Why Has the KPK Not Yet Ensnared Travel Agencies in the Hajj Quota Case?

The Corruption Eradication Commission (KPK) has so far designated only two suspects from the state apparatus in its handling of the alleged corruption case involving additional hajj quotas for the 2024 pilgrimage season.

They are former Religious Affairs Minister for the 2020–2024 period, Yaqut Cholil Qoumas, and his special aide, Ishfah Abidal Aziz, also known as Gus Alex.

The management of additional hajj quotas involved Special Hajj Organisers (PIHK), or hajj and umrah travel agencies. The KPK has examined more than 350 hajj and umrah travel agencies spread across various regions in Indonesia during the investigation process.

KPK Chairman Setyo Budiyanto explained that, based on the evidence obtained by investigators thus far, only two suspects have met the criminal elements — namely Yaqut and Gus Alex.

Nevertheless, the retired three-star police general assured that his agency would continue to pursue further developments.

“Everything is certainly based on the results of examinations, evidence, testimony, documents, and other witnesses. For now there are just two suspects; as for further developments, we shall see,” said Setyo after attending the inauguration of five directors and one bureau head at his office in Jakarta on Friday (20 February).

The KPK has not yet detained Yaqut or Gus Alex. However, the anti-corruption body has requested the Directorate General of Immigration to extend the travel ban on both individuals until 12 August 2026.

“The extension of the overseas travel ban on the parties concerned is naturally based on the needs of the investigation process, as the investigation into the hajj quota case is still ongoing, including the calculation of state financial losses which is still being conducted by auditors from the Supreme Audit Agency (BPK),” said KPK spokesperson Budi Prasetyo.

The KPK did not extend the overseas travel ban for Fuad Hasan Masyhur, the President Director of PT Makassar Toraja (Maktour), which expired in February.

The reason is that Fuad remains a witness in the alleged corruption case related to additional hajj quotas for the 2024 pilgrimage season.

Under the provisions of the 2026 Criminal Procedure Code (KUHAP), overseas travel bans apply only to suspects. This provision had drawn protests from the KPK since the drafting stage of the revised KUHAP.

“If we look at the new KUHAP, overseas travel bans can only be imposed on suspects or defendants,” said Budi.

Fuad has been one of the individuals most frequently dealing with the KPK in this case. He has been examined as a witness several times and his office has also been searched by investigators.

Moreover, during those searches, the KPK revealed there had been attempts to destroy evidence. The KPK has confirmed it will investigate this matter further as it carries criminal consequences.

The Case Background

The additional hajj quota at the centre of the investigation was obtained after Indonesia’s seventh President, Joko Widodo, held a bilateral meeting with Crown Prince and Prime Minister of Saudi Arabia, Mohammed bin Salman Al-Saud, on 19 October 2023.

Under Article 64, paragraph 2 of Law Number 8 of 2019 on the Organisation of Hajj and Umrah Pilgrimages, the special hajj quota is set at 8 per cent of Indonesia’s total hajj quota.

The special hajj quota comprises special hajj pilgrims and special hajj officers. The remaining 92 per cent is allocated for the regular hajj quota.

The additional 20,000 hajj places should have been distributed as follows: 18,400 (92 per cent) for regular hajj pilgrims and 1,600 (8 per cent) for special hajj pilgrims.

Accordingly, the regular hajj allocation should have risen from 203,320 to 221,720 persons, whilst the special hajj allocation should have increased from 17,680 to 19,280 persons.

However, the additional allocation from Saudi Arabia was instead divided into 10,000 for the regular hajj quota and 10,000 for the special hajj quota.

This was stipulated in Religious Affairs Ministerial Decree Number 130 of 2024, signed by the then Religious Affairs Minister Yaqut Cholil Qoumas on 15 January 2024.

The KPK believes there was an unlawful act in the distribution of the additional hajj quota, a view reinforced by legal expert opinions.

The alleged corruption case involving the 2023–2024 additional hajj quota is estimated to have caused state losses of at least Rp1 trillion. The KPK is awaiting the final calculation of state losses currently being conducted by the BPK.

Meanwhile, since the outset of the case, the KPK has also been collaborating with the Financial Transaction Reports and Analysis Centre (PPATK) to trace the flow of funds.

Numerous witnesses from both the Ministry of Religious Affairs and hajj travel agencies and associations have been examined.

Among them are Yaqut Cholil Qoumas; Director General of Hajj and Umrah Organisation at the Ministry of Religious Affairs, Hilman Latief; Chairman of the Nahdlatul Ulama Executive Board (PBNU) and Yaqut’s aide, Ishfah Abidal Aziz alias Gus Alex; Deputy Secretary General of the Ansor Youth Movement Central Leadership, Syarif Hamzah Asyathry.

Others include the owner of Maktour Travel agency, Fuad Hasan Masyhur; the owner of PT Zahra Oto Mandiri (Uhud Tour), Khalid Zeed Abdullah Basalamah; the owner of hajj and umrah travel firm PT Muhibbah Mulia Wisata Pekanbaru, Ibnu Mas’ud; Kesthuri Secretary Muhammad Al Fatih; Kesthuri Visa Division head Juahir; Sapuhi Chairman Syam Resfiadi; and Independent Commissioner of PT Sucofindo, Zainal Abidi.

The KPK has also searched a number of locations including Yaqut’s residence in Condet, East Jakarta; hajj and umrah travel agency offices in Jakarta; a Ministry of Religious Affairs civil servant’s home in Depok; and the offices of the Directorate General of Hajj and Umrah Organisation at the Ministry of Religious Affairs.

A substantial volume of evidence allegedly connected to the case has been seized, including documents, electronic evidence, four-wheeled vehicles, and property.