Sea Toll Program

The Sea Toll Program (Indonesian: Tol Laut), sometimes called the Sea Highway Program, is a program initiated by former Indonesian president Joko Widodo. Its aim is to reduce price disparity between the main islands of Indonesia and smaller isolated islands, especially those in East Indonesia. It was launched in 2015, and has legal basis under Presidential Decree Number 106 of 2015 & Decree from Ministry of Transportation Number 4 of 2016. The program consists of the construction of new container ports in smaller regions and regularly scheduled highly subsidized ship routes from main ports of Indonesia to smaller and more isolated ports.

Background Due to Indonesia's geography, smaller isolated islands have long lacked the infrastructure necessary for the distribution of resources. As a result, these islands lack availability of basic goods, with prices correspondingly higher than on the main islands of Java, Sumatra and Borneo.

A specialized logistical system for Indonesia was first proposed during the Yudhoyono presidency, but was never fully carried out. Joko Widodo proposed his vision of developing Indonesia from the "periphery", emphasizing that the country should pay more attention to developing and isolated regions that are often neglected. During the 2014 presidential debate, he proposed his vision called "Nawacita", a 9-point strategy which included a plan to even out development between periphery, border, and isolated areas, and the big cities of Indonesia. This included reduction of price disparities, inclusive economic development, and greater availability of goods and transportation for those that live in Indonesia's periphery regions. Additionally, he wanted to strengthen Indonesia's identity as a maritime nation.

In 2015, Widodo made a speech proposing the Sea Toll Program to reduce the price disparity of goods, especially within small islands and border regions. The program was subsequently established in the same year with three initial shipping routes.

Ship classes

Most ships used in this program were purpose-built under the order of the government. Most of the ships are named by its class name followed by order of construction. There are six classes of ships operated under this program. In 2020 there were 116 pioneer ships, 14 container ships, 6 cattle ships, 18 open deck ships, and 138 people's ships.

Cattle ship (Camara Nusantara class)

Cattle ship (Indonesian: Kapal ternak) is a type of ship used to transport live cattle such as cows, pigs, and goats. This particular ship has widespread use and regular routes to and from West and East Nusa Tenggara. Both provinces have significant cattle populations and industries. This particular type of ship is also equipped with facilities to feed the cattle, cattle pens, veterinarian clinics. and animal quarantine facilities. Each ship is usually capable of carrying up to 500 cows.

Main container ship (Logistik Nusantara class)

Main container ships are container ships that are capable of carrying up to 100 Twenty-foot Equivalent Units. The minimum docking pier length for this ship is 100m. These are mother ships in the program, usually incapable of reaching smaller ports, which mostly operate between base ports. Because of that, these ships are assisted by feeder ships.

Feeder ship (Kendhaga Nusantara class)

Feeder ships, or sometimes called connector ships (Indonesian: Kapal penghubung) are smaller versions of main container ships. They also carry fewer and smaller containers.

Pioneer ship (Sabuk Nusantara class)

Pioneer ships are ships that serve small routes that still have little-to-no commercial value. They carry goods and transport people. They are also used to transport goods from smaller ports to bigger ports and vice versa. These ships are capable of carrying up to around 250-500 people and goods between 200 and 400 tons at the same time.

Open deck ship (Gandha Nusantara class) Open deck ships (Indonesian: Kapal rede) are ships specifically built with open deck and open ramp door. Generally similar in size than pioneer ships, they also transport people and goods at the same time. Open deck ships are also used for tourism.

People's ship (Banawa Nusantara class) This type of ship usually consist of small boats donated by locals or organizations and operated by local governments. They mostly serve to connect small islands and transport people on a small scale.

Routes Since 2015, the number of routes has been expanded from 3 to over 26 routes, serving more than 100 ports. Around 50 new ports have also been constructed and the fleet specifically assigned to this program was 293 units in 2020. In 2021, 4 new routes were announced making the total 30 routes. Routes started from base ports (pangkalan) and main container ports in the region before continuing to smaller ports, and then taking the same route back. In 2023, the total routes operational were 39 routes operated both by state-owned companies and private partnerships. In 2024, another three additional new routes were announced. Table below shows information about routes as of 2025. +Cargo routes as of 2025Route codeBase portRoute destinationsOperatorDistance (nautical miles)H-1Tanjung Perak PortTanjung Perak - Makassar - Tahuna - Nunukan - Tanjung PerakPT. PELNI (PERSERO)2811H-2Tanjung Perak PortTanjung Perak - Makassar - Bobong (Taliabu) - Malbufa (Sula) - Tanjung PerakPT. DJAKARTA LLOYD2191H-3Tanjung Priok PortTanjung Priok - Teluk Bayur - Tanjung PriokPT. MERATUS LINE1124H-4Tanjung Perak PortTanjung Perak - Sorong - Tanjung PerakPT. TEMPURAN MAS LINE2718H-5Tanjung Perak PortTanjung Perak - Kupang - Ende (Maumbawa) - Tanjung PerakPT. MERATUS LINE1421S-1Bitung PortBitung -Tahuna - Lirung / Melonguane - BitungPT. DJAKARTA LLOYD438S-2AMakassar PortMakassar (Soekamo Hatta) - Ereke - Raha - Sikeli - Makassar (Soekamo Hatta)PT. DJAKARTA LLOYD743S-2BMakassar PortMakassar (Soekamo Hatta) - Bungku -Kolonodale - Makassar (Soekamo Hatta)PT. DJAKARTA LLOYD1125S-3Teluk Bayur PortTeluk Bayur - Gunung Sitoli - Sinabang - Pulau Baai - Teluk BayurPT. SUBSEA LINTAS GLOBALINDO1165S-4Sorong PortSorong - Oransbari - Waren - Sarmi - SorongPT. PELNI (PERSERO)1258S-5AKupang PortKupang - Rote - Sabu - KupangPT. PELNI (PERSERO)283S-5BKupang PortKupang - Larantuka - Lembata (Lewoleba) - Kalabahi - KupangPT. PELNI (PERSERO)988T-1Tanjung Priok PortTanjung Priok - Lhoksumawe (Aceh Utara) - Malahayati - Tanjung PriokPT. CITRABARU ADINUSANTARA2174T-2Tanjung Priok PortTanjung Priok - Kota Segara/Tanjung Uban - Letung - Tarempa - Selat Lampa - Subi - Serasan - Midai - Kota Segara/Tanjung Uban - Tanjung PriokPT. PELNI (PERSERO)1711T-3Makassar PortMakassar (Soekarno Hatta) - Nunukan - Tarakan - MakassarPT. CITRABARU ADINUSANTARA1264T-4Port of BitungBitung - Pagimana - Bunta - Ampana (Mantangisi) - Parigi - BitungPT. DJAKARTA LLOYD730T-5Tanjung Perak PortTanjung Perak - Nabire - Serui - Biak - Wasior - Tanjung PerakPT. TEMPURAN MAS LINE3782T-6Tanjung Perak PortTanjung Perak - Tidore - Jailolo - Tanjung PerakPT. PELNI (PERSERO)2336T-7Tanjung Perak PortTanjung Perak - Merauke - Agats - Pomako - Tanjung PerakPT. TEMPURAN MAS LINE3631T-8Tanjung Perak PortTanjung Perak - Kisar - Letti - Moa - Damer (Wulur) - Tanjung PerakPT. LINTAS SAMUDERA GLOBALINDO1954 T-9Tanjung Perak PortTanjung Perak - Makassar - Morotai - Galela - Maba - Weda - Tanjung PerakPT. PELNI (PERSERO)2845T-10Tanjung Perak PortTanjung Perak - Wanci - Namrole - Tanjung PerakPT. SUBSEA LINTAS GLOBALINDO1821T-11Tanjung Perak PortTanjung Perak - Saumlaki - Dobo - Tanjung PerakPT. TEMPURAN MAS LINE2677T-12Tanjung Perak PortTanjung Perak - Badas - Bima - Tanjung PerakPT. MENTARI MAS MULTIMODA867T-13Tanjung Perak PortTanjung Perak - Tarakan - Tanjung PerakPT. MERATUS LINE1708 T-14Tanjung Perak PortTanjung Perak - Namlea - Tanjung PerakPT. TEMPURAN MAS LINE1984T-15Biak PortBiak - Teba - Bagusa - Trimuris - Kasonaweja - Teba - Biak - Brumsi - BiakPT. ASDP492T-16Merauke PortMerauke (Kelapa Lima) - Kimaam - Moor - Bade (Mapi) - Gantentiri (Bovendigul) - Merauke (Kelapa Lima)PT. ASDP1038T-17Merauke PortMerauke (Kelapa Lima) - Atsy - Agats - Atsy - Senggo - Atsy - Merauke (Kelapa Lima)PT. ASDP1084T-18Pomako PortTimika (Pomako) - Atsy - Eci - Atsy - Ewer -Agats - Sawaerma - Mamugu - Timika (Pomako)PT. ASDP1220T-19Pomako PortTimika (Pomako) - Agats - Warse - Yosakor - Agats - Ayam - Katew - Agats - Yurfi - Komor - Agats - Timika (Pomako)PT. ASDP614T-20Biak PortBiak - Manokwari - Numfor - BiakPT. ASDP252T-21Tanjung Perak PortTanjung Perak - Pulau Obi - Saketa -Tapeleo(Gimea)/Patani - Piru - Tanjung PerakPT. LUAS LINE3436T-22Tanjung Perak PortTanjung Perak - Bula - Elat - Larat - Tepa - Tanjung PerakPT. LUAS LINE2704T-23Tanjung Perak PortTanjung Perak - Reo - Tanjung Perak PT. MERATUS LINE1014T-24Tanjung Perak PortTanjung Perak - Fak-Fak - Kaimana - Tual (Pulau Kur / Tayando Tam) - Dobo - Tanjung Perak PT. PELNI (PERSERO)3004T-25Tanjung Perak PortTanjung Perak - Nunukan - Tanjung PerakPT. TEMPURAN MAS LINE1806T-26Tanjung Perak PortTanjung Perak - Banggai - Tanjung PerakPT. MENTARI MAS MULTIMODA1784T-27Tanjung Perak PortTanjung Perak - Babang - Tanjung PerakPT. MENTARI MAS MULTIMODA2172 Besides the cargo routes there is also an increasing network of Pioneer ships - covering smaller ports and taking both passengers and cargo. The majority of the Pioneer ships are operated by private companies, while a minority (30 ships) are operated by Pelni. Shipping route contracting for the private companies is done annually and visible through the Government Good/Services Procurement Policy Institute (LKPP). The routes are planned monthly and subject to variability of the ports called within the route. As of 2025 there are 118 routes as shown in the table below. +Pioneer ship routes as of 2025Route codeBase portRouteOperatorDistanceR-1Sinabang PortSinabang → Meulaboh → Sinabang → Tapak Tuan → Pulau Banyak → Singkil → Sinabanginactive474R-2Calang PortCalang → Sinabang → Tapak Tuan → Sinabang → Lahewa → Sinabang → Pulau Banyak → Tapak Tuan → Sinabang → CalangPT. SUBSEA LINTAS GLOBALINDO933R-3Teluk Bayur PortTeluk Bayur → Sioban → Tua Pejat → Siberut/Mailepet → Sikabuluan → Labuhan Bajau → Sigologolo → Pulau Tello → Teluk Dalam → Sibolga → Teluk Dalam → Pulau Tello → Sigologolo → Air Bangis → Labuhan Bajau → Sikabuluan/Pokai → Siberut/Mailepet → Tua Pejat → Sioban → Teluk BayurPT. PELAYARAN KARYA BERKAT MAKMUR984R-4Teluk Bayur PortTeluk Bayur → Labuhan Bajau → Sikabuluan/Pokai → Muara Saibi → Siberut/Mailepet → Tua Pejat → Teluk Bayur → Sioban → Sikakap → Teluk Bayur → Sikakap → Sioban → Panasahan → Tua Pejat → Teluk Bayur → Sikakap → Teluk BayurPT. PELNI (PERSERO)1015R-5Bengkulu PortBengkulu → Enggano → Bengkulu or Bengkulu → Enggano → LinauPT. SEGARA LINTAS BAHARI220R-6Gorontalo PortGorontalo → Banggai → Samoya → Falabisahaya → Dofa → Sanana → Namlea → Ambon → Namlea → Sanana → Dofa → Falabisahaya → Samoya → Banggai → GorontaloPT. LUAS LINE1386R-7Sri Bintan Pura Portroute A: Tanjung Pinang → Jagoh/Dabo → Pulau Pekanjang → Belinyu → Pulau Pekanjang → Jagoh/Dabo → Tanjung Pinang route B: Tanjung Pinang → Tambelan → Midai → Selat Lampa → Pulau Laut → Seluan → Selat Lampa → Subi → Pulau Panjang → Serasan → Sintete → Tambelan → Pulau Batam → Tanjung PinangPT. PELNI (PERSERO)A: 592