Foreign Investment Restrictions in Indonesia’s Pharmaceutical Sector: What Investors Must Know

The call came at 7 PM on a Friday. Our client’s planned pharma investment in Indonesia was in Jeopardy. They had just discovered that a foreign investment restriction, which they believed had been relaxed, was still being strictly enforced by the local public authorities.

From handling hundreds of legal challenges, I know this is a common story. The global landscape of foreign direct investment (FDI) is fraught with complexity, from the harmonized FDI screening regulation in the European Union to the unique, case-by-case approach of Southeast Asia. Indonesia’s pharmaceutical sector, a cornerstone of its economic security, is a prime example of this complex regulatory environment. Navigating it requires more than just reading the foreign investment law. It requires understanding the unwritten rules and the deep-seated motivations behind the country's foreign investment policy.

Key Takeaways:

• A Strategic Sector Under Scrutiny: Indonesia’s “Positive Investment List” has liberalized many industries, but pharmaceuticals remain one of the strategic sectors with specific foreign investment restrictions designed to protect national security.
• Equity Caps as a Control Mechanism: FDI restrictions in the form of equity caps are a major barrier; key areas like drug distribution often prevent a foreign investor aiming for 100% ownership from gaining control, requiring a partnership structure.
• Licensing as a Screening Mechanism: Securing licenses from the National Agency of Drug and Food Control (BPOM) is a multi-stage investment screening process that serves as a common roadblock for foreign investors.
• The Illegality of Nominee Structures: Using local nominees to bypass ownership restrictions is illegal under Indonesia's Ultimate Beneficial Ownership (UBO) laws. The relevant authorities are focused on who ultimately controlled the entity.
• Structuring is Paramount: Successful foreign investment depends on structuring your company correctly from the start to align with both national investment rules and provincial-level enforcement.

The Current Legal Framework Governing Foreign Pharma Investment

Working directly with CEOs and international investors has taught me that they need clarity above all else. The legal framework in Indonesia is governed by the Omnibus Law and detailed in what is called the "Positive Investment List." Unlike the European Commission, which strives for a unified approach across EU member states, Indonesia’s foreign investment regimes are uniquely sovereign.

The pharmaceutical industry is not fully liberalized. While the government desires foreign direct investment for economic growth and access to critical technologies, it also acts to protect national interests in what it deems a sector of strategic importance. According to an analysis by ASEAN Briefing on Indonesia’s Positive Investment List, certain business lines are open to 100% foreign investment, while others are restricted or require partnership with domestic firms. For any foreign investor aiming to establish lasting and direct links in Indonesia, the first step is to precisely identify which classification their business falls under.

Foreign Equity Caps and Sector Restrictions in Pharma

This is where most non-EU investors and others run into trouble. You cannot invest freely across the entire pharma value chain. The core of Indonesia’s FDI screening is its specific foreign equity caps, which are designed to manage foreign influence in certain strategic sectors.

For example, manufacturing of finished pharmaceutical products might be open to 100% foreign ownership, giving an investor full voting rights. However, the distribution of those same products, a part of the nation's critical infrastructure, is often restricted. This forces a joint venture where a local partner must hold a certain percentage of the equity, preventing foreign acquiring control over the final-mile supply of medicines. These specific rules can apply differently to raw materials, medical devices, and finished goods, adding layers of complexity to any substantive assessment of an investment.

Regulatory Licensing as Indonesia's Screening Mechanism

After 5+ years in FDI legal work, I can tell you that navigating the licensing process is the most critical hurdle. This is Indonesia’s de facto screening mechanism. The main regulatory body, BPOM, functions as a multi-stage gatekeeper for any investment in the sector.

The BPOM Gauntlet

Unlike a simple notification system where investors might voluntarily notify authorities, the BPOM process is an in-depth review. It is one of the most rigorous foreign investment reviews in the region.

Foreign-owned companies (PT PMA) need a series of licenses, and the process can be delayed for months by simple documentation errors. This goes beyond a standard business permit; it is a deep dive into the safety and necessity of the pharmaceutical products being introduced. The authorities’ issue opinions that can make or break an investment.

I remember a construction project where a mid-project compliance gap could have halted a $2M investment. We had to restructure their legal framework to avoid penalties. In the pharma sector, the stakes are just as high. A failure to secure the right approvals means your products cannot be sold, rendering your entire foreign direct investment FDI useless.

Scrutiny of Sensitive Technologies and Data

As the industry evolves, so does regulatory focus. There is increasing scrutiny on investments involving sensitive technologies, such as artificial intelligence in drug discovery, advanced biologics, and dual use products. Furthermore, activities involving large-scale data processing of patient information are considered sensitive, and the government wants to ensure this sensitive information does not fall into the wrong hands.

Investment Structuring Risks and Geopolitical Shifts

The legal reality in Indonesia requires a smart approach. The global rise in geopolitical tensions and a greater focus on economic security by foreign governments have influenced Indonesia’s enforcement posture.

The Danger of Nominee Arrangements

Some investors are tempted to use local nominees to bypass foreign investment restrictions. This is a dangerous mistake. As legal experts at Norton Rose Fulbright have pointed out, using nominees is illegal under Indonesia's anti-fronting and Ultimate Beneficial Ownership (UBO) laws. The government is focused on who ultimately controls the asset, whether it's a Chinese company, a state owned enterprises from the Middle East, or other third countries. Such structures prevent genuine, effective participation and risk the entire investment.

Compliant Structuring as the Solution

Here's exactly how we solved a similar problem for a client facing ownership limits. Our solution was to create an alternative, fully compliant ownership structure using specific classes of shares and management agreements. The business impact was significant: our client retained 85% effective participation and control over the operation without breaking any laws.

A guide from Lex Mundi also confirms that while Indonesia’s foreign investment regimes are becoming more modern, strict rules on control remain. This is especially true for indirect acquisitions, which are also scrutinized.

Strategic Recommendations to Navigate Legal Barriers Successfully

The biggest lesson from ensuring our clients avoid legal problems is that regulatory complexity should not be a dead end. Successful foreign investors master three things: smart structuring, strong partnerships, and early-stage local compliance.

Instead of fighting the restrictions, work with them. Consider contract manufacturing or licensing partnerships as a lower-risk way to enter the market. And most importantly, engage legal advisors with on-the-ground experience.

My Hanoi Law University training prepared me for legal theory, but client work taught me that practical, local expertise is what truly protects an international investment. As the European Commission and European Parliament continue to debate further reform and even review outbound investments, Indonesia will continue to refine its own unique approach to balancing investment and national security.

Frequently Asked Questions

What is the most common foreign investment restriction that surprises investors in Indonesia's pharma sector?

The most common surprise is the restriction on distribution. Many assume that if they get approval for manufacturing, they can also distribute. However, Indonesian foreign investment law often separates these activities, which are both considered critical infrastructure, requiring a local partner for wholesale and blocking foreign participation in retail to protect public order.

What is the minimum capital required for a foreign-owned pharma company (PT PMA) in Indonesia?

A PT PMA must maintain a Total Investment Plan exceeding 10 billion IDR (approx. US$650,000), excluding land and buildings.

However, the Minimum Paid-Up Capital required to be deposited at the time of incorporation (as per BKPM Regulation No. 5/2025) is now 2.5 billion IDR (approx. US$150,000), which is part of the total investment plan. This is a mandatory requirement to ensure the company is a significant and serious foreign investment, demonstrating a commitment to establishing direct links with the Indonesian economy.

Is a joint venture the only way to overcome foreign ownership restrictions in pharma distribution?

While a joint venture is the most common way to comply with equity caps, it's not the only strategy. Depending on the specifics of your business, you can use licensing agreements or strategic distribution partnerships with domestic firms. This allows you to maintain 100% ownership of your manufacturing entity while leveraging a local partner's existing distribution licenses.

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