Making Presidentialism Work: Legislative and Executive Interaction in Indonesian Democracy Dissertation Presented in Partial Fulfillment of the Requirements for the Degree of Doctor of Philosophy in the Graduate School of The Ohio State University By Djayadi Hanan, M.A. Graduate Program in Political Science The Ohio State University 2012 Dissertation Committee: R. William Liddle, Adviser Richard Paul Gunther Goldie Ann Shabad Copyright by Djayadi Hanan 2012 i Abstract This study explores the phenomenon of executive – legislative relations in a new multiparty presidential system. It seeks to understand why, contrary to arguments regarding the dysfunctionality of multi-party presidential systems, Indonesia’s governmental system appears to work reasonably well. Using institutionalism as the main body of theory, in this study I argue that the combination of formal and informal institutions that structure the relationship between the president and the legislature offsets the potential of deadlock and makes the relationship work. The existence of a coalition-minded president, coupled with the tendency to accommodative and consensual behavior on the part of political elites, also contributes to the positive outcome. This study joins the latest studies on multiparty presidentialism in the last two decades, particularly in Latin America, which argue that this type of presidential system can be a successful form of governance. It contributes to several parts of the debate on presidential system scholarship. First, by deploying Weaver and Rockman’s concept of the three tiers of governmental institutions, this study points to the importance of looking more comprehensively at not only the basic institutional design of presidentialism (such as dual legitimacy and rigidity), but also the institutions below the regime level which usually regulate directly the daily practice of legislative – executive relations such as the legislative organizations and the decision making process of the legislature. ii Second, related to the first contribution, this study points to the importance of not only focusing our attention on the separation of the legislative and executive branches (such as dual legitimacy) but also on the level of legislative – executive integration. Third, this study has also used a coalitional presidentialism approach in building its argument. Its focus however, is not only on the success of the president’s agenda as the measure of success, but also, on the formal and informal institutions as constraints which influence how the president and the legislature interact with each other. Finally, given that studies of multiparty presidentialism outside Latin America are still rare, this study contributes to enlargement of the data set of multiparty presidential systems in the world. iii Dedication Dedicated to: Murani Baruit Husin (mother) Isabella (wife) Hanin Atina Rahmania (daughter) Malia Arifa Yumna (daughter) Shameel Ahmad Hanan (son) iv Acknowledgments It took three years for me to finish this dissertation. This long journey has involved numerous individuals directly or indirectly. Given very limited space, I could not mention all of them here. Instead, I want to express my deep gratitude to a few key names. First, I would like to thank my adviser and chair of my dissertation committee: Professor R. William Liddle. I have been very fortunate to have him as mentor and academic adviser. He has been always caring, helpful, and ready to help whenever and wherever I need his help or advice. His endless support and encouragement have helped me convince myself that this dissertation project can be done. Second, my profound gratitude goes to my dissertation committee members: Professor Richard Gunther and Professor Goldie Ann Shabad. Professor Gunther’s deep knowledge and understanding about the role of institutions in politics has helped me in formulating the research questions and theoretical framework I use in this study. Since the early process of this dissertation project, Professor Shabad has always helped me in looking at the conceptual flaws of this study and provided me with guidance on how to fix them. v Further words of gratitude should also be extended to my friends and families both in Columbus and Jakarta: Bang Saiful Mujani and his wife, Mbak Ikun, who were always ready with their support, especially during my field research in Jakarta; Mas Dodi Ambardi who helped me from my first day in Columbus; Paul Rowland, the Director of NDI Indonesia, who assisted me with a part time job while I was conducting my research in Jakarta; Riris Katarina and Partogi Nainggolan, two researchers in the DPR, who assisted me by getting documents from the DPR; and Mbak Indah who helped me make contact with several leaders of PDIP. During the process of writing this dissertation in the last year, I have been generously helped by the Harvard Kennedy School, which provided me a one year resident research fellowship in Cambridge. For that, I would like to thank Elizabeth Osborn (Betsy), the Director of the Indonesia Program, and her team. In Columbus, I am indebted to my brother, Umar Abdullah, and his family. Umar provided assistance in formatting my dissertation. He and his family also provided one of the rooms in his apartment in Buckeye Village as my place to live whenever I was in Columbus. In Palembang, South Sumatra, I have incurred debts to my mother (umak), brothers and sisters for their endless support and encouragement until I can finish this long journey. Finally, my wife and children most deserve my gratitude as well as my deepest apologies. During the more than five year journey to finish this doctoral program, so much of the time that I should have dedicated to them was taken away. I can not thank them more for all their support and sacrifice. vi Vita 2009 Master of Arts (M.A.), Political Science The Ohio State University, Department of Political Science 2003 Master of Arts (M.A.), Southeast Asia Studies Ohio University, Center for International Studies 1999 Magister Sains (M.Si.), Political Science Gadjah Mada University, Faculty of Social and Political Sciences 1995 Sarjana Sosial (S.Sos.), Public Administration Sriwijaya University, Faculty of Social and Political Sciences 2012 Indonesia Research Fellow, Harvard Kennedy School Harvard University 2010-2011 Graduate Teaching Associate, The Ohio State University Department of Political Science 2007-2010 Fulbright Scholarship recipient 2001-2003 Graduate Research Associate, Ohio University Southeast Asia Studies Program 2000- … Teaching Staff, Paramadina University Department of International Relations Field of study Major Field: Political Science (Comparative Politics) Minor Field: Political Sociology vii Glossary Ampres Amanat Presiden (Presidential Mandate) APBN Anggaran Pendapatan dan Belanja Negara (Annual State Budget) APBN-P Anggaran Pendapatan dan Belanja Negara-Perubahan (Adjusted Annual State Budget) Badan Konstituante Constituent Assembly BAKN Badan Akuntabilitas Keuangan Negara (Public Finance Accountability Committee) BI Bank Indonesia (the Indonesian Central Bank) Baleg Badan Legislasi (Legislation Committee) Bamus Badan Musyawarah (Steering Committee) Banggar Badan Anggaran (Budget Committee) Banpres Bantuan Presiden (Presidential Assistance) Bappenas Badan Perencanaan Pembangunan Nasional or (National Development Planning Board) Bawaslu Badan Pengawas Pemilu (General Election Supervisory Board) BBM Bahan Bakar Minyak (Fuel/Gas) BI Bank Indonesia (Indonesian Central Bank) BKF Badan Kebijakan Fiskal (Fiscal Policy Office) BK Badan Kehormatan (Ethics Committee) BKSAP Badan Kerjasama Antar Parlemen (Interparliamentary Cooperation Body) BPD Bintang Pelopor Demokrasi (The Star of Democracy Pioneer), a political Caucus comprised of several small parties i.e. Partai Demokrasi Kebangsaan (PDK, National Democratic Party), Partai Bulan Bintang (PBB, Crescent and Star Party), Partai Penegak Demokrasi Indonesia (PPDI, The Pioneer of Indonesian Democracy Party), and Masyumi Party BPK Badan Pemeriksa Keuangan (Supreme Audit Body) BPS Biro Pusat Statistik (Central Bureau of Statistics) BURT Badan Urusan Rumah Tangga (Household Affairs Committee) CSIS Center for Strategic and International Studies DAK Dana Alokasi Khusus (Special Allocation Fund) viii Depdagri Departemen Dalam Negeri (Department of Home Affairs) DIM Daftar Inventaris Masalah (Problems Inventory List) DPA Dewan Pertimbangan Agung (Supreme Advisory Council) DPD Dewan Perwakilan Daerah (House of Regional Representatives) DPPID Dana Percepatan Pembangunan Infrastruktur Daerah (The Fund for Local Infrastructure Development Acceleration) DPR Dewan Perwakilan Rakyat (House of Representatives) DPRD Dewan Perwakilan Rakyat Daerah (Local House of Representatives) DPR-GR DPR – Gotong Royong (Mutual Aid DPR) Formappi Forum Masyarakat Peduli Parlemen Indonesia (Forum for Concerned Society for Indonesian Parliament) GAM Gerakan Aceh Merdeka (Free Aceh Movement) GBHN Garis-Garis Besar Haluan Negara (General Guidelines of State Policies) G 30S/PKI Gerakan Tigapuluh September/Partai Komunis Indonesia (the movement of September 30/Indonesian Communist Party) Gerindra Gerakan Indonesia Raya (Greater Indonesia Movement) Hanura Hati Nurani Rakyat (People Conscience Party) Inpres Instruksi Presiden (Presidential Instruction) Kapolri Kepala Kepolisian Republik Indonesia (Head of the Indonesian National Police) KIB I Kabinet Indonesia Bersatu (United Indonesia Cabinet) I KIB II Kabinet Indonesia Bersatu (United Indonesia Cabinet) II