Quick answer
Key points
- Regulation 32/2025 was signed on 1 December 2025, promulgated on 4 December 2025 and took effect on promulgation.
- It uses five animal freedoms: freedom from hunger and thirst; from pain, injury and disease; from discomfort, abuse and misuse; from fear and distress; and freedom to express natural behaviour.
- The companion-animal chapter covers dogs and cats. Owners must provide food and water, decent housing and health care, and must not abandon their animals.
- Neutering, microchipping, and vaccination or treatment using prescription-only medicines or parenteral methods may only be done by a vet or a paraprofessional under a vet's supervision.
- The regulation sets no criminal penalties or fines for owners. Criminal penalties for animal cruelty are in Article 337 of the Criminal Code and in Law 41/2014.
- Cruelty can be reported to a police SPKT desk or the police call centre on 110; the district or city agency is tasked with following up public reports of welfare breaches.
In this guide (12)
Start with these steps
- Provide water and food suited to the animal's species, age and condition, and keep bowls clean.
- Keep enclosures within capacity, ventilated and sheltered from the weather, and let the animal out to move about.
- Take the animal to a vet for regular check-ups and follow the advice, including on vaccination and parasite control.
- Never leave or abandon the animal, and have a plan in case it escapes.
- Ask your district or city agency whether pet identification and registration has started in your area.
- Transport the animal safely and comfortably.
- If you see cruelty, note the facts from a safe place, then report to a police SPKT desk, to 110 in an emergency, or to the local agency.
What is Regulation 32/2025?
Minister of Agriculture Regulation 32/2025 on the Implementation of Animal Welfare was signed on 1 December 2025 and promulgated on 4 December 2025. The ministry's legal database (JDIH) lists it as in force, published in the State Gazette 2025 No. 1016. Article 105 says it took effect on the day it was promulgated.
The regulation implements Article 66(4) of Law 18/2009 on Animal Husbandry and Animal Health. It covers applying animal welfare, animal-welfare certification, and guidance, supervision and public participation. Welfare rules apply to every kind of animal whose survival depends on people, including invertebrates that can feel pain.
The duty to apply animal welfare falls on animal owners, people who handle animals as part of their work, and owners of animal-keeping facilities. The last group includes conservation institutions, animal shelters, business units and abattoirs.
Evidence: JDIH Kementan — Peraturan Menteri Pertanian Nomor 32 Tahun 2025 tentang Penyelenggaraan Kesejahteraan Hewan (status: Berlaku) ↗ · Kementerian Pertanian — Permentan 32/2025 tentang Penyelenggaraan Kesejahteraan Hewan, teks lengkap (PDF) ↗
What are the five animal freedoms in the regulation?
Article 3(1) requires the principle of animal freedom to be applied: freedom from hunger and thirst; from pain, injury and disease; from discomfort, abuse and misuse; from fear and distress; and freedom to express natural behaviour. The principle applies, among other things, to housing, keeping and care, transport, and slaughter and killing.
The idea of five freedoms comes from Britain. According to the Farm Animal Welfare Council, a UK government advisory body set up in 1979, the concept was implicit in the 1965 Brambell report and was refined and published in the late 1970s. The Indonesian wording differs slightly: the third freedom also names abuse and misuse, and the fifth speaks of natural behaviour, where the British version says normal behaviour.
Evidence: Kementerian Pertanian — Permentan 32/2025 tentang Penyelenggaraan Kesejahteraan Hewan, teks lengkap (PDF) ↗ · UK Government (Farm Animal Welfare Council) — Farm Animal Welfare in Great Britain: Past, Present and Future (October 2009, PDF) ↗
What must dog and cat owners do?
The companion-animal chapter (Articles 18 to 36) covers dogs and cats. For other pets, Article 18(2) refers to keeping guidelines set by the Director General of Livestock and Animal Health. Owners' duties fall into four parts: water and food, management of keeping, health care, and treatment that lets the animal express natural behaviour.
Some duties people often ask about: not leaving or abandoning the animal unattended in a way that causes distress, letting it out of its enclosure rather than caging it permanently, having an emergency plan if it escapes, and moving or transporting it safely and comfortably. Owners must also stop their animals from harming other people, other animals and the surroundings.
Article 27 asks owners to identify their pets with the district or city agency, and the results are registered in a database. It is carried out under the Director General's guidelines, so ask your local agency whether the service is available yet.
| Area | What the regulation requires | Article |
|---|---|---|
| Water and food | Suited to species, age, activity, physiological state and health; easy to reach; enough food with balanced nutrition; gradual changes of diet; clean bowls | Article 20 |
| Housing | Enclosures within capacity and in working order; cleaned and bedding changed regularly; good ventilation; shelter from weather; toilet area away from the sleeping area | Article 21(a)–(f) |
| Handling | Handled calmly and not roughly; aggressive animals kept apart; protected from predators, pests and dangerous objects | Article 21(g), (h), (q), (r) |
| Space and activity | Allowed out of the enclosure and never caged permanently; play, hiding and resting areas; enough exercise; a scratching post | Article 21(i)–(l) |
| No abandonment | Not left or abandoned unattended; an emergency plan in case the animal escapes | Article 21(m), (o) |
| Routine care | Care of coat, claws, ears and teeth | Article 21(p) |
| Mothers and litters | Enough nutrition, health care and a comfortable place for mother and young; preventing neglect of the young | Article 21(s) |
| Health | Regular check-ups and following the vet's advice; recognising signs of illness; vaccination; parasite control; treatment of sick animals; managing reproduction | Article 22(1) |
| Natural behaviour | Surroundings and equipment that stimulate physical and mental activity; chances to interact; preventing harm to other people, animals and the neighbourhood | Article 23 |
| Transport | Moving or transporting the animal safely and comfortably | Article 21(n) |
| Identification | Identifying the animal with the district or city agency so it can be registered | Article 27(2) |
What may only a vet do?
Health care for pets can be carried out by the owner, a vet, or a veterinary paraprofessional supervised by a vet. But Article 22(3) reserves some procedures for vets or paraprofessionals under a vet's supervision: vaccination, parasite control and treatment that use prescription-only medicines or parenteral methods; managing reproduction by surgery (neutering) or chemical methods; and identification by a microchip under the skin or by surgery.
Permanent neutering means surgical removal of the reproductive organs by a vet, and chemical contraception is given by a vet (Article 28). Euthanasia must be carried out by a vet or by animal-health staff supervised by a vet (Article 32).
What about breeders, sellers, shelters and transporters?
Regulation 32/2025 has no separate chapter for pet shops. A seller counts as a business unit, meaning a place that regularly and continuously produces, handles, sells or displays animals for commercial purposes, and owners of business units must apply animal welfare. Pet breeders must respect a minimum breeding age and a maximum number of litters, and avoid selective breeding that can cause inherited disease and extreme body shapes.
For transport, Article 48 requires suitable, clean vehicles, handling that does not hurt and keeps stress low, water and feed as needed, sanitation and an emergency procedure. Whether an animal is fit to travel is decided by a vet. Animals that are sick, in the last third of pregnancy, blind in both eyes or unable to stand are not transported, except for therapy or treatment.
| Role | Main duties | Article |
|---|---|---|
| Dog and cat owners | Water and food, housing, health care, natural behaviour, no abandonment, identification with the local agency | Articles 5(1), 19–23, 27 |
| Pet breeders | Respect a minimum breeding age and a maximum number of litters; avoid selective breeding that causes inherited disease or extreme body shapes; have a plan for retired breeding animals and young that do not meet criteria | Article 28(4)–(5) |
| Sellers (business units) | Apply animal welfare as owners of an animal-keeping facility; there is no separate chapter for pet shops | Articles 1(26), 5(4) |
| Shelter or foster-home managers | Provide decent temporary housing and care; assess would-be adopters; disclose the animal's condition, medical history and behaviour; sign an adoption agreement; educate adopters | Articles 29–30 |
| Animal transporters | Suitable, clean vehicles; handling that does not hurt and keeps stress low; water and feed; sanitation; an emergency procedure; no transport of sick or late-pregnant animals except for treatment | Articles 48–53 |
| Users of working animals | Water at all times and suitable feed; no doping; work within the animal's ability with rest; no work for injured, pregnant, nursing or young animals | Articles 37–47 |
| Vets and paraprofessionals | Procedures using prescription-only medicines or parenteral methods, neutering, microchipping and euthanasia; deciding whether an animal is fit to travel | Articles 22(3), 28, 32, 48(4) |
What are the rules for working animals?
Working animals under the regulation are horses, cattle, buffalo and dogs. They are used for, among other things, ceremonies, tourism, security patrols, carrying or pulling loads, guarding homes or plantations, tracking, and helping people with disabilities. Their use must take account of the animal's physical and mental capacity.
Users of working animals must provide drinking water at all times and suitable feed, and must not give doping agents or stimulants that can harm the animal. Working animals must be healthy, work within their ability, get rest and never be worked beyond their physical limits. Disabled, injured, lame or wounded animals, and pregnant, nursing or young animals, must not be worked. While waiting, animals must be kept somewhere shaded, clean, comfortable and safe, with drinking water.
What does it say about stray and abandoned animals?
Population control applies to owned dogs and cats that are lost, those deliberately dumped, and unowned ones. The tools are communication, information and education; identification and registration; managing reproduction; temporary shelters; adoption; population reduction; vaccination; and limiting access to resources that help populations grow.
Temporary shelters can be provided by central government, local government and/or the public. Adoption takes place from shelters or foster homes, with an assessment of would-be adopters and an adoption agreement.
Population reduction is also covered, by euthanasia, poison baits supervised by district or city agency staff, or shooting involving an agency authorised to use firearms. One way of limiting resources is to stop feeding unowned animals in places where it disturbs security, public order and environmental health.
Who enforces it, and what are the penalties?
Guidance and supervision are carried out by the minister, governors and district heads or mayors within their powers, through the Director General of Livestock and Animal Health and the heads of provincial and district agencies. At district level, the agency head's tasks include following up public reports of welfare breaches. The regulation also provides for an Animal Welfare Commission, set up by ministerial decree.
Regulation 32/2025 sets no criminal penalties or fines for pet owners. Its only administrative sanctions apply to business units holding an animal-welfare certificate: if a unit fails to correct a drop in compliance, it receives up to two written warnings and then loses its certificate.
Criminal penalties are set by statute. Article 337 of the Criminal Code (KUHP, Law 1/2023), in force since 2 January 2026, punishes animal cruelty with up to 1 year in prison or a fine of up to category II (Rp10 million). This rises to up to 1 year 6 months in prison or a category III fine (Rp50 million) if the animal is sick for more than a week, disabled, seriously injured or dies.
Article 66A of Law 41/2014 bans abusing and/or misusing animals in ways that leave them disabled and/or unproductive. As adjusted by Law 1/2026 on Criminal Penalty Adjustment, the penalty in Article 91B is now a fine of up to category II. Law 1/2026 also removed special minimum sentences from laws outside the Criminal Code, except laws on gross human rights violations, terrorism, corruption and money laundering.
Evidence: Kementerian Pertanian — Permentan 32/2025 tentang Penyelenggaraan Kesejahteraan Hewan, teks lengkap (PDF) ↗ · JDIH BPK — UU No. 1 Tahun 2023 tentang Kitab Undang-Undang Hukum Pidana (tanggal berlaku 2 Januari 2026) ↗ · JDIH BPK — UU 1/2023 (KUHP), teks lengkap dan penjelasan (PDF; Pasal 79, 336, 337, 338, 622, 624) ↗ · JDIH BPK — UU 41/2014, teks lengkap (PDF; Pasal 66A dan 91B) ↗ · JDIH BPK — UU No. 1 Tahun 2026 tentang Penyesuaian Pidana (berlaku 2 Januari 2026) ↗ · JDIH BPK — UU 1/2026 tentang Penyesuaian Pidana, teks dan Lampiran I (PDF; Pasal I, II, IX; Lampiran no. 115 dan 183) ↗
How do you report cruelty or neglect?
Article 66A(2) of Law 41/2014 obliges anyone who knows of abuse or misuse that leaves an animal disabled or unproductive to report it to the authorities. Criminal reports go to the police's integrated service desk (SPKT), which the police say handles public reports and complaints. For something happening now, the police call centre on 110 is free and takes complaints about, among other things, violence.
Welfare breaches such as neglect can be reported to the district or city agency responsible for livestock and animal health, because Regulation 32/2025 tasks it with following up public reports. If the victim is a protected wild animal, you can also report through the Forestry Law Enforcement (Gakkum) complaints app. Note the date, time, place and what you saw, and do not confront the person yourself.
Evidence: JDIH BPK — UU 41/2014, teks lengkap (PDF; Pasal 66A dan 91B) ↗ · Polri — Sentra Pelayanan Kepolisian Terpadu (SPKT) ↗ · Polri — Call Center 110 ↗ · Kementerian Pertanian — Permentan 32/2025 tentang Penyelenggaraan Kesejahteraan Hewan, teks lengkap (PDF) ↗ · Gakkum Kehutanan — Pengaduan Penegakan Hukum Kehutanan ↗
Sources & references
- JDIH Kementan — Peraturan Menteri Pertanian Nomor 32 Tahun 2025 tentang Penyelenggaraan Kesejahteraan Hewan (status: Berlaku) ↗
- Kementerian Pertanian — Permentan 32/2025 tentang Penyelenggaraan Kesejahteraan Hewan, teks lengkap (PDF) ↗
- UK Government (Farm Animal Welfare Council) — Farm Animal Welfare in Great Britain: Past, Present and Future (October 2009, PDF) ↗
- JDIH BPK — UU No. 1 Tahun 2023 tentang Kitab Undang-Undang Hukum Pidana (tanggal berlaku 2 Januari 2026) ↗
- JDIH BPK — UU 1/2023 (KUHP), teks lengkap dan penjelasan (PDF; Pasal 79, 336, 337, 338, 622, 624) ↗
- JDIH BPK — UU 41/2014, teks lengkap (PDF; Pasal 66A dan 91B) ↗
- JDIH BPK — UU No. 1 Tahun 2026 tentang Penyesuaian Pidana (berlaku 2 Januari 2026) ↗
- JDIH BPK — UU 1/2026 tentang Penyesuaian Pidana, teks dan Lampiran I (PDF; Pasal I, II, IX; Lampiran no. 115 dan 183) ↗
- Polri — Sentra Pelayanan Kepolisian Terpadu (SPKT) ↗
- Polri — Call Center 110 ↗
- Gakkum Kehutanan — Pengaduan Penegakan Hukum Kehutanan ↗
References can change. Check dates and context in the original source.
Cite this page
PanduanHewan. (2026, 1 October). Permentan 32/2025: Indonesia's animal welfare rules for owners. PanduanHewan.org. https://panduanhewan.org/en/guides/indonesia-animal-welfare-regulation-permentan-32-2025/