Indonesia's Foreign Policy Toward the South Pacific: A Case Study of the Joko Widodo Administration
Taquella Testarossa Gangga Pentasari1
Abstract
This article explores the conception of Indonesia’s national role in foreign policy analysis, aiming to elucidate its role in the South Pacific region. It provides insights into the patterns and behaviors of Indonesia’s foreign policy. The main challenges faced by Indonesia include criticism from South Pacific countries, particularly concerning human rights violations in Papua. The research question is: “What is Indonesia’s role in the South Pacific region under the administration of President Joko Widodo?”. This study uses the analytical tool ‘National Role Conceptions in the Study of Foreign Policy’ by Kalevi Jaakko Holsti. This study aims to determine the various roles of Indonesia in the South Pacific region through its foreign policy during President Joko Widodo’s administration. The author finds that Indonesia plays several significant roles in the South Pacific region, including being regional leaders, active independents, developers, and independents. The success of Indonesia’s foreign policy is evident, as shown by the cessation of criticism at the United Nations General Assembly in 2022 from Vanuatu and other South Pacific countries regarding human rights issues.
Furthermore, Indonesia has built closer cooperation with countries such as Timor Leste, Fiji, the Solomon Islands, and Vanuatu in the South Pacific, reflecting its commitment to developing diplomatic and economic relations in the region. It is important to note that Indonesia’s ability to enhance relationships with South Pacific countries heavily relies on its image rather than material resources. Under President Joko Widodo’s administration, Indonesia strategically leverages soft power and partnerships in the South Pacific region.
Keywords: Indonesian foreign policy, role theory, South Pacific, human rights, international relations.
JEL Codes: F500, P450
1. INTRODUCTION
The South Pacific region consists of several microstates such as Fiji, Vanuatu, Papua New Guinea, Nauru, the Solomon Islands, Kiribati, and so on. The six countries included in the Melanesian Spearhead Group are considered microstates due to their relatively small population and land area and are generally regarded as developing nations. Therefore, regional cooperation is a necessity to preserve the existence of the South Pacific region in the arena of international relations (Bekarekar, 2016). Some countries in the Pacific region, such as Vanuatu, the Solomon Islands, Palau, Tuvalu, the Marshall Islands, and Nauru, criticize Indonesia in the United Nations General Assembly regarding human rights issues in Papua. Indonesia’s position in the South Pacific is strengthened through various policies implemented by the government under the leadership of Retno Marsudi, who has served as the Minister of Foreign Affairs of Indonesia since October 2014. One strategy to strengthen Indonesia’s position is to make it a member of the Melanesian sub-region. Therefore,
1 Corresponding Author, Thammasat University, Institute of Area Studies (TIARA), Thailand,
Bangkok, Master of Arts in Asia-Pacific Studies Program (MAPS), [email protected]
Indonesia implements the Look East Policy as a step to defend the country’s sovereignty and maintain regional stability (Hasanah, 2021).
This research addresses Melanesian issues because some Indonesians share similarities with the population of the South Pacific, especially those from the Melanesian ethnic group. This ethnic similarity is also highlighted by the South Pacific in the context of criticism of human rights issues in Papua. It is important to note that Indonesia is one of the countries in the Melanesian sub-region, with approximately 11 million Melanesian residents scattered across five provinces in the central and eastern parts of Indonesia, namely East Nusa Tenggara, Maluku, North Maluku, Papua, and West Papua (Kaha, 2015).
The ‘Look East’ policy is part of Indonesia’s foreign strategy to pay more attention to the South Pacific region while strengthening Indonesia’s image as a middle power. This shift responds to Indonesia’s previous foreign policy priorities, which were more focused on The Association of Southeast Asian Nations. Other factors driving Indonesia’s emphasis on the South Pacific involve geographical proximity, ethnic and cultural similarities, Indonesia’s efforts to connect the South Pacific and Southeast Asia, and Indonesia’s strategy to defend Papua’s sovereignty from the support of some South Pacific countries for Papua’s independence based on the principle of Melanesian ethnic equality (Bekarekar, 2016).
Indonesia considers Pacific countries as strategic partners due to political and economic considerations. As a result, the Indonesian government is committed to demonstrating its continuity in implementing the ‘Look East’ foreign policy towards island nations in the Pacific region (Wati et al., 2015). The Indonesian government is also aware of the key role played by Pacific countries in achieving success in the Indo-Pacific. The Pacific Island region has become an arena of competition between the United States and China, where some countries lean towards the United States, while others enhance cooperation with China (Darmawan et al., 2019). Indonesian Foreign Minister Retno Marsudi refers to the Pacific diplomacy strategy introduced by Jakarta in 2019. From 1999 to 2021, Indonesia provided 211 packages of technical and development assistance to Pacific countries, involving around 1,900 participants (Aqil, 2022). With this step, Indonesia also aims to meet the needs of Pacific countries and build strong and mutually beneficial cooperation for the national interests of both parties.
Indonesia’s foreign policy, stemming from the principle of ‘Independent and Active’, plays a crucial role in shaping its involvement at the international level. Under the leadership of President Joko Widodo, this research explores Indonesia’s unique role in the South Pacific region. The Independent and Active approach in foreign policy indicates that Indonesia actively engages in global issues rather than adopting a passive or reactive stance.
While being independent and active, this policy is not neutral and avoids forming alliances with major powers or involvement in military agreements. Instead, its focus is on serving national interests while collaborating with other nations to address colonialism and imperialism for global peace and social justice. Meanwhile, the ‘Look East’ policy, within the context of foreign policy, emphasizes Indonesia’s increased involvement in the Pacific Islands and its participation in regional initiatives such as the Melanesian Spearhead Group, Pacific Islands Forum, and Pacific Islands Development Forum (Wati et al., 2021).
President Joko Widodo also issued Presidential Regulation No. 16 of 2017 on Indonesia’s Maritime Policy on March 1, supporting the acceleration of the Global Maritime Fulcrum doctrine proclaimed at the East Asia Summit in 2014. The Global Maritime Fulcrum depicts the vision of a sovereign, advanced, and strong maritime state capable of making a positive
contribution to regional and global peace and security in line with national interests (Laksmana, 2017).
2. RESEARCH QUESTIONS
Criticism from South Pacific countries regarding human rights violations in Papua poses a significant challenge to Indonesia’s role in the South Pacific region. Countries expressing such concerns include Vanuatu, the Solomon Islands, Palau, Tuvalu, the Marshall Islands, and Nauru. Therefore, one of Indonesia’s objectives is to improve its image in response to the criticism from South Pacific countries regarding human rights issues in Papua. It is crucial to emphasize that Indonesia’s primary goal is also to pursue its national interests by strengthening mutually beneficial cooperation with the region.
The research question guiding the exploration in this study is:
“What is Indonesia’s role in the South Pacific region under the administration of President Joko Widodo?”
3. OBJECTIVE
This research aims to address the research question that examines Indonesia’s role in the South Pacific region through its foreign policies, namely ‘Look East’ and the ‘Global Maritime Fulcrum,’ based on the foundation of the ‘Independent and Active’ foreign policy under the administration of President Joko Widodo. The author identifies Indonesia’s role in the South Pacific under President Joko Widodo’s leadership using the analytical tool of the conception of national role by Kalevi Jaakko Holsti.
4. METHODOLOGY
In this study, the author aims to investigate the role of Indonesia in the South Pacific region through the framework of its foreign policy during President Joko Widodo’s administration. The research question guiding this investigation is: “What is Indonesia’s role in the South Pacific region under President Joko Widodo’s administration?” To address this question, the author employs a combination of case studies and secondary data analysis. The variables considered revolve around Indonesia’s role in the South Pacific, with a focus on the reception and responses of South Pacific countries. The data analysis will be qualitative, allowing exploration of Indonesia’s diplomatic involvement in this region. It’s important to note that this study is limited by its temporal scope, specifically concentrating on President Joko Widodo’s government. Acknowledging this limitation is crucial, as foreign policy dynamics can evolve, and the findings may not fully capture changes or developments in Indonesia’s approach beyond this specific period.
The methodology used in this research draws inspiration from Kalevi Jaakko Holsti’s framework on ‘National Role Conceptions in Foreign Policy Analysis.’ The purpose of national role conceptions is to enhance understanding of how the concept of national roles serves as a framework for analyzing foreign policy, contributing to the development of a more realistic model of the international system. Roles are conceptualized as normative expectations encompassing actions, although actual implementation may vary in specific situations. Holsti’s framework categorizes national role conceptions into 17 different roles, each reflecting a unique perspective on a country’s foreign policy activities. These roles,
including ‘Bastion of Revolution-Liberator,’ ‘Regional Leader,’ ‘Mediator-Integrator,’ and others, capture the diversity of approaches that a country can adopt in its interactions with the international community. This study employs qualitative data analysis techniques to explore how Indonesia perceives and enacts its role in the South Pacific region, particularly through the lenses of the ‘Looking East’ and ‘Global Maritime Fulcrum’ foreign policy, based on the ‘free and active’ foreign policy under President Joko Widodo’s administration.
5. DISCUSSION
In the realm of Indonesia’s foreign policy, known as the active non-aligned principle, the role and national norms of Indonesia play a significant role in international relations.
The active non-aligned principle reflects Indonesia’s seriousness in actively participating in the international community while maintaining its national independence. The non- aligned principle aims to formulate views and policies related to international issues without being bound to a specific world power. Additionally, Indonesia also has the opportunity to contribute actively, both through thought and direct participation, to the resolution of conflicts, disputes, and other global issues. All of this is done with the hope of realizing a world order based on the values of freedom, sustainable peace, and social justice (Santoso et al., 2023).
Pancasila, as the philosophy of the Indonesian state, was realized by the nationalist leader Sukarno. This philosophy was first expressed on June 1, 1945, in a speech delivered by Sukarno to the Indonesian independence preparation committee, supported by Japan during their occupation in World War II. The five principles were arranged in a slightly different order and formulated with different words: belief in one God, just and civilized humanity, the unity of Indonesia, democracy under the guidance of wise representative consultation, and social justice for all the people of Indonesia (Britannica, 2023).
Indonesia’s values rooted in Pancasila, including moral and social principles such as justice, unity, democracy, and prosperity, serve as the foundation for determining the direction and goals of foreign policy. Thus, Indonesia is committed to fostering mutually beneficial international relations based on universal values while upholding Pancasila norms as a positive contribution to world order. In the context of international relations and the development of ideologies, Pancasila not only accepts or is influenced by foreign values but can also propose its values and exert positive influence, supporting other cultures or ideologies (Eddy, 2018).
Based on previous studies, Holsti compiled 17 categories of national role conceptions based on the level of involvement or foreign policy activities in role conception, as follows (Holsti, 1970):
Holsti (1970) identified 17 national role conceptions based on foreign policy activities:
1) Bastion of Revolution-Liberator: Advocacy for foreign revolutionary movements.
2) Regional Leader: Leadership roles in identified regions or cross-sectoral subsystems.
3) Regional Protector: Protecting neighboring territories.
4) Active Independent: Emphasizing national independence with active diplomatic involvement.
5) Liberation Supporter: Informal support for liberation movements abroad.
6) Anti-Imperialist Agent: Opposing imperialism, especially with ideologically communist governments.
7) Defender of the Faith: Safeguarding values against threats, not limited to specific regions.
8) Mediator-Integrator: Reconciling conflicts between countries or groups.
9) Regional-Subsystem Collaborator: Broad commitment to collaborate with other nations.
10) Developer: Assisting developing countries with specific expertise.
11) Bridge: Acting as a communication link between different cultural backgrounds.
12) Faithful Ally: Benefiting from alliances for protection goals.
13) Independent: Making policy decisions based on national interest, not aligning explicitly with other nations.
14) Example: Advancing international influence through specific domestic policies.
15) Internal Development: Focusing on internal development with limited involvement in international affairs.
16) Isolate: Minimizing external interactions, emphasizing self-reliance.
17) Protectee: Expecting other nations to defend without specifying roles or tasks.
After examining the 17 National Role Conceptions by Kalevi Jaakko Holsti, the author found that there are four national roles of Indonesia towards the South Pacific in the administration of President Joko Widodo, identified as ‘regional leader,’ ‘active independent,’ ‘developer,’ and ‘independent.’ To provide a more detailed explanation, the author will describe these four national roles of Indonesia towards the South Pacific in the administration of President Joko Widodo as follows:
Table 1
Four National Roles of Indonesia Towards the South Pacific Number National
Role Key Point Operationalization
1 Regional
Leader Specific responsibilities
in a particular region
Several Indonesian initiatives that have been acknowledged by other countries, especially in the South Pacific region, are as follows, (1) Indonesia initiated “The Archipelagic and Island States”
(2018), (2) Indonesia hosted the joint forum, the
“Indonesia – South Pacific Forum” (2019), (3) The Group of 20 Presidency of Indonesia (2022), (4) Indonesia initiated the Indonesia-Pacific Development Forum (2022), (5) Indonesia was accepted as a Permanent Member of The Melanesian Spearhead Group.
2 Active
Independent Implementing the concept of Non-Aligned
Indonesia has emphasized the importance of an independent and active foreign policy. This means that Indonesia seeks to make decisions based on its national interests and principles rather than aligning itself with any particular geopolitical bloc.
For example, the Coordinating Ministry for Political, Legal, and Security Affairs proposed an additional budget of Rp 60 billion to be used to finance government diplomatic efforts towards countries in the South Pacific region. Rp 5 billion was used for security management of the border areas of Australia and the South Pacific, and Rp 5 billion was used for increased security intelligence cooperation in the border areas of Australia and the South Pacific. (Coordinating Ministry for Political, Legal, and Security Affairs, 2018).
3 Developer Assisting less developed
nations
The Government of Indonesia has signed a Grant Agreement for the Government of Solomon Island, Timor Leste, and the Government of Fiji (Ministry of Foreign Affairs, 2020). The Indonesian government assisted Vanuatu as a form of humanitarian support because it was hit by the earthquake and storm. Humanitarian aid sent by Indonesia to Vanuatu worth Rp 7.12 billion (Coordinating Ministry for Human Development and Culture, 2023).
4 Independent Pursuing the National interest and
self- determination
President Jokowi encouraged the partnership in the Pacific to be strengthened. According to the President, New Zealand’s relations with South Pacific countries are quite strong. For this reason, Indonesia and the Association of Southeast Asian Nations also want to strengthen partnerships with South Pacific countries (Ministry of State Secretariat, 2020). Indonesia’s approach to the South Pacific aims to strengthen diplomatic, economic, and security cooperation with countries in the region. Its goals include building mutually beneficial relationships, supporting economic development, and maintaining regional stability.
Initiatives related to the Global Maritime Fulcrum, such as maritime security cooperation and infrastructure development, could indirectly impact Indonesia’s interactions with countries in the South Pacific. Additionally, diplomatic relations and economic partnerships pursued under the Look
East Policy may influence Indonesia’s engagement with nations in the South Pacific and beyond.
Source
Adapted from National Role Conceptions in the Study of Foreign Policy by Holsti. (1970).
In exploring Indonesia’s role in the South Pacific under President Joko Widodo’s administration, it is imperative to underscore the significance of recognition from the Pacific Island nations regarding the four roles the author has identified. Indonesia’s engagement in the South Pacific is not confined to a domestic audience but extends to a regional one, encompassing the Pacific Island countries. The effectiveness and success of Indonesia’s foreign policy initiatives in the South Pacific hinge on the acknowledgment and appreciation of its roles by the nations within the region. As Indonesia assumes various roles, ranging from economic collaboration to diplomatic endeavors, it becomes essential for the Pacific Island nations to perceive these actions as mutually beneficial partnerships.
Pacific Elevation, as a primary commitment of Indonesia, illustrates a strong determination to support countries and territories in the Pacific region. Through bilateral and regional cooperation approaches, Indonesia is committed to strengthening diplomatic and economic ties with South Pacific countries. This initiative encompasses various forms of cooperation, ranging from trade and investment agreements to collaboration in human resource development, infrastructure, and the environment. Additionally, Indonesia provides direct assistance as a tangible expression of solidarity and partnership with South Pacific countries, helping them overcome challenges and promote sustainable growth.
Thus, Pacific Elevation reflects Indonesia’s commitment to being a robust partner and supporting progress and sustainability in the Pacific region (Indonesian Ministry of Foreign Affairs, 2020).
6. FINDING
After studying the concept, the author concludes that the definition of a state’s role in international relations refers to the perception and understanding of a country regarding its role in the international arena. This includes how a nation sees itself in terms of responsibility, contribution, and interaction with the global community. The concept encompasses a nation’s self-perception of its political, economic, security, and cultural roles on the world stage. National role conceptions influence a country’s foreign policy, international engagement, and the priorities it pursues in its interactions with other nations.
These conceptions are shaped by historical, cultural, political, and strategic factors. Each country may have a different national role conception that evolves based on changing circumstances and priorities.
After examining the 17 National Role Conceptions by Holsti, the author concludes that in President Joko Widodo’s government, four national roles of Indonesia in the South Pacific can be identified as ‘regional leader,’ ‘active independent,’ ‘developer,’ and
‘independent.’ In the context of soft power, the Joko Widodo administration implemented
the ‘Look East’ policy and the ‘Global Maritime Fulcrum’ concept as the foundation for a free and active foreign policy toward the South Pacific. This policy not only strengthens regional connectivity but also enhances Indonesia’s image as a regional leader that is active, independent, and progressive. Through the role of a ‘regional leader,’ Indonesia successfully builds close and mutually beneficial partnerships with countries in the South Pacific. As an ‘active independent,’ Indonesia upholds its autonomy in diplomacy, while as a ‘developer,’ the country makes tangible contributions to economic and social development in the region. The positive reception of Indonesia’s role as ‘independent’
indicates that Indonesia’s diplomatic efforts in the South Pacific are considered relevant and effective in maintaining regional stability and advancing bilateral cooperation.
7. CONCLUSION & RECOMMENDATIONS
Indonesia plays four crucial roles in the South Pacific region under the leadership of President Joko Widodo, including being a ‘regional leader,’ ‘active independent,’
‘developer,’ and ‘independent.’ The success of Indonesia’s role in the South Pacific is evident, firstly, when Vanuatu (the most active country addressing human rights issues in Papua) and other small island nations in the Pacific at the United Nations General Assembly ceased criticizing Indonesia in 2022. Instead, Vanuatu has shifted its focus to addressing climate issues. Secondly, there is a strengthening of cooperation between Indonesia and South Pacific countries in economic and security areas. However, it is important to note that to achieve Indonesia’s national interests, relying solely on Indonesia’s material strength is insufficient to strengthen its relationship with South Pacific countries. Conversely, Indonesia’s role through its foreign policy significantly influences the image and acceptance of Indonesia by the South Pacific.
Based on the findings of this research, several recommendations are proposed for the Indonesian government and future researchers. For the Indonesian government, it is suggested to continue promoting the implementation of soft power policies, such as “Look East” and “Global Maritime Fulcrum,” with a focus on building economic, educational, cultural, and sustainable environmental capacities. Furthermore, efforts are needed to enhance multilateral cooperation in the South Pacific, strengthening the role as a proactive regional leader and supporting sustainable development initiatives. Additionally, it is crucial to maintain a balance between active independent policies and regional cooperation to preserve stability in the region. For future researchers, it is recommended to explore the impact of Indonesia’s soft power policies in the South Pacific and engage local perspectives for a more comprehensive understanding. Further studies can also explore potential cooperation in security, environmental, and technological innovation to strengthen Indonesia’s ties with South Pacific nations.
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