Advances in Social Science, Education and Humanities Research, volume 167 First International Conference on Administrative Science, Policy and Studies (1st ICAS-PGS 2017) Second International Conference on Business Administration and Policy (2nd ICBAP 2017)

Emergence of Military-Based in Reformation Era (The Case Study of Rivalry between SBY and Luhut B. Pandjaitan in the Nationalization of PT Inalum)

Alim Bathoro Meidi Kosandi Universitas Universitas Indonesia Universitas Maritim Raja Ali Haji , Indonesia Jakarta, Indonesia [email protected] [email protected]

Abstract community such as one-person-one-vote in Indonesian or mobilization and This article analyzes the rivalry between direct actions of activists and laborers, President SBY and Luhut Pandjaitan in the extreme discrepancy in material power has nationalization of PT. Inalum. The rivalry has led to the establishment, domination, and confirmed the perceived emergence of oligarchy in Indonesia, as proposed by Winters. In addition, distortion of Indonesian as a whole. the process of the growth of oligarchy has Theory of oligarchy has vividly described resulted in the resurgence of patrimonialism. It that extreme power and resource implies that both of the groups survive and concentration in Indonesian economy and establish military patrimonialism in reformation policy has confirmed the role in social era. Both groups are two different entities formation.[13] competing in several matters, including the nationalization of PT Inalum. This study employs Former Chief of Team of Oil and Gas two main theoretical frames of oligarchy and Management Reformation Faisal Basri has patrimonialism. It argued that the competition found the fact that a number of national between the two oligarchic groups reveals the private elites occupying in governmental resurgence, growth, and development of positions have abused the BUMD (local- oligarchy after the initial emergence in the New owned enterprises) for their personal Order. This study reveals that reformation has interest. Further, Faisal Basri, appointed by transformed patron-client relationship initially established in the and later grown and President Jokowi the chief of the oil and gas strengthened in reformation era to become management reformation.[21] oligarchy. The oligarchy has resulted in Such an oligarch phenomenon is competition for economic resources among apparent in the case of PT Toba Sejahtera. oligarchic groups. The company has gained the power to Key words: Oligarch, patrimonialism, suppress the municipal and provincial Oligarchic conflict, Indonesia, political economy. government in North Sumatera to create a INTRODUCTION perception as if PT Toba Sejahtera played an important role in the acquirement of the To understand contemporary political shares of PT Inalum. The influencing power condition in Indonesia we may learn from to suppress local governments resulted from the fact that extreme material inequalities political lobbies of Luhut B Pandjaitan. may result in extreme political inequalities. Both in democratic system and authoritarian Regardless, that Inalum nationalization system, wider gap of inequalities of resource has proved the emergence of oligarch distribution may lead to more exaggerative phenomena in Indonesia. In addition, the power and influence of the oligarch. birth of the oligarchy also spawned patron- Consequently, material inequalities will clients within contemporary military become more intensely influence the political groups. Because, in the political motive and objective of the nationalization, President SBY supported oligarchs. In spite of other relatively well Alumni Akabri 73 and the Democratic Party distributed power resources in the became a barrier Luhut Pandjaitan acquired shares of PT Inalum, even though he

Copyright © 2017, the Authors. Published by Atlantis Press. This is an open access article under the CC BY-NC license (http://creativecommons.org/licenses/by-nc/4.0/). 199 Advances in Social Science, Education and Humanities Research, volume 167

through PT Toba Sejahra has binding MoU The core set of political objectives with North Sumatra Provincial Government linked to securing property and to cooperate in divestment PT Inalum. As preserving wealth and income.[12] described above, PT Toba Sejahtra is a The specific work pattern of oligarchy Luhut-owned company that houses the constitutes an important part of the business retired alumni general of the 1970 Ground operation of Toba Sejahtra in encouraging Force Akabri alumni. the nationalization of PT Inalum. Toba RESEARCH METHODOLOGY Sejahtra has combined business intensive and political influence to assure the This study employs qualitative method to provincial government of North Sumatera to analyze research findings with the main approve the proposed set scheme of perspective being oligharchy theory and partnership. patron-client theory In the case of PT Inalum, Luhut has THEORETICAL FRAMEWORK : also successfully ensured loan from BNP OLIGARCHY AND Paribas and Deutsche Bank although the PATRIMONIALISM funding scheme was at high risk for national The aforementioned section has revealed interest by added national that oligarchy is the phenomena currently legislatures. As in the case of divestment of apparent in Indonesian political life. The the shares of PT Newmount Nusa Tenggara emergence has become an interesting (NNT), the partner of the provincial scientific study. To understand better the government of West Nusa Tenggara (NTB), issue, it is necessary to have good Multi Capital (the subsidiary of Bakrie understanding about oligarchy. Jeffry Group), has put the shares of NNT as the Winters (2011) described Oligarchy as collateral in Credit Suisse Bank. [25] follow: Therefore, in case a problem occurs in the BUMD, which was the venture company of A theory of oligarch and oligarchy the provincial government of North centered on wealth defense is prone to Sumatera and Toba Sejahtra, the shares far less dissent and conflict on the core would be under the ownership of the two set of political objectives linked to banks. Consequently, it endangers national securing property and preserving wealth interest. and income. Oligarch may disagree about many things, and depending on the The political history of Indonesia reveals situation, they may even fight violently that the Indonesian Army (TNI AD) has a to grab each other's fortunes.[12] strong political influence in Indonesia since Guided Democracy period. The influence The power of oligarchy is the worst derives from the fact that politically, impact of democratic decentralization in Indonesia is characterized by Indonesia after the collapse of the regime of patrimonialism. The thesis of Ben Anderson the New Order. Richard Robison and Vedi and Harold Crouch on bureaucratic R. Hadiz describe oligarchic power as patrimonialism reveals that the military follow: group has such a character. Harold Crouch The critical achievement of the oligarchy suggested that the influence has been a was its metamorphosis within a new global phenomenon in the developing political democracy and within the countries. [2] framework of new political alliances Therefore, the conflict between SBY and with political and business interests, Luhut Pandjaitan in the nationalization of local officials, fixers and even criminals PT Inalum can be described from the formerly operating on the fringes of the perspective of patrimonialism. Both SBY Soeharto regime as these now flooded and Luhut are the patrons of their own into the new political arena. [10] military groups. SBY was the patron of the According to Winters, the work of class 1973 alumni of Akabri (the Indonesian oligarchy in political activities is associated Armed Forces Academy) [22], while Luhut to wealth defense. Winters explicitly was the patron of the 1970-class alumni of described it in the following notion: Akabri[26]. Most of the top-executives of PT Toba Sejahtra were the infantry alumni of Akabri Ground Force of 1970-class

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alumni of Indonesian armed forces So basically giving room or floor in academy.[18] Wisma Bakrie, not just lease relationship, as explained by Luhut Pandjaitan. The Discussing Toba Sejahtra can not be relationship, however, is a teacher-student separated from the influence of Bakrie relationship (patron-client), in which Group. Bakrie is a Holding Company whose Aburizal provides guidance, motivation, majority shares are controlled by the Bakrie examples while Luhut is a newcomer to the family. And, the most influential figure of business world, absorbing examples of Bakri Group is Aburizal Bakri. Aburizal business governance, networking, and Bakri aka Ical is the Chairman of the business operations. Luhut cloned Aburizal Party (2009-2016). And in that position, he Bakrie's business and implemented it in then appointed Luhut Pandjaitan as the Toba Sejahtra. James C. Scott classified Deputy of the Golkar Party DPP patron-client relationship into two. The first Consideration Board. model is patron-client cluster. In this model Therefore, the presence of Bakri Group a patron has association to a number of in PT Toba Sejahtra can be seen from two clients. [11] sides, the first side is the political The second model is patron-client relationship and the second side is the pyramid. This model combines a number of business. From political side, for ARB or groups of patron-client led by the highest Ical, Luhut figure is a military politician patron. The highest position derives from who is considered to support his political the fact that the patron has the power over action in the face of Indonesian politics that life resources, has high and respectable is still influenced by military groups. It is social or governmental position, and has natural that ARB appoints Luhut as the strong financial resources needed by the representative of the Golkar Party Advisory clients. Council, a prestigious post. In principal, as Scott suggested [11], the While on the business side, it is patron-client relationship is usually closely undeniable that Luhut business pattern has associated to patrimonialism and many similarities in Aburizal Bakrie's primordialism. Therefore, the core of the business pattern through Bakri Group, at relation of patron-client is the exchange of least it has a similar pattern in the method of goods and services. Patron with the political acquiring the company's desired shares. and economic power meets the need of the Good when Toba Sejahtra wants shares of clients in the form of the provision of goods. PT Inalum and when Bakrie Group wants In return, the patron expects services from shares of PT Newmont Nusa Tenggara in the clients in the form of support and loyalty cooperation with NTB Provincial of the clients to the patron. The services are Government of PT Newmont shares gain needed by the patron to strengthen political effort. and economic resources of the patron. The bridging and business schemes Scott’s proposition has confirmed why between Toba Sejahtra and Bakrie Group Aburizal Bakrie has allowed his business have similar operations, both in business cloned. Even better, Aburizal Bakrie operations, funding schemes, and lobbying provided facilities, protection and to local governments. Proximity may occur networking because Aburizal Bakrie in other companies, but the similarity expected to get support and loyalty from between Toba Sejahtra and Bakrie Group is Luhut in the winning of Partai Golkar and not just an example, but more than that. the Presidential Candidacy of Aburizal Both are like teachers (Bakrie Group) and Bakri in Presidential Election 2014. students (Toba Sejahtra). Because there is an emotional connection, as revealed by Luhut As a result, in the frame of patron-client that the divestment of PT Newmont Nusa relationship, it is normal that Luhut was Tenggara shares inspires him. Thus, involved in the Success Team for the although Aburizal Bakrie does not have the Presidential Candidacy Run for Ical in 2014. capital in Toba Sejahtra, but Luhut As a form of support from Luhut Pandjaitan Pandjaitan and Aburizal Bakrie's business to Aburizal Bakrie, the Tim Begawan (the relationships are inevitable. Expert Team) was established to support Aburizal Bakrie in the Presidential Candidacy. In the team, Luhut has proven to

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the patron that he had the capacity to combine support from the former high-rank military figures.[18] The Tim Begawan (the Expert Team) served the function of providing political analysis for the sake of Aburizal Bakrie.

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TABLE 1. OLIGARCH IN INDONESIA

Politician Oligarch Support of Oligarch Media Owner/Leader /Buyer of Political Party Aburizal Yes Self TVOne, Visi Media Asia, Yes/Golkar Bakrie Vivanews.com (Anindya) (11% from television) Susilo Yes Dahlan iskan (also related Jawa Pos Group (Radar, Yes/Partai Demokrat Bambang (Hidden) to SBY) Television network) Yudhoyono Budi Sampoerna, Sunaryo Media Nusa Pradana Sampoerna, Ramadhan (national journal), Trans Pohan, Chairul Tanjung Corp (TransTV, Trans7), Detik.com James Riady (Peter Gontha) Lippo Media, Berita Satu Media, saham (Suara (2004 Aburizal Bakrie, pembaharuan, Jakarta Globe, ) Chinese Investor Daily, exploited beritasatu.com) Surya yes Self MetroTV, Media Indonesia Yes/Nasdem Paloh (36% from television) Prabowo yes Self Hashim (relative) Attempted to purchase a TV Yes/Gerindra station yes Self (Cendana?) MNC Group, RCTI, Global Yes/Hanura Hery Tanusoedibyo (has TV, MNC TV, Radio Sindo, relationship with SBY, Seputar Indonesia, then with Okezone.com Megawati Hidden Taufik Kiemas ______Genetic/ PDIP Arifin Panigoro Jusuf Kalla yes Self ______Yes Golkar 2004, 2014? Luhut B. yes Aburizal Bakrie ______yes/Golkar 2009- 2014 Pandjaitan* Source: Jeffry A. Winter, Prisma Vol. 33, No. 1, 2014, (*)add to by author, Processed.

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Therefore, as the table reveals, it is The two groups are two different entities understandable that SBY was categorized competing in various aspects, including the into an oligarch as defined by Jeffry A. nationalization of PT Inalum. The Winters. The political victory of Partai contestation ended with the political decree Demokrat (the Democratic Party) in 2009 of President SBY supported by DPR RI. has assigned Partai Demokrat ruling party in Therefore, nationalization of Inalum, in Indonesia, including in North Sumatera. The intergroup conflict perspective, is SBY’s political superiority was characterized by the way to show his power as the ruler to his majority chairs (26 of 100 chairs) in the political rival, particularly Luhut. local parliament of North Sumatera. As it Jeffrey A. Winters’ theory of oligarchic has been mentioned in the law, Partai power seems to be able to describe the Demokrat reserved the right to lead the phenomenon of Luhut’s group. Winters Provincial Parliament of North Sumatera for suggested 2 (two) propositions concerning the period of 2009-2014. The Fraction of oligarchy power. First, oligarch and Partai Demokrat of the DPRD of North oligarchy develop their power based on Sumatera appointed H. Saleh Bangun the their material wealth. Second, the scope of Chairman of DPRD of North Sumatera. oligarchic minority is dominated by an Therefore, as the patron, initially SBY exclusive group that controls crucial was supported by his colleagues of class decisions. However, accumulation and 1973 alumni of Akabri. However, after concentration of wealth on particularly winning the contestation of Presidential limited persons or elites may lead to Candidacy in 2004, he had larger number of material injustice that will result in political clients including the businesspeople (see the injustice in democratic state system.[12] table above) and certainly the administrators Luhut’s group is an influential oligarchy of Partai Demokrat from national to local group in Indonesia. The group had the offices, including in North Sumatera capacity to exercise verbal pressure and RESULT, CONFLICT OF OLIGARCHS advice. Luhut described to President SBY AND MILITARY GROUP about the figure of Prabawo, who was considered inappropriate to succeed SBY as Military is one of the respectable groups the President of Indonesia. in political contestation in Indonesia. The presence of SBY as the representation of a The meeting between Luhut’s group and military group in Indonesian political President contestation implies that military groups implied that Luhut’s group is one the play an important role. However, there are oligarch respected by President SBY. In other military groups other than SBY’s general they were considered to have group. Luhut belongs to another military independent financial and economic group. This study found a rivalry between resources. With such independence, the President SBY and Luhut Pandjaitan in the group had bargaining position to SBY’s nationalization of PT Inalum. The rivalry regime. clearly described why the Provincial Nevertheless, the influence of Luhut had Government of North Sumatera failed to not fully been successful in resulting in obtained majority shares in the pressure to President SBY. As a result, in nationalization of PT Inalum. the nationalization of PT. Inalum, the According to Harold Crouch[2], negotiation between the Provincial Indonesian military groups, particularly the Government of North Sumatera and Luhut Indonesian Army (TNI AD) is a political was not relatively encouraging since the group established by the patrimonial New Provincial Government of North Sumatera Order. Consequently, patrimonialism only obtained 30% shares[14], although develops along with military development in Luhut had taken the necessary ways to meet Indonesia. Such is also the case for the class President SBY[37] and a number of 1973 alumni comprising the class 1973 ministersto get his wish met?[19] alumni (SBY’s class) and the class 1970 Actually Luhut as an influential oligarch alumni (Luhut’s class). The two groups expected to have a strong bargaining survived and developed military position to the government in the patrimonialism in reformation era. negotiation. He expected that his partnership

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with the Provincial Government of North had strong influence on national political Sumatera would gain positive response from constellation. However, the condition had President SBY. Therefore, with the put Luhut’s group in the opposition to framework of relationship between Luhut President SBY. and the government, the group had DISCUSSION influential capacity to secure the shares of PT Inalum after the nationalization. This study reaffirms the notion that oligarchs in Indonesia are composed of There were a number of reasons of why patron-client relationships, but the the Provincial Government of North relationship is based on profit and loss, so Sumatera secured 30% of shares. First, the that it is liquid and not solid and can change Provincial Government of North Sumatera depending on the emerging ruler, whether was considered by President SBY to be by democracy or not. This means the affiliated to Luhut Pandjaitan. Consequently oligarch will seek to preserve its wealth by it only secured 30% of the shares of PT being part of the ruling group. So the policy Inalum.[19] The low percentage of shares decided by the rulers to benefit the oligarch. resulted in protest from the local elites since Thus, the oligarch's material resources are it was considered to be underrepresentation safe and sustainable. Therefore, oligarchs for local governments. Nevertheless, the and oligarchs as a group working together to government persisted and shared only 30% defend wealth will try to find a way to to the local government. Most of elites of secure their material wealth, always the central government considered that the approaching the authorities. local governments in North Sumatera were subordinates of PT Toba Sejahtera. Meanwhile, the battle between the oligarchs between SBY and Luhut, based on Therefore, Luhut Pandjaitan was the beginning of SBY's decreased of power considered as dangerous or disadvantageous approaching the end of the period of power oligarch by the elites of the central of President SBY in 2014. So Luhut government such as President SBY and a approaching the year 2014 seeks to find a number of legislators in DPR RI. They way to find a reliable ruler to maintain worried that he would endanger their material wealth, because SBY powers are political interest. Therefore, he did not considered to start Subsided by Luhut. If deserve large proportion of shares. previously in the reign of SBY (2004-2014) The second reason is that in Indonesian Luhut become part of the group Aburizal political system, President SBY had the Bakrie and Golkar Party associated with the legitimate power deriving from the direct coalition of supporters of SBY. So when the Presidential election. Consequently, he was period of SBY power runs out, Luhut fully confident that Luhut as a political looking for new roads approaching potential patron would not endanger his regime. rulers who potentially win the election. So Although President alleged a probable coup naturally he became part of Jokowi's d’état by Luhut’s group.[ 18] It was later government now. known to be a mere warning to the society CONCLUSION and his people about the existence of a group in opposition to President SBY. Since However, political inequality can lead to it was not considered dangerous, the conflict. According to Maswadi Rauf, government did not arrest nor investigate political conflict among elites usually any body for subversive allegation. derives from the desire to show political identity to the political opponents. Third, most of the retired military generals behind Luhut were proponents of Maswadi Rauf suggested that conflict SBY[18] in the Presidential Elections 2004 among political elites with different interests and 2009. It implies that politically, they may be resolved in consensus. Political were not the rivals of SBY. They were just consensus may be secured from general like opportunists. Therefore, SBY did not election, deliberation, or voting.[8] This seriously consider the political influence of study found that consensus secured in the the retired military generals. Therefore, conflict among the oligarchs is the although Luhut had accommodated retired consensus between the government and military generals since 2007 in PT Toba Commission VI DPR RI to assign 30% of Sejahtra, as a political group, they had not

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shares to the Provincial Government of [10] Robison, Richard and Vedi R. Hadiz, 2004, North Sumatera. Reorganizing Rower in Indonesia: The Politics of Oligarchy in An Age of Markets, This study proves that patrimonialism London and New York: Routledge Curzo. [11] Scott, James C. , 1972, Patron-Client Politics still exists in political life in Indonesia. This and Political Change in Southeast Asia, The is apparent in the phenomenon that clients American Political Science Review, Vol. 66, leave the patron who has lost the power. In No. 1 (Mar., 1972), p. 66. the case of Luhut, knowing that Aburizal [12] Winters, Jeffery A, 2011, Oligarchy, New York: Cambridge University Press. Bakrie had little chance to become President [13] ______, 2014, Oligarki dan Demokrasi of Indonesia, he tactically sought new di Indonesia , Jurnal Prisma Vol. 33, No. 1, patron, which was Joko Widodo who had 2014. higher chance to become President of [14] Press Release, Indonesian Ministry of Industry, Indonesia. According to Scott [7] the http://www.kemenperin.go.id/artikel/7605/P relation of patron-client is based on benefit emerintah-and -DPR-Sepakat-Pengelolaan- and loss. PT-Inalum--Ditangani-Kementerian-BUMN donloaded 22/3/16 at 23.12. Therefore, as an oligarch, Luhut will always try to be close to the ruler in order to Interviews retain the wealth he possesses. While SBY [15] Interview with Governor of South Sumatra Gatot Pujo Nugroho on 24 Mei 2014 in on the eve of the end of his period of power. Bandung. Trying to keep showing as existence as [16] Interview with Member of Commission VI President of RI which still have power. DPR RI H Refrizal from Fraction of PKS Therefore, he needs to secure his political (2009-2014) on 14 September 2014 in Jakarta. decisions to benefit himself as well as [17] Interview with Member of Commission VI eliminate his political rivals including in this DPR RI Chairuman Harahap, SH from case Luhut. Fraction of Partai Golkar (2009-2014) on 14 September 2014 in Jakarta.

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RMOL [27] September, 21, 2010 11:19:00 West Indonesian Time. Kawan Seangkatan SBY di Akabri Seperti Maling Teriak Maling. Tempo.com [28] July, 23, 2012 06:12 West Indonesian Time. Hartati Murdaya Sang Motor Penyokong SBY. [29] March,05, 2012 12:19 West Indonesian Time. Ini Kata Ical Bakrie Soal Isu Kudeta SBY KRJogja.com [30] March, 19, 2012. SBY: Ada Upaya Jatuhkan Pemerintah Beritasatu.com [31] December , 13, 2015 21:19 . Luhut Diajak Jim Bob Gabung ke Freeport 2012 Merdeka.com [32] February ,10, 2016 09:05. Kritik Jokowi, bentuk sayang SBY berbuah serangan balik Viva.co.id [33] February ,9, 2016. 14.22 West Indonesian Time. Tanggapi SBY, Luhut: Siapa Bilang Kita Anti Kritik Okezone News.com [34] February, 28, 2011 - 14:45. BNI Siap Kucurkan Dana Ke Inalum. Jaringnews.com [35] October, 18, 2013 21.01 West Indonesian Time. Pemda Of North Sumatera Belum Menyampaikan Skema Rencana Pengelolaan Kepada DPR, downloaded on 27/4/16 at 21.37. Waspada.com [36] July, 07, 2010, 6:43. DPRD Sumatera Utara Khawatir Inalum Jilid II, downloaded on 5/11/15 at 13.40. Bisnis.com [37] Interview with Luhut Pandjaitan published in Friday 15 October 2013.

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