Negotiating and Consolidating Democratic Civilian Control of the Indonesian Military by Dewi Fortuna Anwar EAST-WEST CENTER OCCASIONAL PAPERS Politics and Security Series No. 4, February 2001 OCCASIONAL PAPERS The East-West Center was established by the United States Congress in 1960 “to promote better rela- tions and understanding between the United States and the nations of Asia and the Pacific through cooperative study, training and research.” Funding for the Center comes from the U.S. government with additional support provided by private agencies, individuals, corporations, and a number of Asian and Pacific governments. East-West Center Occasional Papers: Politics and Security Series reports on significant research in the Asia Pacific region. Contributions to the series reflect diverse perspectives and do not necessarily represent the views of the East-West Center. All manuscripts are peer reviewed. The price per copy is U.S. $7 plus shipping. For information on ordering contact: Publication Sales Office East-West Center 1601 East-West Road Honolulu, Hawaii 96848-1601 Email: [email protected] Tel.: (808) 944-7145 Fax: (808) 944-7376 Website: www.EastWestCenter.org Negotiating and Consolidating Democratic Civilian Control of the Indonesian Military by Dewi Fortuna Anwar EAST-WEST CENTER OCCASIONAL PAPERS Politics and Security Series No. 4, February 2001 This policy paper is a product of the project, “The State and the Soldier in Asia: Inves- tigating Change and Continuity in Civil- Military Relations.” The project attempts to answer the questions: What is the place of the military in the state? What are and what explains the cross-national similari- ties and differences in Asian states? What is the future of civil-military relations in Asia and what are the implications for do- mestic political change and for international politics in Asia? Funding for the project comes from the Smith Richardson Foundation and the Ford Foundation. The project director is Muthiah Alagappa, director of the East-West Center Washington Office. About the Author Dewi Fortuna Anwar is currently Research Professor at the Center for Political and Regional Studies, the Indonesian Institute of Sciences (PPW-LIPI) and Associate Director for Research at The Habibie Center. She obtained her Ph.D. from Monash University, Australia, with a thesis titled, “ASEAN as an aspect of Indonesian foreign policy.” Her research interests include ASEAN political and security issues, Indonesian foreign policy, and the political role of the Indonesian military. © 2001 by the East-West Center. All rights reserved. Printed in the United States of America. CONTENTS Abstract 1 Introduction 3 The Emergence of Indonesia’s Politicized Military 5 The Military Under the New Order 12 From the Middle Way to Military Domination 12 Control of the Legislative Realm 13 Control of the Executive Branch 15 The Territorial Command Structure 16 The Internal Security Role 16 The Military’s Economic Involvement 17 Steps Taken to Bring the Military Under Democratic Civilian Control 18 Political Reforms 18 Ending the Military’s Role in Internal Security 20 Investigation of Human Rights Abuses 20 Initial Ascendancy of President Abdurrahman Wahid Over the Military Leadership 22 Internal Military Reforms 24 Major Challenges to Democratic Civilian Control of the Military 25 Difficulties in Ending the Military’s Economic Involvement 26 Continuation of Territorial Command Structure 26 Regional Conflicts and Police Inadequacy 27 Suspicions of Military Involvement in Prolonging Conflicts 28 Lack of Civilian Expertise 29 Difficulties in Taking Past Military Abuses to Account 30 Opportunism and Complicity of Civilian Elites in Prolonging the Military’s Political Role 31 CONTENTS Recommendations 32 Strengthen the General Consensus on Democracy 34 Establish the Constitutional Framework and Safeguards for Democracy 35 Ensure Adequate Military Funding and End Military Involvement in Business 36 Strengthen Civilian Police and Limit the Military’s Role in Internal Security 37 End the Military Territorial Command Structure 37 Create Civilian Agencies and Enhance Civilian Expertise to Oversee Military Activities 38 Preserve Military Autonomy in Internal Matters 39 Reorient the Military Toward External Defense 39 End Military Immunity from Civilian Prosecution 40 Ensure Both International Sanctions and Support 41 Conclusion 41 Endnotes 43 References 43 ABSTRACT The democratization process in Indonesia has begun in earnest and has led to the formation of a democratically elected government supported by a genuinely open and pluralistic political system. Nonetheless, it is generally acknowledged that consolidating democracy will be a slow and painful process. Of the many challenges faced by the new Indonesia, the most difficult will surely be the refor- mation of the military from a long-term social-political force into a truly profes- sional defense force under democratic civilian control. In this paper the author puts forward 10 steps that need to be taken to negotiate and consolidate demo- cratic civilian control of the military, to ensure that the military is no longer used to prop up authoritarian regimes, and to transform the Indonesian military into a truly professional defense force. This paper is divided into six main parts. The first part provides a brief history of the expansion of the role of the Indonesian military and its relation- ship with successive governments from independence to the establishment of Soeharto’s New Order. The second part looks at the military’s political domi- nance and economic activities under the New Order. The third examines the various steps and advances that have been made toward ending the military’s social-political role and special privileges. The fourth part outlines the many ob- stacles and challenges to imposing democratic civilian control over the military. The fifth provides policy recommendations and outlines practical measures that can be taken to consolidate democratic civilian control, including the possible role of the international community. The final part presents conclusions regard- ing the prospects for Indonesia’s democratic consolidation, and the efforts to end military intervention in politics once and for all. INTRODUCTION On May 21, 1998, President Soeharto dramatically resigned in the face of massive student demonstrations and public pressure galvanized by Indonesia’s deepening economic crises. The New Order political structure that once seemed invincible is now under siege. Political institutions and practices designed to uphold a small ruling elite dominated by President Soeharto and the military are being dis- mantled to make way for democracy and the rule of law. Central to this reform process is the redefinition of the military’s role, and of civil-military relations more broadly. The doctrines and practices that have maintained the military as the locus of power must be replaced by ones that will ensure democratic civilian control of the military. The democratization process in Indonesia has begun in earnest and has led to the formation of a democratically elected government supported by a genuinely open and pluralistic political system. Nonetheless, it is generally acknowledged that consolidating democracy will be a slow and painful process. Of the many challenges faced by the new Indonesia, the most difficult will surely be the refor- mation of the military from a long-term social-political force into a truly profes- sional defense force under democratic civilian control. In the midst of an ongoing economic crisis and rising social tensions, the task for the new civilian leaders is made all the more daunting by the rising expectations of Indonesia’s huge and diverse population. The military is at the moment badly discredited due to its role in propping up Soeharto’s repressive and rapacious regime. Yet it must be admitted that, except for a small group of intellectuals and prodemocracy activists, popular support for the current democratic system does not primarily reflect ideological commitment to democratic values as such. Instead, the majority base their enthusiasm for democracy on expectations that it will end the economic crisis, restore law and order, and provide them with a better opportunity to make a liv- ing. Given that people traded their political freedom for prosperity in the past, it is questionable whether they will now willingly trade their economic welfare for democracy. The civilian elite is therefore under great pressure to show that it can govern effectively; any shortcomings on their part will make it even more 4 Dewi Fortuna Anwar difficult to keep the military out of politics. A further complication is that the government remains fully dependent upon the military to maintain internal security in the face of various violent social conflicts and armed insurgencies. While it is currently difficult to envisage the full restoration of military control of the Indonesian political system, it seems highly unlikely that the military will be wholly confined to the barracks in the immediate future. Over the past two years the military has increasingly been put on the defen- sive. A number of steps have already been taken to end the social-political role of the military and to bring those accused of human rights abuses to justice. The new election laws enjoin both the military and the civilian bureaucracy to remain strictly neutral in the general elections. Appointments of active military officers to government positions have also been