EIBN Sector Reports

Bakery Ingredients

2019
 This Sector Report was created by the EIBN unit at:

German-Indonesian Chamber of Industry and Commerce

http://www.ekonid.com

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Table of Contents
Methodology .............................................................................................................................. 3
Executive Summary ................................................................................................................... 4
I. Introduction ............................................................................................................................. 5
II. Overview ................................................................................................................................ 6
2.1. Overview of bakery ingredients market ............................................................................ 6
2.2. Trend Analysis ................................................................................................................10
2.3. Consumer Behaviour towards Bakery Ingredients Products ...........................................13
2.4. Market Structure .............................................................................................................14
III. Key Players in Bakery Ingredients Sector ............................................................................17
3.1. Local Indonesian Companies..........................................................................................17
3.2. Foreign Companies ........................................................................................................19
3.3. Retail Outlet....................................................................................................................20
IV. Regulation ...........................................................................................................................22
4.1. Halal Law........................................................................................................................22
4.2. Import Regulation ...........................................................................................................23
4.3. Tariff and Tax .................................................................................................................24
4.4. Labelling .........................................................................................................................26
4.5. Food-Related Law ..........................................................................................................27
V. Conclusion ............................................................................................................................29
Relevant Contacts.....................................................................................................................30
Associations and Related Institutions ....................................................................................30
Exhibition and Trade Fairs ........................................................................................................31
References ...............................................................................................................................33
About EIBN ...............................................................................................................................37

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Methodology
This reports aims to highlight the potential of the bakery ingredients market in Indonesia. It is an
overview of the business opportunities for European companies who want to expand their
business and covers the bakery ingredients trend, market structure, key players in bakery
ingredients market, current and future developments, as well as existing challenges.
In the preparation of this report, EIBN made use of a variety of sources and methods, which are
briefly explained herein. General information regarding the bakery ingredients market and
bakery trend analysis was retrieved from publicly available sources such as articles from Bareca
magazine, The Jakarta Post, USDA, the official website of Statistics Indonesia (BPS), the
Indonesian Investment Coordinating Board (BKPM), the Ministry of Trade and Industry of
Indonesia, UN Comtrade, World Bank, and the World Economic Forum.

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Executive Summary
The purpose of the following reports is to present an overview and to highlight potential
opportunities in the bakery ingredients market for European businesses. According to the
Indonesian Bakery Producer Association (APEBI), the average income growth of the bakery
industry is above 10% each year. In 2019 this sector’s income reached approximately USD 6
billion.
Therefore, the prospect of this sector is positive, owing to its ongoing growth, according to
Euromonitor, the sales forecast for bread, cakes, and pastries in 2019 may reach up to 688,000
tonnes. There are only few Indonesian big market players in the Indonesian bakery market, but
the number of small scale players is huge.
Based on the Statistics Indonesia bakery trend analysis in 2015, there are 639 registered
bakery and cake product companies, which include both medium and large scale manufactures.
Bakery in Indonesia mainly consists of breads, traditional snacks, cookies, wafers, biscuits, and
cakes. The Indonesian bakery industry is flourishing, with increases of bakery product sales, as
well as an increase of imported bakery ingredients. On average, the entire bakery industry in
Indonesia uses around 70% imported ingredients and 30% local ingredients.
Although Indonesians have begun to recognise bakery products as a meal choice, most of them
still consume bakery products as snacks. Analysis of the trends and preferences of Indonesian
consumers is required by new businesses, as they continue to change from year to year. Each
consumer segment in Indonesia have their own preferences towards bakery products; Western
bread and pastries appeal to high-end consumers, Japanese and Asian bread and pastries are
the preference of upper-middle income consumers, and local sweet breads and white breads
are still largely consumed by lower-middle income consumers.
In September 2014, the Government passed Law No. 33 of 2014 on Halal Product Guarantee
(UU JPH), which stipulates that halal certification is mandatory for all food, beverage, drugs and
cosmetics, as well as chemical, organic, and genetically modified products sold in Indonesia. All
imported products in Indonesia must be registered with BPOM. Importers, distributors or
retailers dealing in unregistered products are in breach of the regulations and subject to a
penalty, including confiscation of products. In some cases, trends, laws, and regulations in
certain countries becomes a challenge for foreign players entering the market and competing
with local players. Therefore. EIBN can help in navigating the Indonesian market. Overall, the
future prospects and trends in bakery ingredients market sector remains broadly positive for
specialized and quality products.

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I. Introduction
Along with globalisation, an economic crisis, a fast-growing market and threats of new rising
competitors, companies have had little choice other than reacting fast in order to survive. A
growing middle-income population and an increasingly demanding consumer base has created
a positive picture of consumption trends and future development in Indonesia. The bakery
sector has also become an industry that has been highlighted as a promising investment sector
in Indonesia for both key players – domestic and international.
In this respect, the main objective of this report will be to describe the present industry while
highlighting its existing opportunities and challenges for European companies. There will be a
general overview of the bakery industry and, more specifically, the bakery ingredients market
structure, key players, and the consumers acting in this industry. However, future prospects and
opportunities in the Indonesian market, including the national policies and regulations, will be
briefly analysed.

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II. Overview

2.1. Overview of bakery ingredients market

The Indonesian bakery industry is an interesting sector, as the market begins to grow. There are
new international and local bakeries open in the country each year, especially those in shopping
malls and department stores.1 The average income growth of the bread and bakery industry is
CAGR 6.8% 2019-2023. In 2019, this sector’s income reached approximately USD 4,259
million.. The average income growth of the cookies and crackers industry reaches USD 1,784
million.
Following the Indonesian economy rapid growth, the consumption of bread and cakes also
jumped almost 60% between 2016-2018, in 2019 the average annual consumption per capita is
9.5kg. According to the Australian Export Grains Innovation Centre (AEGIC), over the last five
years, Southeast Asian nations imported a total of 42.9mmt million tons Australian wheat..
Indonesia imports in average 4.2 million tons of Australian wheat per year.
Bakery products in Indonesia mainly consist of breads (60%); traditional snacks (25%); cookies,
wafers, and biscuits (10%); and cakes (5%). However, the market share is fluctuating, since the
biggest holidays (especially Ramadan season) will shift the consumer choices.2 The rising trend
of Indonesian bakeries can also be viewed by the increased number of participants in bakery
and bakery ingredients exhibitions; as shown by the increasing number of visitors at Food
Ingredients Indonesia and Bakery Indonesia Expo.3
Basic ingredients for bakery industries in Indonesia are in high demand. In Table 1, we can see
how Indonesian changed the way they consumed bakery products within a timespan of two
years. In 2015, registered manufactures of Indonesian ‘Other Bakery Products’ reported about
USD 41,600 in sales. Three years later, registered manufactures reported sales up to USD
134million) for ‘Other Bakery Products. Based on Manufacturing Statistics Indonesia 2015, there
were 639 registered bakery and cake product companies,4 including both medium and large
scale manufactures. According to the Indonesian Bakery Association (APEBI), the domestic

1 The Jakarta Post, Bakeries Flourish as Middle Classes Adopt New Lifestyle, 1 July 2013. Available at:
http://www.thejakartapost.com/news/2013/07/01/bakeries-flourish-middle-classes-adopt-new-lifestyle.html
2Liputan 6, Omzet Industri Roti di Atas 10%, 23 October 2014. Available at:

http://bisnis.liputan6.com/read/2123566/pertumbuhan-omzet-industri-roti-di-atas-10
3The Jakarta Post, Bakeries Flourish as Middle Classes Adopt New Lifestyle. 1 July 2013. Available at:

http://www.thejakartapost.com/news/2013/07/01/bakeries-flourish-middle-classes-adopt-new-lifestyle.html
5
Trimegah Securities, Nippon Indosari Corpindo: Company Focus, 7 September 2015. Available at:
http://www.trimegah.com/data/files/trimegah_cf_20150907_roti_pioneer_in_the_mass_produced_bread_indust
ry_1.pdf

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bread market is dominated by small, home-based producers (68%), followed by mass-produced
bread (20%) and artisanal/boutique bakeries (12%)5.

Table 1: Table of Quantities and Values of Goods Produced by Items (2012-2015)

KBLI Code: 10710 Manufactures of Bakery and Cake Products (latest
data available)
Other Bakery
White Sweetened Sponge
2012 Dried Bread Sweet Biscuits Products
Bread Bread cakes
47 825 638
Quantity 2 313 893 1 068 730
168 915 565
262 559 63 616
(Kg)
Total
60 273516 6 324 606 32 681 387 2 512 865 889 4 811 976 541 376
Value
(Rp 000)
Other Bakery
White Sweetened Sponge
2015 Dried Bread Sweet Biscuits Products
Bread Bread cakes

Quantity 2,691,861 2 986 671 10 563 630 91 018 06 68 083 098

247 440
(Kg) 6
Total
56 848 659 3 320 475 40 246 975 2 126 230 098 5 876 120 1 935 185 229
Value
(Rp 000)

Sources: "Manufacturing Industrial Statistics 2012", and "Manufacturing Industrial Statistics

2015", BPS – Statistics Indonesia.

According to USDA Gain Report 2019, Indonesia is expected to import up to 11.3 million tonnes
wheat in 2019-2020. Most of the wheat will be imported from Australia with the largest market
share (31%), followed by Ukraine (21%), Canada (16%), Russia (14%), the United States
(10%), and Ukraine (4%). It has to be noted that Indonesia’s 28 flour mills have the capacity to
produces up to 11.8 million tons wheat flour per annum, which in 2018 operated at 80%
capacity.6
According to GAIN Report, in 2016 Indonesia imported breakfast cereals and pancake mix
worth USD 28.52million from Malaysia (55.18%), China (15.10%) the Philippines (13.76%), and,
while imported, bakery dough worth USD 9.43 million from Thailand (28.90%) Malaysia
(40.52%), Singapore (17.81%, Australia (13.65%), Germany (13.63%) Indonesian’s love for
cheese is reflected in Table 2 which is based on Statistics Indonesia’s report which shows the
cheese import value - as basic food ingredient - in 2018 at USD 103 million, in comparison with
an import value of USD 84 million in 2017. It is also worth noting that the import of

5
Trimegah Securities, Nippon Indosari Corpindo: Company Focus, 7 September 2015. Available at:
http://www.trimegah.com/data/files/trimegah_cf_20150907_roti_pioneer_in_the_mass_produced_bread_indust
ry_1.pdf
6 Chris Lyddon, Focus in Indonesia, 6 October 2015. Available at: http://www.world-

grain.com/Departments/Country-Focus/Country-Focus-Home/Indonesia-2015.aspx

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flavoured/coloured Sugar (excl. maltose) fructose 32% increased to USD 931,277 in 2 018 from
USD 704,980 in 2017. Most of the flavoured/coloured sugar imported is coming from
Singapore.7

Table 2: Some Basic Food Ingredients Import Volume and Value in Indonesia
(2017-2018)

2017 2018
Industry
Ingredients
Type Volume Value Volume Value
(Kg) (US$) (Kg) (US$)

Whey (in powder) B, S, Bv 104,440,1 147,645,52 125,027,75 153,434,49

11 6 2 1

6 241 700 13 858 074 6 818 611 13 421 686

Buttermilk B, S

16 182
94 978 015 15 430 695 98 386 386
Butter B, S 803

6 357 743 38 171 879 7 139 078 47 595 018

Anhydrous butter fat B, S

Cheese (excl. Fresh and Blueveined) B, S 18,011,96 103,051,17

84,272,351 21,797,165
7 1

67 050 114 921 143 269

87 104 453
Non-dairy creamer B, S, Bv 621 858 118

4 665 843 16 135 950 16 135 950 15 779 716

Baking powder B, S

Almonds in shelled / shelled B

1,396,535 10,354,501 2,166,563 13,954,239

Flavoured/Coloured Sugar (excl. Maltose) 143,632 704 980 166,211 931,277

B, S, Bv
Fructose 50%

Colouring Matter Suitable for Use in Food/

B, S, Bv
Drinks Industries 140,837 5,252,905 197,945 7,293,330

7 Statistics Indonesia, Statistik Perdagangan Luar Negeri Indonesia 2018, Publication No. 06120.1905 .

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 Sources: Foreign Trade Statistical Bulletin Imports 2017 and 2018, BPS – Statistics Indonesia.
(*Type of industry using the ingredient: B – Bakery, S – Snack & Confectionery, Bv – Beverage.)

Most of the basic food ingredients for bakery products, snacks, confectionery and beverages
are imported. As reported by GAIN Report, on average the entire bakery industry in Indonesia
uses around 70% imported ingredients and 30% local ingredients8, these numbers are also
corroborated by various current players in the industry. Table 3 below shows the value and net
weight of imported commodities by HS Code of some of bakery ingredients in Indonesia
by2018.

Table 3: Import by HS Commodities Code of Bakery Ingredients Products in

December 2018

Value C.I.F (US$)

Net Weight
(Kg)
HS Code Commodity Description

1901201000 Mixes & doughs of flour, groats, 194 958 517 806
meal, starch/malt extract, not
containing cocoa

1901202000 Mixes & doughs of flour, groats, 194 958 194 958
meal, starch/malt extract,
containing cocoa
1704909900 Other sugar confectionery, not 5 342 350 15 947 782
containing cocoa, soft,
containing gelatine
2007100000 Jams, fruit jellies, marmalades, 747 936 2 126 217
fruit/nut, homogenised
preparation
2007991000 Fruit pastes other than of 547 744 690 043
mango, pineapples, or
strawberries
2007999000 Fruit pastes of mango, 8 617 907 13 941 233
pineapples, or strawberries
2106909800 Other flavouring preparations 9 673 696 51 908 690

2008601000 Cherries, containing added 1 584 609 4 526 665

sugar/other sweetening matter/
spirit otherwise preparation

2008999000 Cherries Otherwise prepared or 36 400 182 095

preserved, not added
sugar/sweetening matter

8Pekerti. S & Slette J, Bakery Products Ingredients, 2010 Report,USDA Foreign Agricultural Service, p.2.

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 Source: Foreign Trade Statistical Bulletin Imports December 2018, BPS – Statistics Indonesia,
Publication Number: 06120.1905 .

2.2. Trend Analysis

Food services in Indonesia are concentrated in Greater Jakarta and Bali due to the higher
average number of population and tourists. According to Euromonitor, the sales forecast for
bread, cakes, and pastries in 2019 may reach up to 688,000 tonnes. Consumption of baked
products grew from 1.1 million tons in 2010 to 1.75 million tons in 2014.9 APEBI was expecting
that Indonesian bakery to surge by grow by 15% to IDR 23 trillion. Rising demand may boost
sales at companies, including the biggest industrial producer of bread, PT Nippon Indosari
Corpindo which has 90% market share. 10
The consumption per capita of bread, cakes, and pastries jumped almost 60% between 2016-
2018, as sometimes the consumers get bored eating rice and other regular Indonesian dishes.
Therefore, baked goods are often easier to eat compared to noodles or steamed rice at home.11

Table 4: Bakery products consumption per annum per capita

Unit Year Evolution

2016 2018
Bread Pieces 14.25 26.78 +87.96%
Sweet bread, other bread Pieces 43.94 57.36 +30.53%
Cookies, biscuit, kg
16.28 25.74 +58.15%
wafer

Source: Compiled by EIBN BPS Indonesia, Consumption Expenditure of Population of Indonesia

reports

Although Indonesians have begun to consume bakery products as a main meal, most of them
consume bakery products as a snack or breakfast. Shape and texture of breads in Indonesia
and Europe are different, European breads taste rather plain with heavier texture, as the breads

9 Business World Online, More Indonesians Favoring Bread over Rice, 21 May 2015. Available at:
http://www.bworldonline.com/content.php?section=Economy&title=more-indonesians-favoring-bread-
over-rice&id=108381
10
Trimegah Securities, Nippon Indosari Corpindo: Company Focus, 7 September 2015. Available at:
http://www.trimegah.com/data/files/trimegah_cf_20150907_roti_pioneer_in_the_mass_produced_bread_i
ndustry_1.pdf
11Rusmana. Y &Listiyorini E, Bread Trumping Rice on Menus Sparks Indonesia Wheat-Buying Surge.

Bloomberg, May 21 2015. Available at: http://www.bloomberg.com/news/articles/2015-05-20/bread-

trumping-rice-makes-indonesia-top-wheat-buyer-after-egypt

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are usually eaten with soup or slices of meat, while Indonesians prefer sweet, lighter, and soft-
textured breads.
Regarding the bakery trend in 2016, Indonesian consumers continue to prefer baked goods with
soft and sweet texture. However, the trend in the bakery industry is actually more focused
towards the taste instead of the shape and texture. In 2016, trends show that fruits fillings are
preferred by Indonesian consumers, especially imported fruits such as cherries and berries.
Consumers also show interest for a combination of tastes, such as pineapple jam filling and
almond topping.
Indonesian bread is steadily going through an evolution. A couple of years ago, Indonesian
breads were only available in simple spherical or oval shapes, with hard textures and without
coatings. After the emergence of bakery industry, Indonesian breads began to be produced in
various shapes and soft texture as well as coated with egg yolk, margarine, or simple syrup.12
This sector is becoming resilient to the changing pattern of consumption, since artisanal
bakeries are constantly widening markets through retail bakery outlets in shopping malls and
department stores. Both Euromonitor and Report Linker also mentioned that home-made style
products are gaining greater preference in cakes, pastries, breads, rolls, and bakery ingredients;
as people continue to perceive that home-style baked goods are fresher than others.
Indonesia has a changing pattern of preference in pastries. Macaroons and muffins were the
leading sweet pastry items in the early to the mid of 2015.13 However, macaroons are difficult to
make on a large scale as almonds, its main raw material, are available in limited quantities and
also expensive due to the fact that they have to be imported. Currently, there is a revival of
traditional cakes such as “kue cubit” (literally means “pinch cake”, because you have to pinch it
in order to eat the cake) with a taste almost resembling pancakes (although kue cubit does not
contain milk). The new trend of kue cubit has meant sellers are becoming creative with flavours
and toppings such as green tea, blueberry, strawberry, and even bubble-gum. The cronut, the
fusion of croissant and donut, is also gaining more attention from Indonesian consumers after it
was introduced and served in several large-scale retail bakery outlets like J.Co and Harvest.
Choux, or filled pastries, enters and obtains their share of the Indonesian pastry market; there
are several outlets scattered in many places in big cities selling choux with various fillings,
including durian, pandan, sarikaya, and red bean. Other small-size pastries like éclairs and
truffles are projected to have potential to lead the pastry market as well.14
In recent years, Western, Japanese, and Korean culture has been influencing Southeast Asian
cultures. The absorption process of consumptive culture is facilitated by massive global media
invasion such as movies, books, and the internet (through booming social media, namely
Instagram). Indonesians also show interest in cakes and pastries that are not conventionally

12Kulinologi, Tren dan Arah Pengembangan Produk Roti. Available at:

http://kulinologi.co.id/baru/index1.php?id=783
13 Devi Setya Lestari, Pernah Eksis, Apa Kabar Macaron Sekarang?, 15 December 2015. Available at:

http://lifestyle.okezone.com/read/2015/12/14/298/1267179/pernah-eksis-apa-kabar-macaron-sekarang
14Pakar Roti, Exotic Food Kuliner Sehat Prediksi Trend 2015, 30 January 2015. Available at:

http://pakaroti.com/post/trend-update/news/exotic-food-kuliner-sehat-prediksi-trend-2015

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shaped and served, for example cake pops and cakes served in glass jars. A few well-known
local bakeries such as Le Soho Cupcakes and small online shops have begun to sell these kind
of products.15
Although the middle-to-upper income consumers are eager to try different flavours, Indonesian’s
preference for comfort flavours has not decreased at all. Chocolate and cheese flavours, both
separately and fusion, remain customer favourites. It is worth nothing that cheese flavour in
Indonesia tastes different than cheese flavours that are common in Europe, in the sense that it
usually tastes sweet rather than salty. Case in point is that Cheddar is the most well-known
cheese in Indonesia, followed by Gouda.
Alongside pastries and bread, currently, Indonesian customers also tend to prefer outlets that
are also cafes. With a rising middle class, more and more people are visit cafes. A few
patisseries and bakeries have included tea, coffee, and other drinks on the menu; such as The
Harvest, Bakerzin, PAUL, and Éric Kayser. These kind of bakeries are seen as more stylish
than those only serving bread and pastries, thus it could attract more middle to high income
customers.

15Bisnis UKM, Bisnis Cake in Jar rasanya legit labanya menggigit, 6 August 2013. Available at:
http://bisnisukm.com/bisnis-cake-in-jar-rasanya-legit-labanya-menggigit.html

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2.3. Consumer Behaviour towards Bakery Ingredients Products
The trend of bakery industry in Indonesia is continuously growing followed by Indonesians
changing lifestyle along with the development of income improvement, urbanization, as well as
Westernization. Baked products are gaining more appreciation, as people begin to appreciate
this convenient and practical way to eat. Consumers of baked products in Indonesia are shifting
their habits from eating bakery products as snacks to eating bakery products as meals;
especially breakfast. Along with urbanisation in Indonesia, people have less time to eat
breakfast, with some preferring to eat baked products as a substitute for rice.16
The overall spending per capita for bakery products almost tripled between over the last four
years. In 2018, 20 USD per capita on bakery products were spent as compared to 7 USD in
2014 (Table X) with a 158% increase for bread products, 180% for cookies, and 156% for steam
cakes.

Table 5: Bakery products spending per annum per capita 2014-2018

2014 2015 2016 2017 2018
Bread (Dried, White, Sweetened) 48,932 I88,816 81,172 98,592 126,360
Cookies 25,844 52,676 45,604 53,040 72,384
Boil or steam cakes 35,516 78104 67132 70668 90,948
Total IDR 110,292 219,596 193,908 222,300 289,692

Source: Compiled by EIBN, Pengeluaran konsumsi untuk Indonesia 2014 - 2018

Market survey in 2012 by Expert Bakery Magazine stated in the Bakery Entrepreneur Seminar,
found that 30% percent of middle class consumers in Jakarta, Bekasi, Bogor, and South
Tangerang prefer to purchase their baked goods at BreadTalk, the retail bakery store, their
second choice are at chain minimarket such as Indomaret and Alfamart. Holland Bakery, the
chain bakery store which sells both traditional and modern baked products comes at the third
place to buy baked goods. This survey also shows that there are many consumers who buy
bakery products between 2pm to 6pm, which indicates that Indonesian consumers do not only
eat bakery products for breakfast, but also as an interlude between lunch and dinner.17 In 2014,
Report Linker reported that most of Indonesians purchase bakery products from convenient

16Kulinologi, Tren dan Arah Pengembangan Produk Roti. Available at:

http://kulinologi.co.id/baru/index1.php?id=783
17 Bareca, BCC Presents Seminar Bakery Entrepreneur: Harnessing Business Opportunities Bakery & His

Management Tips, 1 March 2013. Available at: http://www.bakerymagazine.com/en/2013/03/01/bcc-

hadirkan -seminar-bakery-entrepreneur-memanfaatkan-peluang-usaha-bakery-kiat-manajemennya/

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store, since there is a wide presence of convenient stores available in urban areas, some of
which are open for 24 hours per day.18
Each consumer segment in Indonesia also have their own preferences for bakery products;
Western bread and pastries are preferred by high-end consumers; Japanese and Asian bread
and pastries for upper-middle income consumers; and local sweet breads and white breads are
still largely consumed by lower-middle income consumers. The lower-middle income sector in
Indonesia, which represent the majority of population, prefer sliced white bread and sweet bread
rolls filled with chocolate, cheese, and other fillings such as banana. One of the examples of
bakery ingredient mix that is available in most of convenient stores is Pondan mix. Their
products are becoming the solution for customer from lower-middle income groups when they
want to have a fancy cake for certain occasion, because these products are easy to bake and
affordable. Their best-selling cake mix is Black Forest Cake mix.
There is a growing trend for wheat breads as well as pastries and donuts with nuts, fruits, and
almonds. Upper-middle income consumer, which includes expatriates, also show preferences
for other kinds of products such as cheesecakes, muffins, brownies, fruitcakes, pies, and other
Western-styled baked goods.19 For cake decorations and icing, customers prefer to purchase
ready-to-use fondant and butter cream rather than buying the raw materials.
During Ramadan, the one-month period when the Indonesian Muslim majority are fasting, it is
said to be a challenging month for bakery manufacturers. Indonesians would prefer to eat rice or
noodle as their meals for their pre-dawn mean and for breaking the fast in the evening. As
projected by the Indonesian Association of Bakery Producers (APEBI), during the start of
Ramadan 2015 bakery sales decreased by 40% and increased again as much as 20% in the
second and third week of Ramadan, especially for bread and traditional cakes. Cakes and
cookies however do increase during Ramadan, since these products are most likely served for
guests during the Eid al-Fitr holiday.20

2.4. Market Structure

Most Indonesian baking ingredients are imported from foreign countries and there are more
than fifteen major importers and distributors of bakery ingredients in Indonesia. Those importers
usually have their own container trucks and storage facilities for their own use. Those importers
distribute their products to manufacturers or sub-distributors in major cities. If their end
consumers are the large-scale and chain retail bakery outlets, the importers will deliver it
directly. Agents or sub-distributors would distribute and sell products to smaller agents, bakery
ingredients shops, and smaller manufacturers. From those smaller agents and bakery

18 Report Linker, Market Focus: Trends and Developments in the Bakery and Cereals Sector in
Indonesia, May 2014.
19 USDA GAIN Report, Indonesia-Bakery Products Ingredient, Op, cit. p. 8.
20 Kulinologi Indonesia, Industri Bakery Menyambut Ramadhan & Idul Fitri. Available at:

http://kulinologi.co.id/acrobat/index1.php?view&id=952

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ingredients shops, the products might also distributed to local bakeries, small-medium
enterprises, or to the lower level of sub-agents in small cities throughout the region.21
Figure 1: Market Structure in Indonesia

For bakery products, single packaged sweet breads, muffins, donut, cakes, are all delivered by
each operator to modern retailers, individual stores, and wet markets. These products can also
be sold by street vendors, but mostly only for limited types of bread.
Players in the bakery industry are numerous and diverse. It consists of individual stores,
franchise stores, retail bakeries, and other outlets such as cafés, restaurants, street vendors,
and catering services. The bakery producers are explained in detail below:
 Industrial bakery businesses that produce and dominate the bakery products market;
namely Sari Roti, Yamasaki, Shereen Bakery, and Swanish Bakery.
 Retail-sized bakery business; it was estimated that there are around 1,000–2,000 retail
bakery stores in all areas within Indonesia; including brands such as Holland Bakery,
Delicious, Bread Talk, Kartika Sari, Tous Les Jours, and PAUL Bakery.
 Small and Medium (traditional) bakery businesses that only cater for the local area (around
3 to 5 retail branches) and usually only produce up to 100.000 breads a day, such as Lauw
bakeries.
Meanwhile, distribution of baked goods in Indonesia commonly takes place through several
channels as explained below:
 Modern retail markets; for instance supermarkets, hypermarkets, department stores, and
convenience stores. These markets usually sell bakery products from various brands, but
some of them also have in-store bakeries such as Carrefour, Giant, and Superindo.
 A retail bakery which consists of traditional and modern bakeries; the traditional retail bakery
is already explained in medium-sized bakery business above, with Holland Bakery as the
market leader. Besides this, there is a current trend for modern bakeries in Indonesia, which

21 USDA GAIN Report, Indonesia-Bakery Products Ingredient. 24 November 2010.

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 adopt a modern ‘boutique’ concept; for example, BreadTalk, the market leader for modern
retail bakery which offers soft-textured Asian style breads and pastries. Since BreadTalk
entered the market and obtained a large market share, other Asian bakeries with similar
concepts were then inspired to establish their presence in the country. Examples include;
Tous les Jours, a South Korean company; and Bread Life, the Japanese-styled retail
bakery.
 Small and traditional channels; such as the street carts or vendors, which deliver bread from
house to house. This method is still used by small to medium bakery producers, for example
Lauw bakeries.
 Other channels (particularly cafés and restaurants); Starbucks, Coffee Bean and Tea Leaf,
Delifrance, McCafé, and other retail and independent cafe and restaurants. Bakery products
are displayed on a glass storage shelf and served as a companion to a cup of coffee or
tea.22
It is worth noting that the Indonesian market has its own specific taste and preference in
choosing baked products. Modern retail stores like Carrefour and Alfamart have their own
factories and brands already, so foreign fresh baked products may have more difficulty breaking
into the Indonesian market. In order to develop a bakery business in Indonesia, an
understanding of the dynamic local market taste and trends is required.23
Doing business in Indonesia is known to be organised along traditional lines, with a full
spectrum of agents, distributors, and other intermediaries represented in the economy. For retail
sectors, wholesale and hypermarket outlets procure from domestic suppliers or directly from
manufacturers and importers. Suppliers of small retail outlets deliver the products to the
retailer’s distribution centre. Such partners or companies have established networks with
defined geographies and reach.
Before doing an export activity, it is essential to choose local partners or importers, as leading
importers will be able to discuss the feasibility of entering the market in the first instance, as well
as helping to create a development plan for the product over time. The local partners also will
be the main player that register the imported products with the authorities.

22 Stanton, Emms&Sia, Characteristics of the Market for Bakery Ingredients in Indonesia, Canada Agri-
Food Trade Commissioner, March 2009.
23 Sindonews, Pabrik Roti Jepang Sulit Tembus Pasar Indonesia. 23rd October 2014. Available at:

http://www.ekbis.sindonews.com/read/914477/34/pabrik-roti-jepang-sulit-tembus-pasar-indonesia-
1414051588

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III. Key Players in Bakery Ingredients Sector
It should be noted that most ingredients in Indonesia, especially for special baked goods, cannot
be substituted with local products or are unavailable in regional market, and have to be imported
from abroad. For example, varieties of cheese like Mozzarella and Gouda are imported from
New Zealand, Australia, Argentina and the United States; almond products are imported mainly
from United States and Australia; and premixes are imported mostly from Belgium. Common
products available in Asia such as raisins, sunflower seeds, and non-dairy creamer are
dominated by cheaper Chinese products, since Indonesian consumers are price-sensitive. For
other fresh and locally available products, such as fresh milk and margarine, can be obtained
from local producers.24

3.1. Local Indonesian Companies

 PT Pondan Pangan Makmur Indonesia
Pondan Pangan Makmur Indonesia (PPMI), is one of the leading bakery ingredients producers
in Indonesia. Pondan has three varieties of product; dessert mixes (ice cream, cake, cookie,
pudding, jelly, and other mixes), seasoned flour (under the Unifood brand), cake and bread
ingredients (premixes, bread improver, cake/bread fillings and glazing, under the Gusto brand).
Approximately 60% of Pondan raw materials are imported such as emulsifier and stabiliser.
Pondan is the most famous brand in the retail market. PPMI products are distributed all over the
Indonesian archipelago through its distributors in each region and most of their consumers
come from middle to low income groups. The biggest consumers of PPMI are their corporate
consumers, such as McDonald’s, Pizza Hut, Bakmi Naga, H.E.M.A. Dutch Resto, and Kenny
Roger’s restaurant. It has to be noted that 20% of Pondan products are exported especially its
chiffon cake mix to the Netherlands and its pancake mix to Hong Kong.
 PT Gandum Mas Kencana
Gandum Mas Kencana (GMK) is a privately owned company established in 1985 located in
Tangerang, Indonesia. Originally established to produce baking mixes for households, Gandum
Mas Kencana has grown to be a major player in supplying the food service industry, especially
in products related to chocolate. Nowadays, Gandum Mas Kencana is exporting to most
countries in Asia, Africa, and Europe.
There are three brands from GMK. The first one is Haan, offering various kinds of pudding mix,
flan mix, specialised icing sugar, and other bakery mixes. Haan also produces different products
such as thickening agent, dough conditioner, and active baking powder for desserts, cake, and
cookies. The second brand is Colatta, offering high cocoa content, manufactured with premium
cocoa beans; compound, couverture, decoration, topping, and also filling application. Lastly,

24GAIN Report: USDA Foreign Agricultural Service, Indonesia – Bakery Products Ingredients, November
24 2010: Jakarta.

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Gandum Mas Kencana also produces Bendico, chocolate powder made from the best natural
and dark chocolate.
 PT Prambanan Kencana
As a major food and food ingredients importer and distributor, Prambanan Kencana also imports
fondant products under the Fondx brand. Fondx can be used for birthday cakes, wedding cakes,
cupcakes, and other decorations. Currently, Prambanan Kencana has built a cooperation with
Calijava International (an American company) to jointly produce Fondx in Indonesia by importing
raw materials from the United States. Thanks to Prambanan Kencana with its great business
channels, Fondx has been distributed all over the Indonesian archipelago.25 Prambanan
Kencana also has around 27principal brands in their portfolio. The company is segmented into
three business units: Food service, Retail and Food Industry. Important corporate clients for
each unit include AW, Breadtalk, Four Seasons (food service), AEON, Carrefour, Alfamart
(retail) and Ajinomoto, Indofood, Nestlé (food industry)
 PD Hero
PD Hero is a supplying company of bakery ingredients which mainly distributes products with
Bakels brands from Sweden. It distributes well-known products such as BakelsPettinice RTR
Plastic Icing.
 PT Sukanda Djaya
Sukanda Djaya was established in 1978 and has 5,000 products in their portfolio. It is the
national leader in selling, marketing, and distributing refrigerated food products to the food
service, retail, and wholesale market in Indonesia. Sukanda Djaya is an importer and distributor
of refrigerated and dry items from Japan, Italy, USA, France, Australia, New Zealand, Norway,
as well as a list of house brands produced by its parent company, PT Diamond Cold Storage.
For the Indonesian market, Sukanda Djaya is the company that holds distribution chain of
Cacao Barry (France) which provides variants products such as couverture, dark origin (St.
Domingue), baking stick, chocolate drops, and others. Sukanda Djaya also produces local dairy
milk where the 50% of the ingredients comes from imports. Thus, Sukanda Djaya has been
entrusted exclusively for the distribution of many world renowned ingredients such as whipped
cream (Roselle) and butter (Elle & Vire).
 PT Pandurasa Kharisma
Pandurasa Kharisma was established in 1992 with a focus in food service industry. It is a
leading food and beverage distributor serving the institutional and retail sectors with a product
portfolio of more than 40 international brands from the United States, Switzerland, France,
Germany, Denmark, Australia, Singapore, and Malaysia. Their distribution channel features
modern retail channels, hotels, restaurants, and cafés.
 PT Multisari Langgeng Jaya

25 Bakery Magazine, Exhibitors in Interfood, 15 October 2013. Available at:

http://www.bakerymagazine.com/en/2013/10/15/peserta-pameran-di-interfood/

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Multisari Langgeng Jaya distributes a range of food products, beverages, and non-food
products andwas established in 1989. Multisari Langgeng Jaya distributes products for
Marizafoods under the Mariza brand, with its main products being ice cream and yoghurt
premix. In addition, Multisari Langgeng Jaya also distributes jam, coconut milk, black gelatin,
topping jam, and flavoured syrup for ice cream with various flavours.
 PT Sangra Ratu Boga
Established in January 1989, Sangra Ratu Boga’s activity is to engage in general trade, which
includes import, export, as well as domestic and inter-island trade. Sangra Ratu Boga is
appointed as the sole agent for the whole Indonesian territory by Gist Brocades N.V., the
manufacturer of world’s famous instant dry yeast, Fermipan.26 Sangra Ratu Boga is also
expanding into the premixes market; including ice cream premix and bread improver. One of
their products is Prima Mix, for donuts and bapao. Conversely, Sangra Ratu Boga will also
release a variety of sponge cake and muffins that will improve the performance of the company
in becoming a distributor of baking products for household and home industries.

3.2. Foreign Companies

 PT Puratos Indonesia
PT Puratos Indonesia is a national company, a subsidiary of Puratos group which offers a full
range of innovative products and application expertise for artisans, industry, retailers and food
service customers in the bakery, patisserie, and chocolate sectors. Puratos head office is in
Groot-Bijgaarden, near Brussels in Belgium. Through their long experience in bakery, they are
able to design and manufacture every component of their products: bread improvers, bread
mixes, and many other products.27 Puratos clients include artisans, the foodservice industry and
supermarkets. As a food distributor for Indonesian bakeries industry since 1994, Puratos has
whole-grain products including cake mix, cake whole-grain tegral satin, and tegral satin whole-
grain banana. In addition, they also provide improver for all types of bread (including frozen
dough) and they also have chocolate product under Belcolade brand.28
 PT Nippon Indosari Corpindo, Tbk
Nippon Indosari Corporindo is the largest producer of bread products since this company is
controlling almost 90% market share of bread mass production in Indonesia. This company is
the only bread company listed on the (Indonesia Stock Exchange) IDX with a market
capitalization of IDR 7 trilliun (USD 484 million)).29 Furthermore, Nippon Indosari Corpindo is the

26 Bakery Magazine, CreaNutrition, Oatwell Producer, 12 March 2013. Available at:

http://www.bakerymagazine.com/en/category/ingredient/page/6/
27Puratos, Reliable Partners in Innovation. Available at: http://www.puratos.co.id/en/about-us/index.jsp
28 Bakery Magazine, Traditional French Pastry Needs, 10 June 2013. Available at:

http://www.bakerymagazine.com/en/category/ingredient/page/3/
29 PT Nippon Indosari Corpindo Tbk, Annual Report, 2018

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first bread company in Indonesia that implements modern Japanese technology to manufacture
hygienic and halal products. Its factories are located in the Jababeka Industrial area in
Cikarang, Bekasi, and Pasuruan Industrial Area. In September 1996, the company launched its
first bread products under the brand Sari Roti.30 Afterwards, it launched its second brand in
2001 named Boti. The company distributes 56% of its products through modern market stores:
hypermarkets, supermarkets, and minimarkets, while the rest of its distribution is through
traditional distribution chain/agents.
 PT Zeelandia Indonesia
PT Zeelandia Indonesia was established in 1997 as cooperation between PT Prambanan
Kencana and PT Zeelandia International (Netherlands). All products of Zeelandia Indonesia are
under the supervision of Koninklijke Zeelandia Holland to retain high quality and customer
satisfaction. Currently, customers of Zeelandia cover various industry segments such as bakery
ingredients, bakery chains or in-store bakeries, the factory baking industry, wholesalers, direct
selling, as well as also hotels and restaurants. One of the most popular Zeelandia range in
Indonesia is their premix products; ranging from cake mix, cookie mix, donut mix, bread mix, as
well as premix for filling, topping, and glazing. Nevertheless, Zeelandia also has some healthy
products including typical European bread premixes; Multicereal D-25 and Baguette Mix 25-NZ.

3.3. Retail Outlet

 PT Hero Supermarket, Tbk (Giant, Giant Ekspres, Starmart, Hero)
Hero Supermarket’s main activities are large format retailing and specialty operations. Large
format retailing involves retailing food and non-food merchandise in large format outlets such as
supermarkets and hypermarkets. Hero Supermarket also retails food and non-food merchandise
in small format outlets through its specialty operations. Hero has their own bakery processing
and develop their own in-store bakery concept. Four of its subsidiaries; Giant, Giant Ekspres,
Starmart, and Hero have their own in-store bakery counters.
 PT Trans Retail Indonesia (Carrefour)
Carrefour in Indonesia is 100% owned by CT Corp. Along with the change of shareholders, the
company changed its name from PT Carrefour Indonesia to PT Trans Retail Indonesia.31
Carrefour Indonesia opened its first unit in October 1998 and currently has more than 100
outlets, 4,000 suppliers in Indonesia, including 70% from local Small and Medium Enterprises
(SMEs) and 90% local products. Carrefour has their own in-house bakery in each of their chain
stores. Their bakery produces various baked goods and pastries such as cakes, fruit tartlets,
breads, muffins, doughnuts, and cheesecakes.
 Kem Chicks

30Bakery Magazine, Traditional French Pastry Needs, Ibid.

31 Carrefour, Carrefour, Gerai Retail Pilihan Untuk Keluarga Indonesia. Available at:
http://www.carrefour.co.id/id/shop/carrefour/

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Kem Chicks Supermarket provides an extensive range of imported products. Therefore, Kem
Chicks is the best gourmet lifestyle supermarket that serves expatriates and upper-middle
income customers through imported products, delightful ambiance and displays, with depth of
knowledge of speciality foods and products.32 Kem Chicks has its own in-house bakery
providing homemade fresh baked products, such as Raisin and Walnut Bread, Pecan Pie, and
Pear Flan.

32 Pacific Place, Directory: Kem Chicks. Available at: http://www.pacificplace.co.id/tenant/kem-chicks/

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IV. Regulation
By importing and exporting bakery products to Indonesia, every company has to meet the
requirements or regulations in the destination country they want to trade with. The local
regulations are based on the cultures and norms of the destination country. In Indonesia, the
relevant policies that must be considered are discussed below.

4.1. Halal Law

With the biggest Muslim population in the world, the Indonesian government has to cater for
halal diets. In Arabic, halal means permitted or lawful. Halal foods are those that are allowed
under Islamic dietary guidelines, including restrictions on food preparation. For the time being,
the regulation pertaining to halal products has been included in the Consumer Protection Act
No. 8 of 1999, Law No. 69 of 1999 on labelling and advertising, and the Food Act No. 18 of
201233 on food. The current institution that issues halal certification is the Indonesian Council of
Ulama (MUI). Based on the halal certification of MUI, companies can apply for MUI Halal logo at
the National Agency of Drug and Food Control (BPOM), which they then can print on their
products when approved.
In September 2014, the Indonesian government passed the Act Number 33 of 2014 on Halal
Product Assurance (UU JPH), which stipulates that halal certification is mandatory for all food,
beverage, drugs and cosmetics, as well as chemical, organic, and genetically modified products
entering, being distributed and sold in Indonesia starting in 2019.
The government established a new institution called the Halal Product Guarantee Agency
(BPJPH – Badan Penyelenggara Jaminan Produk Halal) to issue halal certificates. As of May
2019, despite the creation of the new institution, the mandatory halal certificate has not been
implemented yet. Once formed, the BPJPH will assume the role currently fulfilled by the
Indonesian Council of Ulama (MUI). Although halal certification will be issued by BPJPH, the
process of verification of a product will be carried out by the Halal Inspection Institution (LPH –
Lembaga Pemeriksa Halal). The BPJPH accredits LPH to check and verify whether the raw
materials and manufacturing process are in accordance with the halal requirements. Such
process may be carried out inside or outside the manufacturing facility. Once obtained, halal
certification is valid for four years. As of May 2019 and prior to the full implementation of the
mandatory halal certification, companies still follow the existing MUI halal certification
procedures. Current halal certificates that have been given by MUI before this law came into
force, shall remain valid until the end period of the issued halal certificate.
It should be noted that MUI recognise halal certificates issued by any approved halal
certification body in Europe (see Table 4 ), such as Halal Quality Control in the Netherlands for
products manufactured in Europe. To date, there are ten approved European halal certification
bodies. However, LPPOM MUI might still ask for supporting document to clarify the critical
points of certain certified products. As stated in the Animal Husbandry and Animal Health Act

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No. 18 of 2009, all products that use animal ingredients and derivatives circulating in Indonesia,
whether local or imported, shall bear the Halal certification if it abides by those guidelines.34
Table 5: The Approved European Halal Certification Bodies35
European Certification Body Country Slaughtering Processed Food Flavouring
1 Halal Food Council of Europe (HFCE) Belgium • • •
2 The Grand Mosque of Paris France • •
The Muslim Religious Union in Poland
3 Poland • •
(MRU)
The Netherlands
Denmark
4 Halal Quality Control (HQC), • • •
Germany
Austria
Instituto Halal de Junta Islámica (Halal
5 Spain • •
Institute of Spain)
World Halal Authority
6 (WHA) Italy • •

7 Total Quality Halal Correct (TQHC) The Netherlands • • •

8 Halal Control e.K. Germany • •
9 The Muslim Food Board United Kingdom •
Halal Feed and Food Inspection
10 The Netherlands • •
Authority (HFFIA)

Source: LPPOM MUI

4.2. Import Regulation36

The most difficult part of importation is fulfilling all requirements to import package food products
for retail through the from the Indonesia’s National Agency of Drug and Food Control (BPOM –
Badan Pengawas Obat dan Makanan). That being said, some products require additional
approvals from other government institutions. In the case of importation of horticulture and
animal-based ingredients, an import permit from the Ministry of Trade and an import
recommendation from the Ministry of Agriculture is required after getting the approval from
BPOM. Imports of meat, poultry, dairy, and horticulture products can be subject to shifting
regulation and requirements of several ministries and government institutions. Food additives
require approval from the head of BPOM and special labelling requirements may apply.
All imported products in Indonesia must be registered with BPOM. Importers, distributors or
retailers dealing in unregistered products are in breach of the regulations and subject to penalty
including the confiscation of products. Upon approval, a registration number is issued (ML

34 EIBN Food and Beverage Sector Report 2014

35 Portal Penyedia Informasi Layanan Publik, Sertifikat Halal - LPPOM MUI » Daftar Lembaga Sertifikasi
Halal,<http://www.pubinfo.id/informasi-2643-sertifikat-halal--lppom-mui-%C2%BB-daftar-lembaga-
sertifikasi-halal.html>
36 USDA, Food and Agricultural Import Regulations and Standards Report FAIRS Annual Country Report,

2019

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number or import license for imported products; MD number for locally-manufactured
products).37

Figure 2: Indonesia: Import Procedure Flow Chart

Source: USDA Foreign Agricultural Service.38

4.3. Tariff and Tax

Through the Regulation of The Ministry of Finance of the Republic of Indonesia number
132/PMK.010/2015 and 213/PMK.011/2011, the Indonesian government regulation on import
duty imposes a 10% Value Added Tax (VAT) on imported products and an Import duty between
5-20% for the bakery sector such as wheat, products containing cocoa, breads, pastry, other
food preparations, and similar products (see Table 6).

37 Indonesia’s Consumer Sector: Tapping the Consumer Dollar in Food and Retail:Business Opportunities
in F&B and Retail Industries, International Expertise Singapore, Vol.13, November 2013, p. 20
38 Indonesia: Import Procedure Flow Chart, Food and Agricultural Import Regulations and Standards -

Narrative, USDA Foreign Agricultural Service.

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Table 6: HS Code for Bakery Ingredients Products: Tariff, Import Duty, and Import
Regulations
PPN
BM
(Value
No Name HS Code Description (Import Import Regulation
Added
duty)
Tax)
Malt extract; food preparations of
flour, groats, meal, starch or malt
19.01 extract, not containing cocoa or
221/PMK.011/2012
Custard containing less than 40% by weight
1 5% 10%
Powder of cocoa calculated on a totally
defatted basis, not elsewhere
1901.90.99.90 specified or included; food
preparations of goods of --- other
Sugar confectionery (including
17.04 white chocolate), not containing 6/PMK.010/2017
Chocuise/Soup
2 cocoa. 20% 10%
lesse
1704.90.99.00 Other
Jams, fruit jellies, marmalades, fruit
or nut puree and fruit or nut pastes,
20.07 obtained by cooking, whether or not 221/PMK.011/2012
3 Jams containing added sugar or other 5% 10%
sweetening matter.
Fruit pastes other than of mangoes,
2007.99.10.00
pineapples or strawberries
Food preparations not elsewhere
21.06
4 Glazes specified or included. 5% 10% 221/PMK.011/2012
2106.90.98.00 Other flavouring preparations
Vegetables, fruit, nuts, fruit-peel
6/PMK.010/2017
and other parts of plants, preserved
5 Candied Fruit 2006.00.00.00 20% 10%
by sugar (drained, glace or
crystallised).
Fruit, nuts and other edible parts of
plants, otherwise prepared or
preserved, whether or not
20.08
containing added sugar or other
221/PMK.011/2012
sweetening matter or spirit, not
6 Infused Fruit 5% 10%
elsewhere specified or included.
Containing added sugar or other
2008.60.10.00
sweetening matter or spirit
2008.99.90.00 Other
Mixes and doughs for the
19.01 preparation of bakers' wares of
heading 19.05:
Of flour, groats, meal, starch or
1901201000 10% 10%
malt extract, not containing cocoa SKK NOM, Surat
7 Mixes
Ket. Impor
Of flour, groats, meal, starch or
1901202000
malt extract, containing cocoa

1901203000 Other, not containing cocoa 5% 10%

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 1901204000 Other, containing cocoa

11010010 Wheat Flour

Wheat or
8
Meslin Flour
1101002000 Meslin Flour 5% 10% 221/PMK.011/2012

Cereal flours 1102200000 Maize (Corn) Flour 5% 10% 221/PMK.011/2012

other than of
9
wheat or
1102901000 Rice Flour 5% 10% 221/PMK.011/2012
meslin.

Flavoured or Coloured Sugar PMK-

10 Food Flavoring 1702903000 5% 10%
(excluding Maltose) 221/PMK.011/2012

Source: Indonesia National Single Window (INSW) – HS Code Information for Import duty, Tariff,
Tax, and Import and Export Regulation.

4.4. Labelling
Food product labelling is based on Food Law Number 18/2012, which amends Regulation
No.7/1996. According to this regulation, all local and foreign companies that produce or import
goods and distribute within Indonesia are obligated to attach labels written in Bahasa Indonesia,
Arabic numeric, and Roman text. As of 1st January 2013, the labelling regulation requires
imported products to have such labels before entering the Indonesian Customs Area.39 The
label itself should at least contain information concerning the name of the product, name and
address of the local importer, the list of material used, the expired date, net weight, and date
production code.40
To enforce such law, BPOM had issued circular letter on 1st September 2010 to all Indonesian
food distributors and importers mandating the use of Indonesian language on the label for all
imported products distributed for retail purposes. However, there is an exception for terminology
which cannot be translated into Bahasa Indonesia.41 For raw materials, product labels are still
allowed to use the native language.42 BPOM also regulates the labelling requirements for
processed foods through BPOM Regulation Number No. 12/2016 regulates labelling replacing
Regulation No. HK 03.1.5.12.11.09955 of 2011.43

39 EIBN Food and Beverage Sector Report 2014, Op. Cit

40 Global Expandia, Food and Agricultural Product Labelling in Indonesia. Available at:
http://www.globalexpandia.com/blog/food-agricultural-product-labelling-indonesia/
41 Indonesia: Import Procedure Flow Chart, Food and Agricultural Import Regulations and Standards –

Narrative 2015, USDA Foreign Agricultural Service.

42 EIBN Food and Beverage Sector Report 2014, Op. Cit
43 GAIN Report USDA, Food and Agricultural Import Regulation and Standards - Narrative, p. 7.

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4.5. Food-Related Law
The Government of Indonesia consistently prioritises domestic food production over imports to
meet demand. Other significant legislation concerning food related law BPOM Regulation
No.21/2016 on Food Categories. BPOM introduced this regulation as the standard reference for
the registration of food and beverages; however it does not cover all food categories in
Indonesia. It also divides food into those using foreign brands (ML) and those using local brands
(MD) in their registration. This ML/MD number has to be displayed on the packaging.
Regulation Number 33/2012 from Ministry of Health stipulated that food additive production,
importation and distribution require a license from the Head of BPOM. The regulation also lists
the materials which are prohibited and permitted to be distributed in Indonesia. The BPOM
Regulation Number 4 to 25 /2013 and 36 to 38/2013 stipulates the maximum limits of the use of
food additives. The type and maximum limits of the sweetener use is stipulated in BPOM
Regulation Number 4/2014.44 In 2016 BPOM issued several regulations regarding food
additives:
- Regulation Number 22/2016 explains requirements for flavours
- Regulation Number 23/2016 on the use of “without food additive”
- Regulation Number 10/2016 on the use of enzymes
- Regulation Number 8/2016 on the food additive compounds

4.6. Indonesian National Standard (SNI)

Certain products for bakery ingredients are required to comply with SNI which is regulated by
BSN (National Standardisation Agency). Those products include wheat flour, fruit jam, rice flour,
tapioca flour, fruit puree, shortening ingredients and cacao based products (butter, mess,
powder, and compound). Meanwhile for baked goods, there are some products such as
biscuits, sweet breads, and white bread which are also required to comply with SNI. 45 To obtain
certification, the company has to submit documents to Product Certification Bodies (LS-PRO)
that have been accredited by National Accreditation Committee (KAN). A list of accredited LS-
PRO can be found at KAN website. In choosing the LS-PRO, the company should also note the
SNI category which the product belongs to.

44 FAIRS Report USDA, Ibid, p. 5.

45 SNI List (67-04 Food and Beverage) National Standadisation Body (BSN). Available at:
http://sisni.bsn.go.id/?/sni_main/sni/index_sniptspt/878

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4.7. Challenges
4.7.1. Regulation Challenges
As stated before, bakery and bakery ingredient products need to comply with certain regulations
and law such as SNI, Halal Law Certification, and Labelling. The list of regulations above are
becoming the major challenges for the importer, as it required a lengthy process and money to
get it issued.
According to the Vice President of The Indonesian Food & Beverage Association (GAPMMI),
food regulations in Indonesia keep on changing from time to time.46 Even the law for halal
certification in 2014 has not been explained clearly by the Indonesian House of Representatives
(DPR-RI).

4.7.2. Locally Specified Taste

To adapt with Indonesian market, foreign and local companies need to understand the trends
and behaviours of consumers in Indonesia. Indonesia has its own specified taste preference for
bakery goods and bakery ingredients. In order to penetrate the market, the flavours of baked
products need to comply with local tastes.
For example, most of Indonesian people especially from lower-middle income groups choose
chocolate flavours over other variants. Meanwhile, middle-high income groups choose a variety
of toppings and fillings such as fruits, meat, and cheese.
These preferences and trends can change from time to time. For example, when Breadtalk as
the first retail which brings the Asian styled sweet bread open to Indonesia, most people visited
to taste their products which has a softer texture and wider range of flavours than the other
traditional breads. Recently, Indonesia also has the Japanese company Bread Life and Tous
Les Jours from South Korea, which sell a similar kind of product.47

46 CNN Indonesia, Rumitnya Peraturan Makanan di Negeri Ini ( Food Regulations in This Country
Deemed to be Too Complicated), 7 October 2014. Available at: http://www.cnnindonesia.com/gaya-
hidup/20141007125559-262-5553/rumitnya-peraturan-makanan-di-negeri-ini/
47 Kulinologi, Tren Roti di Indonesia (Bakery Trend in Indonesia). Available at:

http://kulinologi.co.id/baru/index1.php?id=783

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V. Conclusion

In conclusion, Bakery ingredients are a very promising sector for foreign investment, as the
market has been constantly growing in recent years. As the bakery sector develops due to the
rising demands of consumers, the bakery ingredients sector is expected to grow as well. Most
bakery ingredients used for the bakery industry are imported, which open the opportunity for
foreign companies to enter the market.

It is noteworthy that the bakery ingredients sector is highly dependent on consumers’

preferences. Consumers’ taste affects which bakery ingredients should be used in bread-
making; such as baking emulsifier, filling, topping, and flavouring. Each consumer segment has
their own preference of flavours. Despite the demand for fillings, toppings, and flavourings are
fluctuate, but the demand for yeast, wheat flour, and premix tends to be consistent.

Moreover, it should be highlighted that there are several regulations that must be complied with,
such as Halal Law Certification, food safety, labelling, and other food-related regulations.
Compliance to those rules is necessary to enter Indonesian market. There are some challenges
which need to be addressed in the industry, such as regulation challenges and the local taste
preference. These two challenges are the most common to be found in the bread and bread
ingredients market.

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Relevant Contacts
Associations and Related Institutions
Indonesian Food and Beverage Producers Association (GAPMMI)

Building: Gedung Annex Lantai 2 (Kompleks PPM Manajemen)

Street: Jl. Menteng Raya No. 9-19
Jakarta Pusat 10340
Tel: (+6221) 70322626
Email: [email protected]
Website: www.gapmmi.or.id

National Agency of Food & Drug Control (BPOM)

Street: Jl. Percetakan Negara No.23

Jakarta 10560 Indonesia
Tel: (+6221) 4244691/42883309/42883462
Email: [email protected]
Website: www.pom.go.id

Directorate General of Customs & Excise (BEA CUKAI)

Website: www.beacukai.go.id

Ministry of Trade Republic of Indonesia

Street: M. I. RidwanRais Road, No. 5, Central Jakarta

Tel: +62 - 21 – 3858171
Email: [email protected]

Directore General for Livestock Animal Health Service of Ministry of Agriculture

Building: Gedung C Lantai VI
Street: Jl. Harsono RM No. 3 PasarMinggu,
Jakarta 12550 - Indonesia
Phone: +62 21 7815580 - 83
Email: [email protected]

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Exhibition and Trade Fairs
 Surabaya, Indonesia 20-23 June, EAST FOOD Indonesia 2019
http://eastfoodindonesia.com/
The 8th International Exhibition on Food and Beverage Products, Ingredients, Technology and
Services will return from 20-23 June 2019 at Grand City Surabaya. Pre-register your visit to
EAST FOOD Indonesia 2016 via the official registration portal at
https://eastfoodindonesia.com/online/

 Jakarta, Indonesia, 13-16 November, SIAL Interfood 2018 (last edition)

http://sialinterfood.com/
One of the biggest Food and Beverage expositions in Asia that held its last edition in November
2018. at Jakarta International Expo. It is the biggest opportunity for the participant to showcase
your products to a curious and professional audience and meet potential business partners live.
This event will also provide you with the unique opportunity to experience the market on-site
and understand it's potential.

 Jakarta, Indonesia, 24-27 July, Food & Hotel Indonesia 2019 (FHI 2019)
http://foodhotelindonesia.com/
One of the largest international food and hospitality trade exhibition and conference, will return
for its 15th edition from 24-27 July 2019 at the Jakarta International Expo. It is a high quality
platform for trade attendees to network and source for the latest range of products, technologies
and innovative solutions available in the global marketplace. Join leading industry experts and
thought leaders from around the world as they share their wealth of knowledge and experience.
With an exciting line-up of programmes, delegates and speakers alike will get to discuss the
current issues, trends and developments impacting the food and hospitality industries today.
Pre-register your space to FHI2017 via the official registration portal at
http://foodhotelindonesia.com/exhibiting/rates-space-application/. Around 1.600 international
exhibitors.

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Abbreviations

ABI Indonesia Bakery Association (Asosiasi Bakery Indonesia)

APEBI Indonesian Bakery Entrepreneur Association (Asosiasi Pengusaha
Bakery Indonesia)
API Import Identification Number (Angka Pengenal Impor)
ASEAN Association of South East Asian Nations
BKPM Indonesian Investment Coordinating Board (Badan Koordinasi
Penanaman Modal)
BPJH Halal Products Guarantee Promoter Agency (Badan Penyelenggara
Jaminan Produk Halal)
BPOM The National Agency for Drugs and Food Control (Badan Pengawasan
Obat dan Makanan)
BPS Statistics Indonesia (Badan Pusat Statistik)
BSN National Standardisation Agency (Badan Standarisasi Nasional)
GAPMMI Indonesian Food and Beverages Entrepreneur Association (Gabungan
Pengusaha Makanan dan Minuman Indonesia)
GDP Gross Domestic Product
GMK Gandum Mas Kencana
GMO Genetically Modified Organisms
KAN National Accreditation Committee (Komite Akreditasi Nasional)
LPH Halal Inspection Institution (Lembaga Pemeriksa Halal)
LPPOM-MUI Food, Drugs, and Cosmetics Assessment Agency of Indonesian Council
of Ulama (Lembaga Pengkajian Pangan Obat-obatan dan Kosmetika
Majelis Ulama Indonesia)
MUI Indonesian Council of Ulama (Majelis Ulama Indonesia)
PPMI Pondan Pangan Makmur Indonesia
PT Limited Liability Company (Ltd. – Perseroan Terbatas)
VAT Value Added Tax

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About EIBN
The EIBN is a partnership project between six European bilateral chambers of commerce in
Indonesia (BritCham, DanCham, EKONID, EuroCham, IBAI, IFCCI) and two counterparts in
Europe (EUROCHAMBRES, CCI Barcelona). The EIBN’s aim is to promote Indonesia and
ASEAN as high potential trade and investment destinations among companies from all EU28
member states – especially SMEs – and support them in their endeavour to explore the full
market potential in Indonesia. The project was initiated and co-founded by the EU.

Media Partner:

Disclaimer
This publication has been produced with the financial assistance of the European Union. The
contents of this document are the sole responsibility of the EIBN and can under no
circumstances be regarded as reflecting the position of the European Union.

The figures in this report correspond to EIBN’s best estimate of value of the corresponding
variables. Although due care was taken in the preparation of this publication, EIBN makes no
warranty as to its accuracy or completeness and is not to be deemed responsible for any errors
or loss resulting from its use. Other organizations quoted herein are in no way responsible for
the content of the report or the consequences of its use.

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