Reform progress within the Indonesian armed forces, which have historically dominated domestic politics, can be seen as a litmus test of the country’s progress towards democratisation. This paper from Contemporary Southeast Asia examines the reform trajectory of the Tentara Nasional Indonesia (TNI) (the national military) and its impact on civil-military relations. Increased factionalism within the TNI has given greater strength to the armed forces reform movement and may contribute to the strengthening of democracy in Indonesia.
Until TNI General Wiranto was suspended by President Gus Dur in 2000, he was effectively the most powerful person in Indonesia military affairs. His suspension marked a new direction in the political role of the military. Under his direction, the TNI had played its historic political role through dwi fungsi – dual function – of engagement in both political and military spheres.
After Wiranto’s suspension, the TNI appeared at first to be shifting its style, but not its substance. Despite these indications, the TNI had been reinventing itself, even under Soeharto. A more genuinely reformist movement aimed at political disengagement has been gaining ground.
The following analysis of the progress of TNI reform suggests that it is beginning to engage in slow, fractured movement towards disengagement from domestic politics:
- After the fall of Soeharto, the TNI was seen by some as seriously weakened as a political institution. However, post-Soeharto government appointments reflected continued TNI power – President Dur was frequently contradicted by the TNI on general public policy. Until his suspension, Wiranto continued to hold his grip on power.
- The TNI “New Paradigm” reform programme emphasised the separation of armed forces from civilian and political functions. While TNI’s success removing itself from an active role in politics has been limited, some success in TNI neutrality in elections was achieved.
- Expansion of the power of the Joint Chiefs of Staff indicated restructuring of power away from TNI.
- In the late 1990s, at least five factions began to appear within the TNI. While they are still dominated by patrimonialism, a significant faction could be considered “reformist”.
- TNI has historically dispersed itself throughout the country, acting as a type of localised paramilitary police. Even TNI’s leading reformers are disinclined to abandon territorial structure and the power it provides the armed forces in day-to-day politics throughout the country.
The recent push for reform within the TNI still vacillates between the demands of internal factions and is, at best, uneven:
- Wiranto played godfather to the reform process while also managing to effectively quarantine it from his own power-centred activities.
- President Dur’s support for one TNI faction signalled a return to patrimonial politics.
- The future of the territorial TNI structure remains a point of contention and appears to be the key to Indonesia’s further democratisation.
- The continuation of the TNI as a power bloc outside the presidency introduces the type of competition among power bases that contributes to democratisation.
