Revising foreign-policy management

Yayan GH Mulyana, Bogor, West Java

Foreign policy is a sector that has received little attention from the Indonesian public, particularly in relation to the emergence of the new government. While many quarters have raised questions and made suggestions to the new government on how to address such critical issues as legal reform, economic reform, clean and good governance, education, gender equality, and the environment, what the new government should do in the sector of foreign policy has hardly been explored.

The new government should realize that in the age of globalization, the fate of a nation is shaped not only by domestic factors but also by international forces, as well as the capacity and capability to manage those factors. Thus, the new government should more explicit and articulate in its foreign policy platform.

From the issue point of view, the new government is supposed to frame its foreign policy priorities and decide what aspects of foreign policy will be adapted and what will be kept unchanged. A concentric circle approach as practiced by the outgoing government may be used for such prioritization and decision making. This approach has placed ASEAN, Tripartite Dialog involving Indonesia, Australia, and Timor-Leste, South West Pacific Dialog Forum, and Pacific Islands Forum in the first circle of priorities. The second circle comprises China, Japan, and South Korea and India. EU, UN, OIC, G-77 and NAM lie in the third circle.

Another method that can be used in setting up foreign policy priorities is "thick prioritization." This method identifies consequences that each existing foreign policy commitment brings about for the Indonesian government and populace. Based on those consequences, new commitments are made. ASEAN Community, for example, is a commitment that requires public participation in its process and ultimate realization. This initiative requires new commitments to the promotion of societal participation in the process toward the creation of an ASEAN community. Similar new commitments will be required in the process toward the New Asian African Strategic Partnership.

Managing foreign policy should also consider the nature of the issue and the emerging plurality of actors in foreign relations. Some issues are exclusively international but others are intermeshed with domestic issues in a contextual confluence. Within this context, foreign policy formulation and implementation should consider dynamics not only at the international level but also at the domestic level. Issues such as terrorism and trans-border crimes -- including drug trafficking and people smuggling -- are intermeshed.

Actors that have interest in or pay particular attention to one or more aspects of foreign policy tend to vary in the current context of Indonesia. As civil society is steadily developing, some of its elements continue to affect foreign policy. Those elements include activist groups in human rights and environment as well as think tanks.

In the advent of multiple actors affecting foreign policy, it is of utmost importance for the new government to develop a modality or mechanism that helps administer their involvement in different phases of foreign policy. Such a modality should recognize the position of the Ministry of Foreign Affairs as the primary agent in the conduct of foreign policy. This is compliant with Law No. 37/1999 on foreign relations.

Informed citizens will be able to provide a high quality contribution to foreign policy processes. Accordingly, it is pertinent that the new government outlines a program aimed at promoting foreign policy literacy. Since this is a time-consuming and difficult venture, civil society groups, including NGOs, the media, and research and educational institutions could assist in the process. They could complement government efforts in providing the public with information and materials that could help them become more literate in foreign policy issues.

From the institutional point of view, the new government is required to consolidate existing relevant agents and institutions in order to address the issues effectively. Thus, substance dictates the construction and deconstruction of agents and institutions. First, presidential competency in foreign relations and attachment to issues critical to national interests are important factors affecting foreign policy leadership. Second, the vice president's role in foreign relations could be enhanced to the point that his tasks strengthen the leadership. In the history of the American vice presidency, Al Gore has been regarded as a role model that injected new vigor into U.S domestic and foreign policies.

The Ministry of Foreign Affairs that continues to undergo reform toward an ideally viable organization remains important in the whole conduct of foreign policy. Strengthening focal points for international cooperation at relevant ministries is also important so that they can contribute to the whole process of foreign policy making and implementation constructively. As the process of regional autonomy unfolds, it is also essential to strengthen the local governments' capacity in conducting foreign relations coherent with the national government's foreign policy platform.

The new government may also consider establishing additional agents or bodies in order to amplify the capacity to perform a high profile foreign policy. Those extra agents or bodies include special envoys or advisors concerning issues vital to national interests, blue ribbon commissions, or what is commonly known as a national security council. Those initiatives could be permanent or ad hoc.

The new government might want to establish a special envoy or an advisory board for conflict resolution mandated to address ethnic and separatist-driven conflicts that could jeopardize the sovereignty and territorial integrity of Indonesia. It may also wish to found a national advisory council for foreign policy and security affairs directed to advise the president in security and foreign policy matters.

The best measure that the new government can take is to consolidate what already exists rather than to appoint new agents or establish new institutions. Improving coordination and cooperation among agents and bodies responsible for foreign policy is urgent. A careful needs analysis should be conducted before new institutions are established.

Lastly, from the administrative point of view, it is also relevant that the new government draws a foreign policy plan and strategy or a foreign policy white paper. It would be ideal if at the earliest stage of administration the new government had something in writing on its foreign policy priorities and objectives and how to accomplish them. This strategy will be of great significance in the evaluation of the performance of the new government's foreign policy.

The writer who can be contacted at yanvontsazik@yahoo.com currently serves as had of the Secretariat for Advisers and Special Envoys of the President at the Indonesian Ministry of Foreign Affairs. The ideas expressed in this article are his own.