Bridging Law and Practice in Systematic Complete Land Registration (PTSL): A Juridical Analysis of the National Land Agency's Authority

Zetria Erma; Said Rijal; Elvira Fitriyani Pakpahan; Heriyanti; Roswita Sitompul

doi:10.66325/nusantaralaw.v5i2.161

Authors

Zetria Erma Universitas Prima Indonesia, Indonesia
Said Rijal Universitas Adiwangsa Jambi, Indonesia
Elvira Fitriyani Pakpahan Universitas Prima Indonesia, Indonesia
Heriyanti Universitas Prima Indonesia, Indonesia
Roswita Sitompul Universitas Prima Indonesia, Indonesia

DOI:

https://doi.org/10.66325/nusantaralaw.v5i2.161

Keywords:

Empirical Legal Research; Land Governance; Legal Authority; Legal Certainty; National Land Agency; Systematic Complete Land Registration (PTSL).

Abstract

Systematic Complete Land Registration (Pendaftaran Tanah Sistematis Lengkap/PTSL) constitutes a strategic legal instrument introduced by the Indonesian government to accelerate nationwide land registration while strengthening legal certainty, protecting property rights, and improving land governance. Despite its ambitious objectives, the implementation of PTSL continues to encounter institutional, administrative, and socio-legal challenges that affect the effectiveness of the National Land Agency's (Badan Pertanahan Nasional/BPN) authority in translating legal mandates into practice. This study aims to examine the legal authority of the National Land Agency in implementing PTSL, evaluate the gap between regulatory provisions and field implementation, and identify the principal factors influencing the effectiveness of the program. Employing an empirical juridical field research design with a socio-legal approach, this study collected primary data through semi-structured interviews with officials responsible for PTSL implementation within the National Land Agency, complemented by observations and document analysis. Secondary data were obtained from statutory regulations, government policies, scholarly literature, and relevant legal documents. Data were analyzed qualitatively using an interactive model involving data reduction, categorization, interpretation, and triangulation to ensure the validity and reliability of the findings. The results demonstrate that although the National Land Agency possesses a comprehensive legal mandate under the prevailing regulatory framework, practical implementation remains constrained by limited public awareness, financial burdens associated with taxation and administrative costs, inadequate boundary demarcation, low institutional trust, and insufficient budgetary support from both central and local governments. The study further reveals that inter-institutional coordination, community engagement, and adaptive public communication significantly enhance the effectiveness of PTSL implementation. This research contributes to the development of land law scholarship by bridging the normative framework of administrative authority with empirical implementation, offering recommendations for strengthening institutional governance, improving regulatory effectiveness, and promoting sustainable legal certainty in Indonesia's national land registration system.

Downloads

Download data is not yet available.

References

Adimansyah, Sri Sulistio. “Penerapan Peraturan Menteri Agraria Dan Tata Ruang/ Kepala BPN Nomor 6 Tahun 2018 Tentang PTSL Sebagai Upaya Memitigasi Sengketa Pertanahan (Studi Kasus Kantor Pertanahan Kabupaten Boalemo).” Menulis: Jurnal Penelitian Nusantara 1, no. 6 (June 2025): 886–900. https://doi.org/10.59435/menulis.v1i6.459.

Almira, Nindha, and Nurhaslita Sari. “Efektivitas Program Pendaftaran Tanah Sistematis Lengkap (PTSL) Di Badan Pertanahan Nasional (BPN) Aceh Barat.” Journal of Social and Policy Issues, September 30, 2022, 130–134. https://doi.org/10.58835/jspi.v2i3.9.

Amin, Muhammad, Asnawi Mubarok, and Rio Arif Pratama. “Evaluation of the Implementation of the Complete Systematic Land Registration Program.” PAMALI: Pattimura Magister Law Review 5, no. 3 (December 2025): 490–502. https://doi.org/10.47268/pamali.v5i3.3279.

Anggitasari, Anna Martina, Made Warka, and Sjaifurrachman Sjaifurrachman. “The Concept of Complete Systematic Land Registration (PTSL) in Providing Legal Certainty Guarantees to Land Rights Holders.” International Journal of Sociology and Law 2, no. 3 (July 2025): 59–76. https://doi.org/10.62951/ijsl.v2i3.716.

———. “The Concept of Complete Systematic Land Registration (PTSL) in Providing Legal Certainty Guarantees to Land Rights Holders.” International Journal of Sociology and Law 2, no. 3 (July 2025): 59–76. https://doi.org/10.62951/ijsl.v2i3.716.

Aripin, Rizal, Sartika Dewi, Abdul Yani, Defirstta Rahmadhani, Muhamad Sadam Ramdhani, Rizka Putri Gunawan, and Sandiya Adi Santosa. “Implementation of the Complete Systematic Land Registration Policy (PTSL) in Tempuran District, Lemah Duhur Village.” Jurnal Hukum Dan Keadilan 1, no. 5 (August 2024): 41–49. https://doi.org/10.61942/jhk.v1i5.204.

———. “Implementation of the Complete Systematic Land Registration Policy (PTSL) in Tempuran District, Lemah Duhur Village.” Jurnal Hukum Dan Keadilan 1, no. 5 (August 2024): 41–49. https://doi.org/10.61942/jhk.v1i5.204.

Asyqa, Nur Asyqa Djumada. “Legal Certainty behind Administrative Success: A Critical Review of the Systematic Land Registration Program (PTSL) in Indonesia.” Multidisciplinary Science Journal, no. | Accepted Articles (August 2025). https://malque.pub/ojs/index.php/msj/article/view/11681.

Budiman, Arif. “The Implementation of the Complete Systematic Land Registration (PTSL) Program in Malang Regency Land Office.” Jurnal Ilmiah Administrasi Publik 6, no. 3 (December 2020): 472–478. https://doi.org/10.21776/ub.jiap.2020.006.03.17.

Butarbutar, Romasni, and Achmad Arifulloh. “Implementation of Complete Systematic Land Registration (PTSL) to Obtain Legal Certainty for Owners of Ready-to-Build Plots in Sungai Pelunggut Village, Sagulung District, Batam City.” TABELLIUS: Journal of Law 3, no. 3 (August 2025): 1251–1263.

Damanik, Fritz Hotman Syahmahita, Ahadi Rerung, Muhammad Dhobit Azhary Lubis, Deni Malik, and Ismiyatun Ismiyatun. “Community Participation in the Public Decision Process: Realizing Better Governance in Public Administration.” Global International Journal of Innovative Research 1, no. 2 (March 2024): 88–96. https://doi.org/10.59613/global.v1i2.12.

Damayanti, Mutia Siti, Yana Fajar FY Basori, and Dian Purwanti. “Effectiveness of Complete Systematic Land Registration Services (PTSL) at ATR/BPN Sukabumi City Land Office From 2022-2024.” International Journal of Social Sciences and Humanities 4, no. 2 (June 2026): 183–198. https://doi.org/10.55681/ijssh.v4i2.2259.

Erma, Zetria. “Benefits of Implementing a Complete Systematic Land Registration Program For Community-Owned Land.” Fox Justi : Jurnal Ilmu Hukum 15, no. 02 (April 2025): 338–349.

Ghani, Asiah Aqilah Abdul, Md Yazid Ahmad, Nurul Ilyana Muhd Adnan, Mohd Nasran Mohamad, Mustapha Sheikh, and Salameh Mohammad Rida Al-Omari. “Navigating Legal Constraints in Asnaf Housing Development on Waqf Land in Malaysia.” Nusantara: Journal of Law Studies 5, no. 2 (2026): 902–936. https://doi.org/10.66325/nusantaralaw.v5i2.218.

Hasan, Fenk. “National Belonging and Its Relationship with Psychological Security Among University Students.” Al-Biruni Journal of Humanities and Social Sciences, January 15, 2026, 1. https://doi.org/10.64440/BIRUNI/BIR0012.

Indriyani, Tarisa, Muslih Faozanudin, and Tobirin Tobirin. “Implementation of Complete Systematic Land Registration (PTSL) as an Effort to Accelerate Land Certification in Banyumas Regency: Constraints and Challenges.” Journal of Public Policy, Governance and Local Government 1, no. 1 (February 2026): 16–30.

Istiana, Atiqah. “The Effectiveness of the Complete Systematic Land Registration (PTSL) Program for Land Rights.” Sovereign: International Journal of Law 5, nos. 1–2 (June 2023): 58–75. https://doi.org/10.37276/sijl.v5i1-2.39.

Lubis, Muhammad Yamin, Ivana Novrinda Rambe, Erna Herlinda, Nurhadi Ahmad Juang, and Nurhimmi Falahiyati. “Analysis of Complete Systematic Land Certification (PTSL) to Increase the Economic Value of Community Land.” Mahadi: Indonesia Journal of Law 5, no. 01 (March 2026): 69–81.

Mardianda, Olga. “Implementasi Pelaksanaanpendaftaran Tanah Sistematis Lengkap Berdasarkan Peraturan Menteri Agraria dan Tata Ruang/ Kepala Badan Pertanahan Nasional Republik Indonesia Nomor 6 Tahun 2018 Tentang Pendaftaran Tanah Sistematis Lengkap Oleh Badan Pertanahan.” Juhanperak 1, no. 2 (October 2020): 35–47.

Mootalu, Sri Rahayu. “The Effectiveness Of The National Land Agency In Implementing The Complete Systemic Land Registration Program.” Estudiante Law Journal 2, no. 3 (October 2020): 511–529. https://doi.org/10.33756/eslaj.v2i3.14781.

“(PDF) Legal Protection and Certainty of Land Rights through PTSL: A Review of Indonesian State Administrative Law.” ResearchGate, ahead of print, July 7, 2026. https://doi.org/10.63332/joph.v5i6.2161.

Putri, Ressa Yusdiana, Yana Fajar FY Basori, and Dine Meigawati. “The Effectiveness Of The Complete Systematic Land Registration Program In The Issuance Of Land Certificates At ATR/BPN Kantah Sukabumi City.” Devotion : Journal of Research and Community Service 4, no. 2 (February 2023): 482–488. https://doi.org/10.59188/devotion.v4i2.379.

Rahman, Riza Nurhaidy. “Problems of Complete Systematic Land Registration (PTSL) In The Process of Land Registration In Indonesia.” Journal of Law, Politic and Humanities 4, no. 5 (July 2024): 1446–1458. https://doi.org/10.38035/jlph.v4i5.480.

Raturandang, Suwari, and Tjempaka. “Implementation of Government Policy Through Complete Systematic Land Registration in the Context of Accelerating Certificate Services in Indonesia.” Journal of Law, Politic and Humanities 5, no. 2 (January 2025): 1159–1170. https://doi.org/10.38035/jlph.v5i2.1204.

Risanah, Aan, and Azhima Eka Putri. “Strengthening Legal Awareness to Optimize the Implementation of the Complete Systematic Land Registration Program (PTSL).” JIHK 8, no. 1 (June 2026): 364–381. https://doi.org/10.46924/jihk.v8i1.461.

Said, Noor Lizza Mohamed, Mohamad Mu’az Fakhri Aziz, and Mahmood Shaker Abood Alaloosh. “Sustainability of Waqf Zurrī: Legal Analysis of Malaysia and Indonesia.” Nusantara: Journal of Law Studies 5, no. 2 (July 2026): 798–824. https://doi.org/10.66325/nusantaralaw.v5i2.259.

Saragih, Rayani, and Hanna Niken. “Implementasi Permen ATR/BPN RI No. 6 Tahun 2018 Tentang Percepatan Pendaftaran Tanah Sistematis Lengkap di Kantor Pertanahan Kabupaten Deli Serdang.” Journal of Education, Humaniora and Social Sciences (JEHSS) 4, no. 4 (May 2022): 2063–2073. https://doi.org/10.34007/jehss.v4i4.1003.

Subli, Mohamad, Darussalam Syamsuddin, Abdul Rauf Muhammad Amin, Wahida Rahim, and Sulaiman Sulaiman. “Green Investment in Contemporary Islamic Perspective: A Maqasid al-Syari‘ah Analysis of the Mining Industry in Morowali.” MILRev: Metro Islamic Law Review 4, no. 1 (April 2025): 156–183. https://doi.org/10.32332/milrev.v4i1.10269.

Suyikati, Suyikati. “Pelaksanaan Pendaftaran Tanah Sistematis Lengkap (Ptsl) Berdasarkan Peraturan Menteri Agraria Dan Tata Ruang/Kepala Badan Pertanahan Nasional Nomor 6 Tahun 2018 Di Bpn Kota Yogyakarta.” Widya Pranata Hukum : Jurnal Kajian Dan Penelitian Hukum 1, no. 2 (October 2019): 108–122. https://doi.org/10.37631/widyapranata.v1i2.43.

Usman, Nurul Amelia, Herlina Sakawati, and Muh Nur Yamin. “Complete Systematic Land Registration (PTSL) Services at The National Land Agency Office Gowa Regency.” Perkembangan Kajian Sosial 3, no. 1 (July 2026): 31–40. https://doi.org/10.69616/perkasa.v3i1.299.

Wilfi, Vania, Amelia Sri Kusuma Dewi, and Dyah Widhiawati. “Analysis of the Implementation of ATR/BPN Regulation No. 3 of 2023 concerning the Issuance of Electronic Documents.” JUSTISI 11, no. 3 (July 2025): 781–795. https://doi.org/10.33506/js.v11i3.4373.

Yarsina, Nova, Ari Budianto, Marsiansyahd, and Dian Arfianto. “Ulayat Land Registration in Providing Legal Certainty through Certification Based on the Principle of Justice.” Nusantara: Journal of Law Studies 5, no. 1 (March 2026): 187–204. https://doi.org/10.66325/nusantaralaw.v5i1.121.

Yusmiarni, Yusmiarni, Hardimen Hardimen, and Taufik Yuris Alzera. “Implementasi Peraturan Menteri Agraria Dan Tata Ruang/Kepala Badan Pertanahan Nasional Republik Indonesia Nomor 6 Tahun 2018 Tentang Pendaftaran Tanah Sistematis Lengkap (Studi Di Kantor Pertanahan Kabupaten Pasaman).” Jurnal Thengkyang 10, no. 1 (September 2025): 57–70.

Zaenuddin, Fatahussalam, Hemalia Zahra, and Inka Febby Rahmayanti. “Optimizing Systematic Land Registration (PTSL) to Enhance Legal Certainty of Land Ownership Rights: Collaboration with Religious Value in Indonesia.” Religion and Policy Journal 2, no. 1 (October 2024): 33–40. https://doi.org/10.15575/rpj.v2i1.934.

Zulfikar, Riza, Dani Durahman, Panji Adam Agus Putra, and Cecep Soleh Kurniawan. “Digital Land Registration Transformation: Does Indonesia’s Ptsl Program Guarantee Legal Certainty, Equity, And Justice?” Petita: Jurnal Kajian Ilmu Hukum Dan Syariah 11, no. 1 (April 2026): 327–348. https://doi.org/10.22373/petita.v11i1.951.