8 CRAFTING INDONESIAN DEMOCRACY Inclusion-Moderation and the Sacralizing of the Postcolonial State JEREMY MENCHIK Rule of law in Indonesia must be understood through the viewpoint of the 1945 Constitution, namely a constitutional state which places the ideal of Belief in God as its foremost principle as well as religious values underlying the movements of national and state life, and not as a country that imposes separation of state and religion or merely holds to the principle of individualism or communalism. —INDONESIAN CONSTITUTIONAL COURT (2010), DECISION 140/PUU-VII/2009, §3.34.10 INTRODUCTION Indonesia is the largest Muslim-majority country in the world and a sta- ble, consolidated democracy, according to most scholars as well as indica- tors from Polity.1 Te centrality of Islamic organizations to Indonesia’s successful democratic transition and consolidation has afrmed scholars’ view that the inclusion of antisystem parties in the political process fosters their moderation. Over the course of the twentieth and early twenty-frst —-1 century, the Indonesian Islamic organizations that have participated in —0 —+1 step18430_1st_i-242.indb 163 03/11/17 11:59 am R E THINKING OT HER DE MOCRACIES WITH LA RGE MU SLIM PO PULATIONS crafting the policies of the state have implicitly or explicitly moderated their views. Teir ideologies have shifted from pan-Islamists who seek a global caliphate to Indonesian Islamists who aim to create an Indonesian Islamic state, Indonesian Muslim pluralists who actively work with other religious and ideological groupings and promise to safeguard their rights, and post-Islamists who view Islam as complementary to other ways of orga- nizing politics and society. In other words, they have moderated through participation. While there are exceptions to this trend, most notably the “new Islamists,” who generate dramatic headlines but possess little elec- toral infuence, the overall trend toward moderation is clear: include Islamists in the political process, and over time their ideologies and tactics will moderate toward support for democracy and the religious tolerance demanded by its institutions. Most analyses of Indonesian Islam end at this normatively celebrated juncture. What this vantage point ignores, however, is that the inclusion of Islamic actors changes the political system even as it fosters their mod- eration. Te inclusion of Islamists in the democratic bargain means that the negotiating partners of Islamists, most often secular nationalists and the secular institutions of the postcolonial state, must cede ground on impor- tant policy issues. Islamic society and the state coevolve. Tis chapter demonstrates this coevolution through a diachronic case study of the sacralizing of Indonesia’s postcolonial state from 1945 to 2014. As a result, the contemporary state is neither secular nor a theocracy but rather somewhere in between, where the government makes religious edu- cation mandatory, obliges citizens to declare their adherence to a religion, restricts interfaith marriage, and limits activities that it sees as interfering with communal rights, such as interfaith proselytizing. Teoretically, this case suggests that the sacralizing of the postcolonial state is just as impor- tant for democratization in the Muslim world as are inclusion and mod- eration. As a result, for democratization to succeed in transitional democ- racies like Tunisia, it is just as important that Islamic actors never fully “lose” as it is that they never fully “win.” Additionally, given the salience of -1— religion in contemporary Europe, this chapter suggests that politics in 0— peripheral states like India, Indonesia, and Tunisia, where religious actors +1— 164 step18430_1st_i-242.indb 164 03/11/17 11:59 am C R AFTING INDONESIAN DEMOCRACY are central to the crafting of mutual accommodation, may illuminate aspects of Europe’s present, rather than its past. Tis chapter proceeds in three sections. Te literature review discusses major writings on the participation/moderation tradeof and then demon- strates how they apply to the Indonesian case. Te theory section discusses the neglected counterparts of participation/moderation: the sacralizing of the postcolonial state. Te subsequent empirical section highlights four policy areas—education, recognition of religions, marriage law, and pros- elytizing—that have become sacralized and compares Indonesia’s laws to those of other democracies. A brief conclusion refects on the implications of these twin processes for democratic theory. LITERATURE REVIEW Scholars of democracy have long been concerned with the role that radical or antisystem parties play in derailing democratic transitions. Samuel Huntington argued, “Implicitly or explicitly in the negotiating process lead- ing to democratization, the scope of participation was broadened and more political fgures and groups gained the opportunity to compete for power and to win power on the implicit or explicit understanding that they would be moderate in their tactics and policies.”2 Such moderation on behalf of the opposition entailed agreeing to abandon violence and any commit- ment to revolution; accepting existing basic social, economic, and political institutions; and working through elections and parliamentary procedures in order to put through their policies. Stathis Kalyvas was the frst scholar to demonstrate that religious actors are as capable of moderation as any other antisystem party. He argued that socialists and Catholics in nineteenth-century Europe entered the political system in order to make immediate gains to their interests but as a result ended up compromising their goals as they became part of the system. Kalyvas summarizes the moderation of Catholic parties as follows: (1) mass —-1 mobilization, (2) an antisystem political discourse, (3) the combination of —0 —+1 165 step18430_1st_i-242.indb 165 03/11/17 11:59 am R E THINKING OT HER DE MOCRACIES WITH LA RGE MU SLIM PO PULATIONS an appeal to religious sensibilities coupled with a political message of eco- nomic inclusion, (4) the transformation of religious practices, and (5) the moderation of Catholic parties and the democratization of the political institutions within which they operated. Drawing on the example of the Islamist movement in Turkey, he argues that liberalization, democrati- zation, and inclusion are more likely where states reward moderation, punish antisystem behavior, and include Islamists in meaningful electoral competition.3 Elsewhere, however, Kalyvas has also argued that only religious insti- tutions with hierarchical structures can alleviate the commitment prob- lems necessary for democratization. Te centralized, autocratic, and hierarchical organization of Catholi- cism allowed moderate Catholics to solve their commitment problem, while the absence of a comparable structure in Algeria contributed to the inability of the moderate FIS leadership credibly to signal its future intentions. It is indeed ironic that Islam’s open, decentralized and more democratic structure eventually contributed to the failure of democrati- zation, while the autocratic organization of the Catholic Church facili- tated a democratic outcome.4 While Kalyvas’s account is useful for highlighting the unintended conse- quences of participation, his description of Islamic parties as unable to commit credibly runs at odds with the many cases where Islamic parties have maintained such commitments, more specifcally the eighty-nine par- liamentary elections in twenty-one countries where Islamic parties have repeatedly contested elections.5 Additionally, subsequent scholarship on the Belgian and Algerian cases has criticized Kalyvas’s account for ignor- ing regime diferences in favor of cultural determinism; credible commit- ments in Algeria were less important to the success of the democratic tran- sition than the regime possessing a secure military apparatus and Western support—and the regime being uninterested in relinquishing power.6 -1— More importantly, and similar to the Indonesian case, Kurzman and 0— Naqvi found that since the 1970s Islamic political parties have consistently +1— 166 step18430_1st_i-242.indb 166 03/11/17 11:59 am C R AFTING INDONESIAN DEMOCRACY moderated as a result of their participation. Tat moderation has been visi- ble on the issues of implementation of sharia, jihad, opposition to capitalism, and hostility toward Israel; the parties have also become more explicitly supportive of religious-minority rights, democracy, and women’s rights.7 In an important review essay, Jillian Schwedler agrees that Islamists are capable of moderation and distinguishes the factors behind the behavioral moderation of groups, the ideological moderation of groups, and the ideo- logical moderation of individuals.8 Tere are, however, important critiques of inclusion-moderation theory. Nancy Bermeo argues that radical mass organizations may not imperil democratic transitions. Drawing on the Portuguese transition of 1974–1975, she shows that the democratization process survived even though capital- ist property rights were challenged on a large scale by a mobilized working class. Likewise, the armed wing of the Basque separatist movement, Eus- kadi Ta Askatasuna, failed to moderate its demands during the Spanish transition of the late 1970s, nor did its use of violence decrease during the successful democratic transition. Furthermore, using comparative data on labor strikes during the democratic transitions in Brazil, Chile, Ecua- dor, South Korea, Peru, and