Weak central authority and fragmented bureaucracy: a study of policy implementation in Indonesia

Abstract

Introduction The aim of this chapter is to analyse the role of the civil service in policy implementation in Indonesia. The civil service has played a pivotal role in the development process during the initial phase of Indonesia's independence, the nation-building phase and the process of socio-economic development that followed (Bachtiar 1972). Many terms are used by scholars to describe the role of the civil service in Indonesia, including bureaucratic polity (Jackson 1978), bureaucratic state (Emmerson 1983), bureaucratic authoritarian regime (King 1982), beamtenstaat (McVey 1982) and patrimonial bureaucracy (Crouch 1979). The use of these concepts is still relevant for a good understanding of practices that characterized the conduct of the Indonesian government and bureaucracy until the late 1990s, before the implementation of the subsequent political reforms. Decision-making was very effective due to the dominance of the public bureaucracy with the support of ABRI ( Angkatan Bersenjata Republik Indonesia or Indonesian Army) and the then ruling political party, Golkar ( Golongan Karya or Functional Group). However, forces outside the state were relatively weak and this ensured that the state had ample autonomy in formulating and implementing policies without interference from the non-state actors. Despite the positive aspects of the Suharto regime, there were many administrative problems such as corruption, lack of capacity of the local bureaucrats and the central government's limitations in accommodating local problems. As the rapid pace of political development during the last decade has induced major changes in the impact of political actors on public policy, it is necessary to revisit studies that portrayed the public bureaucracy as a dominant force in Indonesia, especially during the New Order regime. Previous studies have shown that the role of public bureaucracy in Indonesia was very strong. This chapter focuses on the shift from a hegemonic political party system during the New Order regime to a multi-party system that began to emerge in the wake of its collapse, and addresses two questions. First, to what extent have political changes affected the role of the civil service in policy formulation and implementation in Indonesia? Second, what has been the impact of these political changes on the nature of policy formulation and implementation in Indonesia? To analyse policy implementation in Indonesia, this chapter relies on the framework introduced by Van Meter and Van Horn (1975: 462–74).