
As explained above, the scope of the investment sector in Indonesia is quite diverse. Since the government wishes to accommodate this diversity, they issued additional regulations to accommodate the existing law to fit within the need of the existing investment sectors. Therefore, to ensure the ease and compliance of investment, it is essential to understand the legal system.
The Hierarchy of Laws
Hierarchy Theory
Hierarchy theory, introduced by Hans Kelsen, is a theory concerning the level of legal norms (Stufentheorie) which argued that these norms are tiered and layered in a hierarchical structure. On the top of this structure exists the hypothetical basic norm, otherwise known as ‘Grundnorm’, from which every other law in the lower tier emanates from. As the point of origin, this basic norm does not rest upon any other norms to support its legitimacy. Therefore, in this theory, a pyramid of norms exists with the arrangement of the basic norm – higher norm – lower norm.
This pyramid structure (Stufentheorie), which was Hans Kelsen’s most prominent theory, was further developed by one of his students, Hans Nawiasky. Nawiasky's theory is called Theorie Von Stufenufbau Der Echtsordnung. According to this theory, the arrangement of norms are as follows:
-
fundamental norms of the state (Staatsfundamentalnorm);
-
basic rules of the state (Staatsgrundgesetz);
-
formal legislation (FormellGesetz); and
-
implementing regulations and autonomous regulations (Verodnung En Autonome Satzung).
The hierarchical structure of legal norms as conceptualized by Hans Kelsen and further developed by Hans Nawiasky is illustrated in the following graphic.

Level Legal Norms Comparison between Hans Nawiasky and Hans Kelsen
Source: Maria Farida Indrati S., 2007, “Ilmu Perundang-Undangan”, PT Kanisius: Yogyakarta, p. 42.
Before advancing further into Indonesian laws and regulations, it is essential to establish an understanding of Indonesia’s ideology, namely Pancasila or the Five Pillars, which consists of the following five principles:
-
Belief in One Supreme God (Ketuhanan yang Maha Esa);
-
Just and Civilized Humanity (Kemanusiaan yang Adil dan Beradab);
-
The Unity of Indonesia (Persatuan Indonesia);
-
Democracy Guided by the Inner Wisdom of Deliberation Among Representatives (Kerakyatan yang Dipimpin oleh Hikmat Kebijaksanaan dalam Permusyawaratan/Perwakilan);
-
Social Justice for All the People of Indonesia (Keadilan Sosial bagi Seluruh Rakyat Indonesia).
The validity of the constitution and other norms rests upon these Five Pillars. Furthermore, all values that exist in Indonesia are encapsulated and highlighted in Pancasila. As such, to ensure that laws and regulations in Indonesia reflect the nation’s philosophy of life, Pancasila must serve as a point of reference in their formulation.
Laws and Regulations Hierarchy in Indonesia
Following Hans Kelsen and Hans Nawiasky’s level legal norms, it is possible to view Indonesia’s laws and regulations within the pyramidical hierarchy, the contents of which can be found in Article 7 (1) jo. Article 2 of Law No. 12/2011. The hierarchy consists of the following:

Laws and Regulations in Indonesia
Source: Law No. 12/2011.
As illustrated in Graph V.2., Pancasila serves as the basic norm, or ‘grundnorm,’ upon which all subsequent laws emanate. This structure ensures that the laws and regulations in Indonesia, particularly those enacted by lower state institutions, maintain a continuous chain of legitimacy flowing from the top to the bottom.
Furthermore, laws and regulations in Indonesia consist of:
1945 Constitution
The 1945 Constitution is a written fundamental law or state constitution, serving as the foundation and source for other regulations or laws within the Republic of Indonesia. It consists of two parts: the preamble and the body. The preamble comprises 4 (four) paragraphs, while the body contains 16 (sixteen) chapters, 37 (thirty-seven) articles, 3 (three) transitional provisions, and 2 (two) additional provisions.
Assembly Decree
Initially, the Assembly Decree was regulated in TAP XX/MPRS/1966. As stated in its attachment, the Assembly Decree maintains a strong position in the hierarchy, which is also falls under the 1945 Constitution. Then in 2000, the Assembly issued TAP III/MPR/2000, causing TAP MPRS Number XX/MPRS/1966 to be declared revoked and no longer valid.
TAP III/MPR/2000 continues to hold a position within the hierarchy of laws and regulations. However, after amendments were made to the 1945 Constitution regarding the Assembly (seen in the provisions of Article 1 (2) of the 1945 Constitution), sovereignty rests with the people and is carried out according to the Constitution. This has resulted in the Assembly no longer being the highest state institution. Furthermore, in the third amendment of the 1945 Constitution, the Assembly’s authority to formulate the 1945 Constitution and the Broad Outlines of State Policy was revised to state that "The Assembly [only] has the authority to amend and enact the Constitution."
The loss of the Assembly's authority in determining the Broad Outlines of State Policy has impacted the Assembly's authority to make regulatory legal products. This has made the position of the Assembly Decree within the hierarchy of laws and regulations in Indonesia to be unclear. Moreover, Law No. 10/2004 changes the types and hierarchies of laws and regulations, causing the Assembly Decree to have absolutely no position in the hierarchy of laws and regulations. However, after the government issued Law No. 12/2011, the Assembly Decree has reclaimed its position in Indonesia's hierarchy of laws and regulations. The has had a big and significant as it has meant that the Assembly Decree has become a source of formal and material law.
Laws or Government Regulations in Lieu of Law
Furthermore, Government Regulations in Lieu of Law are laws enacted by the President in circumstances of compelling urgency. The President is entitled to issue such regulations provided that the conditions set out in Constitutional Court Decision Number 138/PUU-VII/2009 are met, namely:
-
there is an urgent need to resolve legal issues through law;
-
the required law does not exist, resulting in a legal vacuum, or the existing laws are insufficient to address the issue; and
-
the legal vacuum cannot be resolved through the ordinary legislative process due to time constraints requiring immediate legal certainty.
It should be noted that the approval of the House of Representatives remains mandatory for Government Regulations in Lieu of Law to remain valid. The deliberation of a bill of law concerning the enactment of a Government Regulation in Lieu of Law follows the same procedure as that applicable to an ordinary bill of law. If the House of Representatives decides to reject the Government Regulation in Lieu of Law, such law must be revoked immediately.
Government Regulation
Based on Article 1 Law 12/2011, Government Regulations are regulations issued by the President to ensure the proper implementation of laws. Within the legal framework, Government Regulations are considered subsidiary regulations and may only be issued when expressly mandated by law. The President is the authorized to issue such regulations.
Presidential Regulation
Presidential Regulation is a type of statutory regulation, stipulated by the President, to carry out the order of higher laws and regulations or to carry out government powers. Article 13 Law No. 12/2011 delineates the contents of Presidential Regulations, encompassing: (i) materials ordered by law, and materials for implementing Government Regulations; or (ii) materials for implementing the administration of government power. Based on the article, it can be concluded that the Presidential Regulation has three functions, namely: (i) delegation regulations, (ii) implementing regulations, and (iii) independent regulations.
Provincial Regulation
Provincial Regulations are laws and regulations made by the Provincial Regional Legislative Council with the approval from the Governor. Furthermore, Article 14 Law No. 12/2011 explains the content of Provincial Regulations to contain material for the implementation of regional autonomy and co-administration tasks, as well as, accommodating special regional conditions and/or a further elaboration of higher legislation.
Regency/Municipality Regulation
Regency/Municipality Regulations are statutory regulations made by the District/City Regional Legislative Council subject to the approval from the Regent/Mayor. Furthermore, Article 14 Law No. 12/2011 explains the contents of Regency/Municipality Regulations, emphasizing its role in implementing regional autonomy and co-administrative tasks. Additionally, the Regency/Municipality Regulations can be used to account for special regional conditions, as well as the further elaboration of higher legislation.
The Characteristics of Regulation and Decree
It is important to distinguish between regulations and decrees, as they differ in nature and legal function.
Regulation
A regulation is a law whose nature lies in abstract or general norms, intended to govern general matters and is binding publicly and indiscriminately. In theory, the term “regulation” has 2 (two) meanings: (i) the process of forming state regulations, both at the central and regional levels; and (ii) all applicable laws in a country, resulting from the formation of regulations, both at the central and regional levels.
For the purpose of this section, the term regulation refers to the latter meaning, namely all applicable laws in a country. Article 1 (2) jo. Article 7 jo. Article 8 Law 12/2011 provides that laws and regulations refer to all legally binding legislation issued by the House of Representatives in conjunction with the government. Decrees issued by administrative bodies or officials also fall within the definition of laws and regulations. Both are applicable at central and regional levels.
From the foregoing, it can be concluded that the characteristics of laws and regulations include: (i) general and comprehensive; (ii) universal; (iii) pre-emptive; and (iv) having the capacity fot self-correction.
Decree
In contrast to a regulation, a decree is defined as a unilateral public legal act carried out by a state administrative body. The most distinguishing feature of a decree, as compared to a regulation, lies in its specific and individual nature. When issuing a decree, the administrative body addresses a particular individual or entity concerning a specific matter. Article 1 (3) Law 5/1986 defines an administrative decree as a written decision issued by a state administrative body or official, consisting of administrative law based on prevailing laws and regulations. Such decrees are concrete, individual, and final in nature, and give rise to legal consequences for an individual or legal entity.
Based on the foregoing, the characteristics of a decree may be identified as follows: (i) a unilateral declaration of will; (ii) issuance by government authority; (iii) foundation in public law; (iv) application to specific and individual matters; and (v) the creation of legal consequences in the field of administrative law. Examples of decrees include birth certificates, marriage certificates, and land ownership certificates.
Attribution, Delegation, and Mandate
State institutions require a source of legitimacy for their authority. The power vested in a state institution must originate from an external source, particularly for lower state institutions. In administrative law, there are 3 (three) methods through which a public institution may acquire legitimacy and authority: attribution, delegation, and mandates.
Attribution
The primary method of obtaining legal and institutional authority is through attribution. As the term suggests, attribution involves the granting of authority by legislature to government institutions through the constitution or legislation. Attribution creates a new authority that did not previously exist and vest such authority in government institutions and/or officials by virtue of the 1945 Constitution or legislation.
Delegation
The second method of acquiring authority is through delegation, which is defined as “the delegation of government authority from one body to another”. Delegation is the transfer of authority from superior government agencies and/or officials to inferior government agencies and/or officials, whereby responsibility and liability is being fully transferred to the recipient of the delegation.
Mandate
The last method of obtaining authority is through a mandate, which involves the delegation of authority from a higher government body and/or official to a subordinate body and/or official. However, under a mandate, responsibility and liability remain with the mandating authority.
The distinctions in nature and consequences between mandates and delegation are as follows:

Comparison between Mandate and Delegation
Source: Ridwan HR., “Hukum Administrasi Negara”, (Depok: PT RajaGrafindo Persada, 2018), p. 107.
Contracting with Third Parties
In every line of business, contracts occupy a vital and crucial position. The validity of contracts must be guaranteed to ensure the smooth operation of a business. Therefore, the sections below will elaborate on the prevailing contract law in Indonesia.
Definition of Contract
The legal regime governing private law in Indonesia is contained in the ICC, which has been in force since the Dutch colonial period. In the context of contracts, the ICC provides the legal basis applicable to all contracts entered into in Indonesia. Article 1313 ICC stipulates that “a contract is a legal act whereby one person or more persons bind themselves to one or more other persons.” There are 3 (three) categories of contract based on the type of obligation involved, namely: (i) obligations to give something; (ii) obligations to do something; (iii) obligations to refrain from doing something.
A contract to give something imposes an obligation on the debtor to deliver and maintain the object of the obligation in proper condition for the benefit of the creditor. The creditor is also entitled to compensation in the event of the debtor’s default.
In contracts involving obligations to do or not to do something, the creditor is likewise entitled to claim compensation in the event of non-performance. In addition, the creditor may seek the reversal of acts undertaken by the debtor that prejudice the creditor’s interests, either through judicial means (court) or by fulfilling the obligation at the debtor’s expense when permitted by law.
Categories of Contracts
In addition to the abovementioned types, there are 6 (six) types of contracts:
Conditional Contracts
Conditional contracts are defined as contracts whose validity and conclusiveness depend on a future or uncertain event.
Temporal Contracts
Temporal contracts are contracts in which performance is subject to a specific time condition. Creditors are not entitled to demand performance before the maturity of the contract. Likewise, debtors are not entitled to reclaim a performance already rendered prior to the maturity date. The determination of maturity generally operates for the benefit of the creditor, unless the nature of the contract or circumstances indicate otherwise.
Disjunctive Contracts
A disjunctive contract allows the debtor to fulfill their obligation by delivering one of two specified goods. However, debtors are prohibited from offering the creditor the partial performance of each good and combining them as one. A disjunctive contract reverts to a standard contract if one of the goods becomes unavailable due to hindrance, loss, or other causes attributable to the debtor. In such circumstances, the debtor is obligated to compensate for the lost good proportionate to its value.
If only one of the goods is lost, the creditor is entitled to demand performance with respect to the remaining goods. If the loss is attributable to the debtor, the creditor is entitled to the remaining goods or a payment equivalent to the value of the lost good. If both goods are lost, the creditor is entitled to full compensation equivalent to the value of the lost goods.
Joint Contracts
A joint contract among creditors entails that each creditor in a group of creditors to claim performance from the debtor on behalf of the others. The debtor is free to choose which creditor to perform the obligation for, and such performance discharges the debtor’s obligation toward the other creditors. A creditor is also entitled to claim performance from any given debtor, or any other debtor they wish, and the debtor may not demand that the obligation be divided.
In the case of a joint contract among debtors, where several debtors share joint liability and obligation for performance, performance by one debtor releases the remaining debtors. The creditor may impose different conditions on each debtor with respect to the performance of their respective obligations.
Divisible and Indivisible Contracts
The divisibility of a contract pertains to the divisibility of the performance based on its nature, whether physical or otherwise. However, even if a performance is naturally divisible, it shall not be considered divisible if the contract requires the performance in its entirety. Moreover, a divisible contract must be performed in a manner that treats the contract as indivisible, unless it is concerning inheritors of a party to the contract, who are responsible only for their own rights or obligations. Therefore, an inheritor of a creditor to a divisible performance is not allowed to individually relieve the debtor from their obligation, or take the due payment for their own. If such a case occurred, the rest of the inheritors shall claim their own share, excluding the portion which has already been taken by the first inheritor.
In addition, a conference of debtors, who are collectively responsible for a divisible performance, is obligated to it in its entirety, even if the contract is not a joint contract.
Contracts with Penalties
A penalty clause may be included in the contract to prevent the debtor from defaulting their obligation, taking the form of compensation for damages and loss, and interest. A creditor is not allowed to claim both the performance of the principal obligation and the penalty, as the penalty was only devised as an alternative in case of the debtor’s default. However, in case of default, a creditor may demand the performance of the principal obligation instead and, therefore, relieve the debtor from the penalty. Therefore, the invalidity of the contract shall invalidate the penalty clause, but the relief of the penalty clause does not invalidate the contract.
Validity of Contract
Article 1320 ICC further stipulates the cumulative conditions of a valid contract, which are as follows:
The Consent of Both Parties
It is essential that contracts are based on the free and mutual consent of the contracting parties to ensure that the performance is undertaken voluntary. Accordingly, contracts concluded as a result of error, duress, or fraud are deemed invalid. In the case of error, invalidity arises only when the error relates to the substance of the object of the contract.
Furthermore, a contract concluded under duress is considered invalid. Any act that induces fear in a reasonable person–such that they, their family, or their property are in imminent danger–constitutes coercion. However, a claim for annulment based on duress is no longer admissible if the coercion has ceased and the contract continues to be performed, or if the period prescribed by law for seeking annulment has elapsed.
Lastly, fraud as a ground for invalidity occurs when one party deceives the other into entering into a contract that would not have been concluded in the absence of such deception. Fraud must be proven and cannot be presumed.
The Legal Capacity to Engage in the Legal Act
The ICC provides that every person has the capacity to enter into a contract, except for minors and persons under guardianship. The incapacity of minors and persons under guardianship is absolute and cannot be waived.
The Certainty of the Object of the Contract
Pursuant to Article 1332 jo. Article 1333 ICC, only objects that may be traded are eligible to be the subject of a contract, provided that their nature or quantity can be determined. Contracts concerning future objects are permissible, except in relation to inheritance.
Lawful Cause
The law requires that a contract must be based on a lawful cause. A cause is considered lawful as long as it does not contravene the law, public order, or morality. It is important to distinguish the cause of a contract from the personal motives of the parties. A contract may remain valid even if the cause is not expressly stated, provided that it is lawful.
Performance of Contract
It is important to consider certain matters in the performance of a contract in order to safeguard the interests of both parties. These matters include:
The Implementation of Good Faith
The principle of good faith is prescribed by Article 1338 ICC. This principle essentially demands that both parties undertake the contract in such a manner that does not offend the trust and spirit of either party.
The Object of Performance
A contract binds not only matters explicitly stipulated therein but also matters that are implied by justice, custom, or applicable laws. This is particularly relevant when a court assesses a contractual dispute based on principles beyond the express terms of the contract.
The Subject of Performance
According to Article 1315 ICC, only the contracting parties are subject to the contract. However, exceptions can arise when a third party is involved as a second bearer of the right to performance by the debtor, or when a third party is involved as a second bearer of the obligation to perform for the creditor. This arrangement is irrevocable once the third party consented to it, and does not diminish the right of the creditor to demand performance from the principal debtor.
The Interpretation
Commonly applied methods of interpretation in contract law include: (i) grammatical or literal interpretation; (ii) systematic or contextual interpretation; (iii) teleological or purposive interpretation; (iv) historical interpretation. The ICC adopts these methods in construing contractual provisions.
If the wording of a contract is clear, interpretation beyond its literal meaning is not permitted. However, where ambiguity arises, the intention of the parties at the time of concluding the contract must be ascertained. In such cases, interpretation should consider the nature and purpose of the contract.
If a clause has multiple meanings, the interpretation that allows for the most feasible performance of the obligation shall prevail, or the interpretation that best aligns with the nature of the contract. Clauses with multiple meanings should also be interpreted in accordance with prevailing custom.
The interpretation of a contract must be conducted as a whole, treating clauses as interconnected. Furthermore, interpretation should favor the party undertaking the obligation and benefit the party for whom the obligation is performed. Irrespective of how broadly a clause may be interpreted, it shall bind only matters that were intended by the contracting parties at the time the contract was concluded.
Breach of Contract
It is important to understand the circumstances that may lead to a breach of contract. These circumstances includes the following:
Default
A person is considered to be in default when the debtor fails to fulfill their contractual obligations. This may take the form of: (i) failure to perform; (ii) delay in performance; (iii) improper or incomplete performance; or (iv) performing an act that is prohibited under the contract. However, a debtor is deemed to be in default only after being formally notified or placed in default, or when the contract itself stipulated that default arises automatically upon the occurrence of a certain event.
As a consequence, the creditor is entitled to demand the performance of the obligation, even after the debtor has been declared in default. Furthermore, the creditor may claim compensation, which includes: (i) costs incurred by the creditor; (ii) losses suffered as a result of the default; (iii) interest; and (iv) loss of potential profit. The first two categories must be calculated strictly, encompassing only costs that could reasonably have been foreseen at the time of the conclusion of the contract and losses directly caused by the default. Only these costs will be compensated.
In the case of a joint contract where an object is destroyed due to the fault of a debtor, the remaining debtors are only obliged to bear the shared cost of the object, and not the compensation, interest, or losses. Such claims may only be directed against the debtor at fault.
Furthermore, a contract may be declared null by as a result of a breach. Such annulment gives rise to restitution, whereby the parties are required to restore what has been received, thereby returning them to their respective positions as if the contract had never existed. Even where the contract provides for annulment, such annulment must be effected through judicial process.
Force Majeure
Force majeure refers to a breach of contract, such as the failure or delay in performance, arising from an unforeseen event that prevents the debtor from performing the obligation. The same principle applies where an inevitable and unforeseeable event hinders the debtor from fulfilling the obligation. A force majeure event may also release the debtor from liability where it results in the destruction of the subject matter of the contract.
Moreover, even if the object is destroyed after the debtor has been declared in default, liability may still be excluded if it can be proven that the object would have been destroyed while in the possession of the creditor. In such a case, any insurance proceeds related to the destroyed object must be transferred to the creditor as compensation.
There are 2 (two) types of force majeure: (i) absolute force majeure; and (ii) relative force majeure. The former entails the complete inability of the debtor to deliver the performance due to force majeure, while the latter involves the ability to perform, but only at an extraordinary cost or with exceptional effort.
Additionally, the generally accepted characteristics of force majeure include: (i) the occurrence of an unforeseeable event; (ii) the removal of liability from the debtor; (iii) the absence of bad faith; (iv) the absence of intentional conduct attributable to the debtor; (v) the obstruction of the performance of the contractual obligation; and (vi) the event being beyond the control of the parties.
Cessation of Contract
A contract will cease to exist in any of the following cases:
-
Payment or Performance of contract
-
Debt payment offering or debt renewal;
-
Debt satisfaction or compensation;
-
Debt consolidation;
-
Debt relief;
-
The perish of the object of contract;
-
Annulment by law;
-
The activation of annulment clause;
-
Prescription.


















