Back
About RSIS
Introduction
Building the Foundations
Welcome Message
Board of Governors
Staff Profiles
Executive Deputy Chairman’s Office
Dean’s Office
Management
Distinguished Fellows
Faculty and Research
Associate Research Fellows, Senior Analysts and Research Analysts
Visiting Fellows
Adjunct Fellows
Administrative Staff
Honours and Awards for RSIS Staff and Students
RSIS Endowment Fund
Endowed Professorships
Career Opportunities
Getting to RSIS
Research
Research Centres
Centre for Multilateralism Studies (CMS)
Centre for Non-Traditional Security Studies (NTS Centre)
Centre of Excellence for National Security
Institute of Defence and Strategic Studies (IDSS)
International Centre for Political Violence and Terrorism Research (ICPVTR)
Research Programmes
National Security Studies Programme (NSSP)
Social Cohesion Research Programme (SCRP)
Studies in Inter-Religious Relations in Plural Societies (SRP) Programme
Other Research
Future Issues and Technology Cluster
Research@RSIS
Science and Technology Studies Programme (STSP) (2017-2020)
Graduate Education
Graduate Programmes Office
Exchange Partners and Programmes
How to Apply
Financial Assistance
Meet the Admissions Team: Information Sessions and other events
RSIS Alumni
Outreach
Global Networks
About Global Networks
RSIS Alumni
Executive Education
About Executive Education
SRP Executive Programme
Terrorism Analyst Training Course (TATC)
International Programmes
About International Programmes
Asia-Pacific Programme for Senior Military Officers (APPSMO)
Asia-Pacific Programme for Senior National Security Officers (APPSNO)
International Conference on Cohesive Societies (ICCS)
International Strategy Forum-Asia (ISF-Asia)
Publications
RSIS Publications
Annual Reviews
Books
Bulletins and Newsletters
RSIS Commentary Series
Counter Terrorist Trends and Analyses
Commemorative / Event Reports
Future Issues
IDSS Papers
Interreligious Relations
Monographs
NTS Insight
Policy Reports
Working Papers
External Publications
Authored Books
Journal Articles
Edited Books
Chapters in Edited Books
Policy Reports
Working Papers
Op-Eds
Glossary of Abbreviations
Policy-relevant Articles Given RSIS Award
RSIS Publications for the Year
External Publications for the Year
Media
Cohesive Societies
Sustainable Security
Other Resource Pages
News Releases
Speeches
Video/Audio Channel
External Podcasts
Events
Contact Us
S. Rajaratnam School of International Studies Think Tank and Graduate School Ponder The Improbable Since 1966
Nanyang Technological University Nanyang Technological University
  • About RSIS
      IntroductionBuilding the FoundationsWelcome MessageBoard of GovernorsHonours and Awards for RSIS Staff and StudentsRSIS Endowment FundEndowed ProfessorshipsCareer OpportunitiesGetting to RSIS
      Staff ProfilesExecutive Deputy Chairman’s OfficeDean’s OfficeManagementDistinguished FellowsFaculty and ResearchAssociate Research Fellows, Senior Analysts and Research AnalystsVisiting FellowsAdjunct FellowsAdministrative Staff
  • Research
      Research CentresCentre for Multilateralism Studies (CMS)Centre for Non-Traditional Security Studies (NTS Centre)Centre of Excellence for National SecurityInstitute of Defence and Strategic Studies (IDSS)International Centre for Political Violence and Terrorism Research (ICPVTR)
      Research ProgrammesNational Security Studies Programme (NSSP)Social Cohesion Research Programme (SCRP)Studies in Inter-Religious Relations in Plural Societies (SRP) Programme
      Other ResearchFuture Issues and Technology ClusterResearch@RSISScience and Technology Studies Programme (STSP) (2017-2020)
  • Graduate Education
      Graduate Programmes OfficeExchange Partners and ProgrammesHow to ApplyFinancial AssistanceMeet the Admissions Team: Information Sessions and other eventsRSIS Alumni
  • Outreach
      Global NetworksAbout Global NetworksRSIS Alumni
      Executive EducationAbout Executive EducationSRP Executive ProgrammeTerrorism Analyst Training Course (TATC)
      International ProgrammesAbout International ProgrammesAsia-Pacific Programme for Senior Military Officers (APPSMO)Asia-Pacific Programme for Senior National Security Officers (APPSNO)International Conference on Cohesive Societies (ICCS)International Strategy Forum-Asia (ISF-Asia)
  • Publications
      RSIS PublicationsAnnual ReviewsBooksBulletins and NewslettersRSIS Commentary SeriesCounter Terrorist Trends and AnalysesCommemorative / Event ReportsFuture IssuesIDSS PapersInterreligious RelationsMonographsNTS InsightPolicy ReportsWorking Papers
      External PublicationsAuthored BooksJournal ArticlesEdited BooksChapters in Edited BooksPolicy ReportsWorking PapersOp-Eds
      Glossary of AbbreviationsPolicy-relevant Articles Given RSIS AwardRSIS Publications for the YearExternal Publications for the Year
  • Media
      Cohesive SocietiesSustainable SecurityOther Resource PagesNews ReleasesSpeechesVideo/Audio ChannelExternal Podcasts
  • Events
  • Contact Us
    • Connect with Us

      rsis.ntu
      rsis_ntu
      rsisntu
      rsisvideocast
      school/rsis-ntu
      rsis.sg
      rsissg
      RSIS
      RSS
      Subscribe to RSIS Publications
      Subscribe to RSIS Events

      Getting to RSIS

      Nanyang Technological University
      Block S4, Level B3,
      50 Nanyang Avenue,
      Singapore 639798

      Click here for direction to RSIS

      Get in Touch

    Connect
    Search
    • RSIS
    • Publication
    • RSIS Publications
    • CO18087 | Shifting Sands: POLRI-TNI Ties in Counterterrorism
    • Annual Reviews
    • Books
    • Bulletins and Newsletters
    • RSIS Commentary Series
    • Counter Terrorist Trends and Analyses
    • Commemorative / Event Reports
    • Future Issues
    • IDSS Papers
    • Interreligious Relations
    • Monographs
    • NTS Insight
    • Policy Reports
    • Working Papers

    CO18087 | Shifting Sands: POLRI-TNI Ties in Counterterrorism
    Emirza Adi Syailendra

    25 May 2018

    download pdf

    Synopsis

    Despite many looming questions with regard to the rules of engagement, militarisation of counterterrorism in Indonesia seems to be an irreversible trend. Ruffled ties between the Indonesian Armed Forces (TNI) and the police (POLRI), however, continue to hinder interoperability between the two.

    Commentary

    IN THE SECOND week of May, a string of terrorist acts broke out in Indonesia, from a prison riot at a police headquarters in Depok, West Java, to suicide bombings on three churches in Surabaya, East Java. Such a worrying development pushed President Joko Widodo (Jokowi) to issue an ultimatum to the House of Representatives (DPR) to conclude the revision of the much-delayed Anti-Terrorism Law.

    Otherwise, the President warned, he would issue a regulation in lieu of law (Perppu) to strengthen the authority of the state apparatus against acts of terrorism. While welcomed by some, such an ultimatum has generated some concerns, including the militarisation of the counterterrorism landscape.

    Military’s Move to Tweak Status Quo

    On 8 January 2018, a letter was personally delivered by the newly appointed Commander of the Indonesian National Armed Forces (TNI), Air Marshall Hadi Tjahjanto, to the DPR’s Special Committee on Revision of the Anti-Terrorism Law.

    In the letter, Hadi not only posited the need for a bigger role for  TNI in counterterrorism operations, but also specifically proposed to omit the word ‘criminal’ in the title, so it will read Penanggulangan Aksi Terorisme or translated as the Law on Countering the Act of Terrorism.

    The Minister of Law and Human Rights, Yasonna Laoly, insisted the name be kept as it is. At the heart of the disagreement, the fundamental question is whether the act of terrorism falls under the category of extraordinary crime thus warranting special measures such as the involvement of the military.

    TNI’s Role in Counterterrorism

    Since 2000 TNI has attempted to change the status quo that tethered the military to operations led by the Indonesian Police (POLRI) when it comes to counter-terrorism operations.  Among many changes proposed by TNI, one of the most pivotal is to remove the position of the supporting role or bawah kendali operasi (BKO). The consequence of such abolition is that TNI can wage independent counterterrorism operations without having to consult the DPR. Such a proposal, however, has faced enormous resistance from civil society.

    TNI principally is inclined towards a vague law that enables the military or political leadership to flexibly define the circumstances of TNI intervention in counterterrorism. As explained by the Coordinating Minister of Politics, Legal, and Security Affairs, also a former Commander of TNI, Wiranto, it is best if the law is not too detailed, as this can compromise speed and room for manoeuvre against terrorism.

    Indeed, the revised law is likely to only give a broad-brush explanation on TNI’s involvement and a presidential regulation will further specify the rules of engagement. Given their close relationship and President Jokowi’s political reliance on many retired army generals such as Moeldoko, Luhut Panjaitan, Ryamizard Ryacudu, Wiranto, and Agum Gumelar; coupled with the good relationship between Hadi and the Chief of POLRI, Tito Karnavian, it is likely for the military to get what it wants – a bigger role in counterterrorism.

    Since the success of the Tinombala Operation, a joint POLRI-TNI manoeuvre on 18 July 2016 led to the killing of  Santoso, the leader of the Mujahidin Indonesia Timur. Given that this group pledged allegiance to Islamic State, the perception of TNI involvement has been overwhelmingly positive. On 29 May 2017, in a cabinet meeting, Jokowi reiterated the importance of having TNI involved.

    Echoing such instruction, Tito argued that TNI is pivotal especially in circumstances such as hijacking at sea and operations in rough terrain such as mountains and jungles due to its guerilla warfare expertise. Furthermore, according to a survey conducted by Kompas (involving respondents from 14 cities around Indonesia), the majority of respondents (92.6 percent) supported TNI’s involvement.

    The survey, however, also indicated as much as 23.7 percent of respondents were worried about the potential of human rights abuses. This concern stemmed from the culture of impunity in the TNI. Due to the legal loopholes and the lack of checks and balances from civilians on the military, there is fear that the involvement of TNI can lead to abuse of power. Moreover, TNI personnel could not be tried under civilian courts.

    Militarisation of Counterterrorism?

    Despite the Anti-Terrorism Law not yet being revised, TNI and POLRI have been attempting since 2015 to improve interoperability in counterterrorism operations. Publicly known as the Group 5, two of the POLRI anti-terror special units known as Detachment 88 and Detachment C Gegana Brimob, have been working closely with three of the TNI’s own.

    The TNI units are namely Detachment 81 of the Army Special Forces (Kopassus), Detachment Jala Mengkara of the Marine Corps, and Bravo-90 Unit of the Air Force Infantry. Five of them are jointly stationed at the National Agency for Combating Terrorism BNPT under the auspices of the Centre for Crisis Control (Pusat Pengendalian Krisis – Pusdalsis).

    There have been a series of combined counter-terrorism training ongoing under the coordination of BNPT. For example, in April 2015, a week-long joint exercise called Gulkonsis V on counter terrorism operation against ISIS was held in a hotel in Sidoarjo, East Java. On 8 December 2016, the Gulkonsis VI was conducted in the Soekarno Hatta Airport, Tangerang, involving the Group 5, Aviation Security, and civilians. In October 2017, a joint terrorism training was also held in an offshore oil Rig in Pabelokan Island, North Jakarta.

    On 18 May 2018, President Jokowi has also reinstated the formerly suspended Koopsgubgab, a joint force of TNI’s three anti-terror units, to assist the National Police during crisis conditions.  These have highlighted the efforts to enhance interoperability between TNI and POLRI in counter terrorism operations.

    The Persistence of Tension

    Given the significant cuts in the military’s authority coupled with the expansion of the police’s role, and with the police and military sometimes sharing overlapping responsibilities, both institutions sometimes found themselves in opposition to one another. One example is an incident between TNI and POLRI on 27 July 2016, where Team 1 Tinombala Task Force, comprising Kopassus and the local military, was ambushed and attacked by personnel from POLRI Mobile Brigade.

    The incident highlighted the lack of communication during the operation. According to the Centre for Political Studies in Bandung, between 1999 and 2014, there have been at least 200 cases of clashes with 20 fatalities. Such altercations show the competitive nature of both state institutions.

    The ideal reconciliatory approach warrants a comprehensive solution, not only delineation of functions, but also enhancing interoperability and internal reform of both POLRI and TNI.

    About the Author

    Emirza Adi Syailendra is a Senior Analyst at the Indonesia Programme at the S. Rajaratnam School of International Studies (RSIS), Nanyang Technological University, Singapore. This is part of a series on Inter-Agency Dynamics in Indonesia.

    Categories: RSIS Commentary Series / Country and Region Studies / Southeast Asia and ASEAN

    Synopsis

    Despite many looming questions with regard to the rules of engagement, militarisation of counterterrorism in Indonesia seems to be an irreversible trend. Ruffled ties between the Indonesian Armed Forces (TNI) and the police (POLRI), however, continue to hinder interoperability between the two.

    Commentary

    IN THE SECOND week of May, a string of terrorist acts broke out in Indonesia, from a prison riot at a police headquarters in Depok, West Java, to suicide bombings on three churches in Surabaya, East Java. Such a worrying development pushed President Joko Widodo (Jokowi) to issue an ultimatum to the House of Representatives (DPR) to conclude the revision of the much-delayed Anti-Terrorism Law.

    Otherwise, the President warned, he would issue a regulation in lieu of law (Perppu) to strengthen the authority of the state apparatus against acts of terrorism. While welcomed by some, such an ultimatum has generated some concerns, including the militarisation of the counterterrorism landscape.

    Military’s Move to Tweak Status Quo

    On 8 January 2018, a letter was personally delivered by the newly appointed Commander of the Indonesian National Armed Forces (TNI), Air Marshall Hadi Tjahjanto, to the DPR’s Special Committee on Revision of the Anti-Terrorism Law.

    In the letter, Hadi not only posited the need for a bigger role for  TNI in counterterrorism operations, but also specifically proposed to omit the word ‘criminal’ in the title, so it will read Penanggulangan Aksi Terorisme or translated as the Law on Countering the Act of Terrorism.

    The Minister of Law and Human Rights, Yasonna Laoly, insisted the name be kept as it is. At the heart of the disagreement, the fundamental question is whether the act of terrorism falls under the category of extraordinary crime thus warranting special measures such as the involvement of the military.

    TNI’s Role in Counterterrorism

    Since 2000 TNI has attempted to change the status quo that tethered the military to operations led by the Indonesian Police (POLRI) when it comes to counter-terrorism operations.  Among many changes proposed by TNI, one of the most pivotal is to remove the position of the supporting role or bawah kendali operasi (BKO). The consequence of such abolition is that TNI can wage independent counterterrorism operations without having to consult the DPR. Such a proposal, however, has faced enormous resistance from civil society.

    TNI principally is inclined towards a vague law that enables the military or political leadership to flexibly define the circumstances of TNI intervention in counterterrorism. As explained by the Coordinating Minister of Politics, Legal, and Security Affairs, also a former Commander of TNI, Wiranto, it is best if the law is not too detailed, as this can compromise speed and room for manoeuvre against terrorism.

    Indeed, the revised law is likely to only give a broad-brush explanation on TNI’s involvement and a presidential regulation will further specify the rules of engagement. Given their close relationship and President Jokowi’s political reliance on many retired army generals such as Moeldoko, Luhut Panjaitan, Ryamizard Ryacudu, Wiranto, and Agum Gumelar; coupled with the good relationship between Hadi and the Chief of POLRI, Tito Karnavian, it is likely for the military to get what it wants – a bigger role in counterterrorism.

    Since the success of the Tinombala Operation, a joint POLRI-TNI manoeuvre on 18 July 2016 led to the killing of  Santoso, the leader of the Mujahidin Indonesia Timur. Given that this group pledged allegiance to Islamic State, the perception of TNI involvement has been overwhelmingly positive. On 29 May 2017, in a cabinet meeting, Jokowi reiterated the importance of having TNI involved.

    Echoing such instruction, Tito argued that TNI is pivotal especially in circumstances such as hijacking at sea and operations in rough terrain such as mountains and jungles due to its guerilla warfare expertise. Furthermore, according to a survey conducted by Kompas (involving respondents from 14 cities around Indonesia), the majority of respondents (92.6 percent) supported TNI’s involvement.

    The survey, however, also indicated as much as 23.7 percent of respondents were worried about the potential of human rights abuses. This concern stemmed from the culture of impunity in the TNI. Due to the legal loopholes and the lack of checks and balances from civilians on the military, there is fear that the involvement of TNI can lead to abuse of power. Moreover, TNI personnel could not be tried under civilian courts.

    Militarisation of Counterterrorism?

    Despite the Anti-Terrorism Law not yet being revised, TNI and POLRI have been attempting since 2015 to improve interoperability in counterterrorism operations. Publicly known as the Group 5, two of the POLRI anti-terror special units known as Detachment 88 and Detachment C Gegana Brimob, have been working closely with three of the TNI’s own.

    The TNI units are namely Detachment 81 of the Army Special Forces (Kopassus), Detachment Jala Mengkara of the Marine Corps, and Bravo-90 Unit of the Air Force Infantry. Five of them are jointly stationed at the National Agency for Combating Terrorism BNPT under the auspices of the Centre for Crisis Control (Pusat Pengendalian Krisis – Pusdalsis).

    There have been a series of combined counter-terrorism training ongoing under the coordination of BNPT. For example, in April 2015, a week-long joint exercise called Gulkonsis V on counter terrorism operation against ISIS was held in a hotel in Sidoarjo, East Java. On 8 December 2016, the Gulkonsis VI was conducted in the Soekarno Hatta Airport, Tangerang, involving the Group 5, Aviation Security, and civilians. In October 2017, a joint terrorism training was also held in an offshore oil Rig in Pabelokan Island, North Jakarta.

    On 18 May 2018, President Jokowi has also reinstated the formerly suspended Koopsgubgab, a joint force of TNI’s three anti-terror units, to assist the National Police during crisis conditions.  These have highlighted the efforts to enhance interoperability between TNI and POLRI in counter terrorism operations.

    The Persistence of Tension

    Given the significant cuts in the military’s authority coupled with the expansion of the police’s role, and with the police and military sometimes sharing overlapping responsibilities, both institutions sometimes found themselves in opposition to one another. One example is an incident between TNI and POLRI on 27 July 2016, where Team 1 Tinombala Task Force, comprising Kopassus and the local military, was ambushed and attacked by personnel from POLRI Mobile Brigade.

    The incident highlighted the lack of communication during the operation. According to the Centre for Political Studies in Bandung, between 1999 and 2014, there have been at least 200 cases of clashes with 20 fatalities. Such altercations show the competitive nature of both state institutions.

    The ideal reconciliatory approach warrants a comprehensive solution, not only delineation of functions, but also enhancing interoperability and internal reform of both POLRI and TNI.

    About the Author

    Emirza Adi Syailendra is a Senior Analyst at the Indonesia Programme at the S. Rajaratnam School of International Studies (RSIS), Nanyang Technological University, Singapore. This is part of a series on Inter-Agency Dynamics in Indonesia.

    Categories: RSIS Commentary Series / Country and Region Studies

    Popular Links

    About RSISResearch ProgrammesGraduate EducationPublicationsEventsAdmissionsCareersVideo/Audio ChannelRSIS Intranet

    Connect with Us

    rsis.ntu
    rsis_ntu
    rsisntu
    rsisvideocast
    school/rsis-ntu
    rsis.sg
    rsissg
    RSIS
    RSS
    Subscribe to RSIS Publications
    Subscribe to RSIS Events

    Getting to RSIS

    Nanyang Technological University
    Block S4, Level B3,
    50 Nanyang Avenue,
    Singapore 639798

    Click here for direction to RSIS

    Get in Touch

      Copyright © S. Rajaratnam School of International Studies. All rights reserved.
      Privacy Statement / Terms of Use
      Help us improve

        Rate your experience with this website
        123456
        Not satisfiedVery satisfied
        What did you like?
        0/255 characters
        What can be improved?
        0/255 characters
        Your email
        Please enter a valid email.
        Thank you for your feedback.
        This site uses cookies to offer you a better browsing experience. By continuing, you are agreeing to the use of cookies on your device as described in our privacy policy. Learn more
        OK
        Latest Book
        more info