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ABSTRACT
Parliament and the separation of power are essential elements of democratic consolidation. However, what role does parliament take if democracy is in retreat? Following a comparative approach, this article analyses the role of the Indonesian House of Representatives (DPR) during a process of democratic decline. Indonesia is seen as a success story of democratisation. Since 1998, the country has transitioned from an autocratic regime to a vibrant multi-party democracy. However, twenty years on, academics have been highlighting far-reaching patterns of democratic regression. Whereas there have been studies of the democratic setback globally and more in-depth analyses of aspects of the Indonesian democracy in retreat, there has been little attention on the role of the country’s legislature in this situation. This article analyses how the DPR has been executing its legislative mandate during Joko Widodo’s second presidential term from 2019 to 2024. Examining three cases of legislation, it found the DPR is not actively resisting the democratic decline. On the contrary, the hypothesis has been proven that the parliament is an active factor in autocratic legalism. This has been most visible in the reduced scrutiny of draft legislation, limited deliberation, and narrow public consultation to serve elite interests. In addition to a weakened legislative role by the DPR, there has been reduced oversight and scrutiny of government policies, visible through limited questioning of ministers or inquiries into the use of the budget and the appointment of government-favoured candidates to national commissions, courts, and state bodies. Moreover, the nature of a consensus-based decision-making system has allowed the executive to effectively control the parliament, instead of the other way around. This is despite some reminders from the Constitutional Court to respect the legal provisions that require deliberation and consultation of the people.
Disclosure statement
No potential conflict of interest was reported by the author(s).
Notes
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18 Viktor Zoltán Kazai, ‘The misuse of the legislative process as part of the illiberal toolkit: The case of Hungary’ (2021) 9 The Theory and Practice of Legislation 295–316.
19 Kim Lane Scheppele, ‘Autocratic Legalism’ (2018) 85 The University of Chicago Law Review <https://chicagounbound.uchicago.edu/uclrev/vol85/iss2/2/> accessed 14 July 2023.
20 Dewan Perwakilan Rakyat Republik Indonesia, ‘Tentang DPR – Fraksi’ [Indonesian House of Representatives, ‘About the DPR – Factions’] <https://www.dpr.go.id/tentang/fraksi> accessed 5 July 2023.
21 Dewan Perwakilan Rakyat Republik Indonesia, ‘Tentang DPR – Tugas dan Wewenang’ [Indonesian House of Representatives, ‘About the DPR – Duties and Authorities’] <https://www.dpr.go.id/tentang/tugas-wewenang> accessed 5 July 2023.
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23 Undang-Undang Republik Indonesia Nomor 13 Tahun 2022 tentang perubahan kedua atas Undang-Undang Nomor 12 Tahun 2011 tentang Pembentukan Peraturan Perundang-undangan (UU P3) [Law of the Republic of Indonesia Number 13 of 2022 concerning the second revision of Law Number 12 of 2011 on the Law-making Process (UU P3)].
24 Abdul Rochim, ‘Formapi Sebut DPR Hanya Jadi Jubir Pemerintah, Banyak RUU Tak Jalan’ [‘Formapi says the DPR is only a spokesperson for the government, Many bills don’t work’] (Sindo News 5 November 2020) <https://nasional.sindonews.com/read/221450/12/formapi-sebut-dpr-hanya-jadi-jubir-pemerintah-banyak-ruu-tak-jalan-1604585493> accessed 15 July 2023.
25 Dewan Perwakilan Rakyat Republik Indonesia, ‘Program Legislasi Nasional’ [Indonesian House of Representatives, ‘National Legislation Programme’] <https://www.dpr.go.id/uu/prolegnas-long-list> accessed 5 July 2023.
26 Dewi Nurita, ‘Masa Jabatan Berakhir DPR 2014–2019 Hasilkan 91 RUU’ [‘DPR 2014–2019 Term of Office results in 91 Bills’] (Tempo 30 September 2019) <https://nasional.tempo.co/read/1254080/masa-jabatan-berakhir-dpr-2014-2019-hasilkan-91-ruu> accessed 8 July 2023.
27 Andrea Lidwina, ‘DPR Dikuasai Partai Koalisi Jokowi’ [‘The DPR is controlled by Jokowi’s coalition parties’] (Katadata Media Network 25 October 2019) <https://databoks.katadata.co.id/datapublish/2019/10/25/dpr-dikuasai-partai-koalisi-jokowi> accessed 7 July 2023.
28 Reza Pahlevi, ‘Koalisi Pemerintahan Jokowi Saat Ini Lebih Besar dari Era SBY’ (Katadata Media Network 17 June 2022) [‘Jokowi’s current government coalition is bigger than the one during the SBY era’] <https://databoks.katadata.co.id/datapublish/2022/06/17/koalisi-pemerintahan-jokowi-saat-ini-lebih-besar-dari-era-sby> accessed 9 July 2023.
29 Debora Sanur, ‘Keberadaan Koalisi dan Oposisi dalam Kinerja DPR RI 2019–2024’ [‘Government Coalition and Opposition in the Performance of the DPR RI 2019–2024’] (2019) 1 Parliamentary Review 165–72.
30 Irsyad Madjid, ‘UU Cipta Kerja, Revisi UU Minerba, dan Terbukanya Gerbang Krisis Iklim’ [‘Job Creation Law, Revision of the Law on Minerals and Coal Mining, and Opening the Gate to the Climate Crisis’] (MONGABAY 18 November 2020) <https://www.mongabay.co.id/2020/11/18/uu-cipta-kerja-revisi-uu-minerba-dan-terbukanya-gerbang-krisis-iklim/> accessed 10 July 2023.
31 Undang-Undang Republik Indonesia Nomor 15 Tahun 2019 tentang perubahan atas Undang-Undang Nomor 12 Tahun 2011 tentang Pembentukan Peraturan Perundang-undangan (UU P3) [Law of the Republic of Indonesia Number 15 of 2019 concerning the revision to Law Number 12 of 2011 on the Law-making Process (UU P3)].
32 Dewan Perwakilan Rakyat Republik Indonesia ‘RUU tentang Perubahan atas Undang-Undang Nomor 4 Tahun 2009 tentang Pertambangan Mineral dan Batu Bara’ [Indonesian House of Representatives ‘Bill concerning revisions to Law Number 4 of 2009 on Minerals and Coal Mining’] <https://www.dpr.go.id/uu/detail/id/294> accessed 15 July 2023.
33 Ahmad Naufal Dzulfaroh, ‘Selain Cipta Kerja, Ini Daftar UU Kontroversial yang Disahkan Saat Pemerintahan Jokowi’ [‘Besides the Law on Job Creation, this is a list of controversial laws passed during the time of the Jokowi Administration’] (KOMPAS Online 6 October 2020) <https://www.kompas.com/tren/read/2020/10/06/080300365/selain-cipta-kerja-ini-daftar-uu-kontroversial-yang-disahkan-saat?page=all> accessed 10 July 2023.
34 Hans Nicholas Jong, ‘Activists take Indonesia’s mining law to court, but don’t expect much’ (MONGABAY 7 July 2021) <https://news.mongabay.com/2021/07/indonesia-mining-law-judicial-review-constitutional-court/> accessed 10 July 2023.
35 Rizky Argama, ‘Major procedural flaws mar the omnibus law’ (Indonesia at Melbourne 9 October 2020) <https://indonesiaatmelbourne.unimelb.edu.au/major-procedural-flaws-mar-the-omnibus-law/> accessed 10 July 2023.
36 Saru Arifin, ‘Illiberal tendencies in Indonesian legislation: the case of the omnibus law on job creation’ (2021) 9(3) The Theory and Practice of Legislation 386–403.
37 Luisa Arumingtyas, ‘RUU Cipta Kerja Bahas Lingkungan dan Kehutanan, Berikut Masukan Para Pakar’ [‘Job Creation Bill Discusses Environment and Forestry, the Following are the Experts' Recommendations’ (MONGABAY 18 June 2020) <https://www.mongabay.co.id/2020/06/18/ruu-cipta-kerja-bahas-lingkungan-dan-kehutanan-berikut-masukan-para-pakar/> accessed 10 July 2023.
38 Dewan Perwakilan Rakyat Republik Indonesia, ‘RUU tentang Cipta Lapangan Kerja’ [Indonesian House of Representatives, ‘Bill on Job Creation’] (Omnibus Law) (2019) <https://www.dpr.go.id/uu/detail/id/442> accessed on 10 July 2023.
39 CNN Indonesia, ‘Pernyataan Lengkap Jokowi Jawab Kritik Omnibus Law Ciptaker’ [‘Jokowi responds to Omnibus Law on Job Creation critics’] 9 October 2020 <https://www.youtube.com/watch?v=DBhsovSJbpg>
40 Hans Nicholas Jong, ‘Indonesia’s omnibus law a “major problem” for environmental protection’ (MONGABAY 4 November 2020) <https://news.mongabay.com/2020/11/indonesia-omnibus-law-global-investor-letter/> accessed 10 July 2023.
41 Dzulfaroh (n 33).
42 Mahkamah Konstitusi Republik Indonesia, ‘MK: Inkonstitusional Bersyarat, UU Cipta Kerja Harus Diperbaiki dalam Jangka Waktu Dua Tahun’ [Constitutional Court of the Republic of Indonesia, ‘MK: Conditionally Unconstitutional, Job Creation Law must be revised within two years’] (25 November 2021) <https://www.mkri.id/index.php?page=web.Berita&id=17816> accessed 10 July 2023.
43 Ibid.
44 Undang-Undang Republik Indonesia Nomor 13 Tahun 2022 tentang perubahan kedua atas Undang-Undang Nomor 12 Tahun 2011 tentang Pembentukan Peraturan Perundang-undangan (UU P3) (n 23).
45 Peraturan Pemerintah Pengganti Undang-Undang (Perppu) Nomor 2 Tahun 2022 tentang Cipta Kerja [Government Regulation in Lieu of Law (Perppu) Number 2 of 2022 on Job Creation] (30 December 2022).
46 Dewan Perwakilan Rakyat Republik Indonesia, ‘RUU tentang Ibukota Negara’ [Indonesian House of Representatives, ‘Bill on the State Capital’] <https://www.dpr.go.id/uu/detail/id/368> accessed on 7 July 2023.
47 Rini Kustiasih, ‘Superkilat Pembahasan RUU Ibu Kota Negara dan Kisah Bandung Bondowoso … ’ [‘Lightning-fast discussion of the State Capital Bill and the story of Bandung Bondowoso … ’] (KOMPAS Online 7 January 2022) <https://www.kompas.id/baca/polhuk/2022/01/07/superkilat-pembahasan-ruu-ibu-kota-negara-dan-kisah-bandung-bondowoso> accessed 7 July 2023.
48 Undang-Undang Republik Indonesia Nomor 3 Tahun 2022 tentang Ibu Kota Negara (IKN) [Law of the Republic of Indonesia Number 3 of 2022 on the State Capital (IKN)].
49 Kustiasih (n 47).
50 Raden Ariyo Wicaksono, ‘Digelar Tertutup, Konsultasi Publik RUU IKN Tak Layak Diteruskan’ [‘Held behind closed doors, Public Consultation on IKN Bill not worth to be continued’] (BETAHITA 13 January 2022) <https://betahita.id/news/detail/7022/digelar-tertutup-konsultasi-publik-ruu-ikn-tak-layak-diteruskan.html.html> accessed 16 July 2023.
51 Undang-Undang Republik Indonesia tentang Majelis Permusyawaratan Rakyat, Dewan Perwakilan Rakyat, Dewan Perwakilan Rakyat Daerah, dan Dewan Perwakilan Daerah (MD3) [Law of the Republic of Indonesia on the People's Consultative Assembly, the House of Representatives, the Regional Houses of Representatives, and the House of Regional Representatives (MD3)].
52 Rini Kustiasih, ‘Keputusan DPR Melanggar Tata Tertib, tapi Tata Tertib yang Diubah’ [‘The DPR's decision violates the Rules of Procedure, but the Rules of Procedure have been changed’] (KOMPAS Online 10 December 2021) <https://www.kompas.id/baca/polhuk/2021/12/10/dpr-ubah-tatib-untuk-sahkan-pansus-ikn> accessed 8 July 2023.
53 Kustiasih (n 47).
54 Christopher M. Davis, ‘Expedited or “Fast-Track” Legislative Procedures’ (2015) RS20234 Congressional Research Service Report <https://sgp.fas.org/crs/misc/RS20234.pdf> accessed 9 July 2023.
55 Susana Rita Kumalasanti, ‘Menggugat Praktik Legislasi Kilat’ ['Contesting fast-track legislation process'] (KOMPAS Online 4 July 2022) <https://www.kompas.id/baca/polhuk/2022/07/02/menggugat-praktik-praktik-legislasi-kilat> accessed 8 July 2023.
56 Bivitri Susanti, ‘Wakil Rakyat Bukan Pabrik Undang-Undang’ ['People's representatives are not law factories’] (KOMPAS Online 7 July 2022) <https://www.kompas.id/baca/polhuk/2022/07/06/wakil-rakyat-bukan-pabrik-undang-undang> accessed 9 July 2023.
57 Wasisto Raharjo Jati and Athiqah Nur Alami, ‘Democracy won’t be making the move to Indonesia’s new capital’ (Indonesia at Melbourne 27 September 2022) <https://indonesiaatmelbourne.unimelb.edu.au/democracy-wont-be-making-the-move-to-indonesias-new-capital/> accessed 10 July 2023.
58 Susanti (n 56).
59 Hukumonline, ‘Dinilai Terburu-Buru, Pembahasan RUU IKN Hanya 43 Hari’ ['Considered rushed, deliberation of IKN Bill only took 43 days'] Hukumonline (22 January 2022) <https://www.hukumonline.com/berita/a/dinilai-terburu-buru--pembahasan-ruu-ikn-hanya-43-hari-lt61ebb9cc17290/> accessed 10 July 2023.
60 Susanti (n 56).
61 ibid.
62 Jürgen Habermas, The Theory of Communicative Action Volume One: Reason and the Rationalization of Society (Wiley 1991).
63 Jeffrey A. Winters, Oligarchy (Cambridge University Press 2011).
64 Scheppele (n 19) 545–84.
65 Robertus Robet, ‘Who are the elites who control Indonesian politics?’ (Indonesia at Melbourne 11 April 2023) <https://indonesiaatmelbourne.unimelb.edu.au/who-are-the-elites-who-control-indonesian-politics/> accessed 16 July 2023.
66 Rafiqa Qurrata A’yun and Abdil Mughis Mudhoffir, ‘Omnibus law shows how democratic process has been corrupted’ (Indonesia at Melbourne 12 October 2020) <https://indonesiaatmelbourne.unimelb.edu.au/omnibus-law-shows-how-democratic-process-has-been-corrupted/> accessed 16 July 2023.
67 Vitorio Mantalean, ‘DPR Periode Ini Paling Hening Sepanjang Sejarah Reformasi, padahal Harusnya Mengkritik Pemerintah … ’ [‘The DPR during this period is the most silent in the history of reform, even though it should be criticizing the government … ’] (KOMPAS Online 29 January 2023) <https://nasional.kompas.com/read/2023/01/29/17332091/dpr-periode-ini-paling-hening-sepanjang-sejarah-reformasi-padahal-harusnya> accessed 12 July 2023.