“We would like to convey that… not all of them were anarchic. Only about 3,000 who entered the pitch,” he said.
Fleeing fans “went out to one point at the exit. Then there was a build-up, in the process of accumulation there was shortness of breath, lack of oxygen”, he added.
Videos on social media show fans clambering over fences to escape. Separate videos appear to show lifeless bodies on the floor.
Fifa, the world’s governing football body, states that no “crowd control gas” should be carried or used by stewards or police at matches.
The Indonesian football association (PSSI) said it had launched an investigation, adding that the incident had “tarnished the face of Indonesian football”.
Violence at football matches is not new in Indonesia, and Arema FC and Persebaya Surabaya are long-time rivals.
Persebaya Surabaya fans were banned from buying tickets for the game because of fears of clashes.
But Chief Security Minister Mahfud MD posted on Instagram that 42,000 tickets had been sold for the match at the Kanjuruhan stadium.
President Widodo called for this to be the “last soccer tragedy in the nation” after ordering that all Liga 1 games should be paused pending an investigation.
The stampede is the latest in a long line of disasters at stadiums.
In 1964, a total of 320 people were killed and more than 1,000 injured during a stampede at a Peru-Argentina Olympic qualifier in Lima.
In 1985, 39 people died and 600 were hurt at the Heysel stadium in Brussels, Belgium, when fans were crushed against a wall that then collapsed during the European Cup final between Liverpool (England) and Juventus (Italy).
In the UK, a crush developed at the Hillsborough stadium in Sheffield, resulting in the deaths of 97 Liverpool fans attending the club’s FA Cup semi-final against Nottingham Forest.