National Identity and Foreign Policy: Indonesia Million Friends Zero

Enemy under Yudhoyono Regime

Sevira Marsanti Utari and Baiq Wardhani

Department of International Relations, Faculty of Social and Political Sciences, Universitas Airlangga

Keywords: Yudhoyono, Million Friends Zero Enemy, Indonesia Foreign Policy, Identity, Culture.

Abstract: In 2010, President SBY stated that Indonesia's foreign policy is "million friends zero enemy". This policy is

meant to become a substitute for Indonesian foreign policy that has been used since the reign of President

Soekarno, which is "freely active". Through this new policy put forward by President SBY, Indonesia's

cultural role and identity can be seen as a country that befriends anyone and avoids enemy ownership. Since

a country's foreign policy can reflect a country's culture and identity, it aims to look at the reasons,

relationships, and roles of culture and national identity in shaping the policy through the level of analysis. In

analyzing this policy, five variables were used to conceptualize national culture and identity, namely

national self-image, religion, ideology, strategic culture, and national role conception in the international

system. The purpose of this paper is to see whether the level of cultural analysis and national identity is the

right level of analysis to explain the reason for the establishment of the "zero enemy enemy" policy.

1 INTRODUCTION

For a country, statements, actions, and actions of

international actors that also include presidential

speeches and expressions of the president or political

representative actor important to his country

conveyed to other actors can also be considered as a

foreign policy of his country (Gerner in Neack,

2008: 9 ). The change of government of a country

can also change the policy of the country. In this

article, the author will try to explain one of the

foreign policies of the government of President

Susilo Bambang Yudhoyono, or who is often called

by SBY, namely "zero enemy friends". The foreign

policy of "million friends zero enemy" was

interesting to discuss because it changed the role of

Indonesian foreign policy which was originally "free

active". Departing from this, the authors raised the

"zero enemy enemy" policy which was only applied

as a discussion in this paper.

The author analyzes the "zero enemy enemy"

policy used during the administration of President

SBY through one of the levels of analysis stated by

Valerie Hudson. This level of analysis itself is a tool

for writers to be able to simplify and sharpen

analysis in a country's foreign policy. Valerie

Hudson stated that there are seven levels of analysis

that can be chosen by the author in analyzing foreign

policy, namely individuals, groups, culture and

national identity, domestic politics, national

attributes, and international systems (Hudson, 2007).

In this paper, the author will use a level of national

cultural and identity analysis in looking at the "zero

enemy enemy" policy. National identity itself has a

diverse conception from the perspective of

constructivism. Constructivism also has various

types of approaches. The author takes

Constructivism's Structural or Structural

Constructivism approach in using this level of

analysis of national culture and identity. In the level

of cultural analysis and national identity, there are

five concepts that will be used as indicators in

explaining the role and impact on culture and

national identity. The five concepts are national self-

image, religion, ideology, strategic culture, and the

conception of national roles in the international

system. The use of this level of analysis is seen from

the role of culture and identity in its role in the

reason for the formation of the policy.

2 NATIONAL IDENTITY AND

FOREIGN POLICY

Understanding national identity can be explained in

the context of culture and identity. Culture at the

Utari, S. and Wardhani, B.

National Identity and Foreign Policy: Indonesia Million Friends Zero Enemy under Yudhoyono Regime.

DOI: 10.5220/0010280600002309

In Proceedings of Airlangga Conference on International Relations (ACIR 2018) - Politics, Economy, and Security in Changing Indo-Paciﬁc Region, pages 581-587

ISBN: 978-989-758-493-0

581

level of analysis itself is an action template by the

state through its reaction to an international

phenomenon. An action template or action that has

become a habit, adopted by the state from past

learning and experience and the role of the state

(Hudson, 1999: 770). While identity is a

psychological motivation that can give birth to a

sense of ownership of "our" identity in a social

group and collective group (Clunan, 2009: 3).

According Clunan (2009: 6), national identity then

interpreted by how the state or international actors

interpret the views of the country. But according to

Neack (2008: 86), national identity is formed

through national self-image or how a country creates

its own image. So that the level of cultural analysis

and national identity is used to see how a country

uses the culture and identity of its people in

interpreting the structure of international politics and

how it uses it in interacting with the state and / or

other political actors (Ringmar 1997 in Weaver,

2002: 21). The purpose of the use of policy analysis

through the level of cultural analysis and national

identity is to see whether an external policy is the

result of the linkage between the representation of

national identity and the objectives of the policy

itself or not (Hansen, 2006: 16). According to

Rosenau (in Neack, 2008: 84), there are three main

factors that can influence the foreign policy of a

country, namely the size of the country by

population, the economic system based on the

developed or developing countries viewed from the

gross national product, or the closure of a country in

terms of how democratic the country is.

The concept of national identity arises from

thinking from the perspective of constructivism.

Constructivism itself has various approaches,

namely structural, socio-psychological, norm-

oriented, rule-oriented, and aspirational

constructivism. In this paper, the author will use

structural constructivism presented by Alexander

Wendt. Wendt (1999 in Maysam, 2011: 1), states

that identity is not just about how self or "Self"

judges the "Self", but also about how the other party

or "Other" understands and represents the "Self"

identity itself. Wendt revealed three things about

national identity, namely that Constructivism is a

structural theory of the international system which

then produces the following assumptions: (1) the

state is a principal unit to analyze international

politics; (2) the key of the structure in the state

system is intersubjective rather than material; (3) the

identity and interests of a state are constructed from

social structures rather than human nature or

domestic politics (Wendt, 1999 in Maysam, 2011:

1).

The concept of national identity referred above

can be understood through several concepts. First is

national identity as national self-image. National

self-image itself is how the state is viewed by other

countries and or how it creates that view. To

understand the self-image of a country, what must be

done is to explore each country and pay attention to

its dynamics. Besides that, it is important to know

how the role of the country is in the international

system (Neack, 2008: 83). The second concept of

national identity is religion. Religion is a concept of

national identity because it is considered a belief or a

theology and cultural attributes as well as the source

of the prevailing values within a country. Religion in

a country can even influence the orientation of the

foreign policy of the country as a whole (Warner and

Walker, 2011: 115). The third concept is the national

or national role which is meant by the role of a

country in the international system. Holsti (1970:

233 & 241) states that there are nine main roles of

the state in the international system, namely non-

aligned countries, block leaders, balancers, and

satellite states. In addition, the role of the state can

be seen from the international organizations it

follows. The fourth concept is an ideology which is

a system of belief in philosophical principles and

values that are assumed to be true and then

automatically becomes the guide for acting and

adopting the foreign policy of a country (Schonberg,

2008: 39). The final concept is strategic culture,

which is a system of state symbols that form a long-

term strategy through the utilization of military

power in inter-state political conflicts and through

the use of factual strategies that can be seen as

realistic and efficient actions (Johnston , 1995: 46).

To determine whether a country's foreign policy is

affected by its country's culture and national

identity, the concepts mentioned in the preceding

paragraph can be used as reference when using this

level of analysis using the Structural Perspectives of

Constructivism.

3 MILLION FRIENDS ZERO

ENEMY

"Million friends zero enemy" is a motto for foreign

policy which at the same time became the

foundation of Indonesian foreign policy during the

administration of President SBY (Falahi, 2012: 228).

Through the speech of President SBY in January

ACIR 2018 - Airlangga Conference on International Relations

582

2010, the Indonesian Ministry of Foreign Affairs

revealed that "Indonesia is facing a strategic

environment where no country perceives Indonesia

as an enemy and there is no country where Indonesia

considers an enemy. Thus Indonesia can exercise its

foreign policy freely in all directions, having a

million friends and zero enemies. "(Jakarta Globe,

t.t. Puspitasari, 2010: 2). The purpose of this policy

is to show Indonesia as a country that can establish

cooperation to any party in a turbulent and dynamic

world without showing the boldness and high end

neutrality. President SBY then called it with

"navigating a turbulent ocean" which means sailing

the turbulent ocean (Falahi, 2012: 229).

The aim of this zero enemy "million friends"

policy is to improve relations with all countries

through bilateral relations and multilateral

institutions as well. In addition, this policy is also

aimed at promoting justice and adherence in the

international arena, improving investment policies in

economic development, promoting democracy and

consolidation in regional integration, protecting

Indonesians, especially workers abroad, maintaining

national unity, and seeking to establish mechanisms

more effective foreign policy (Puspitasari, 2010: 2).

According to The Diplomat (2014), this policy then

helps Indonesia to control the growth of

international trade and investment. This policy is

also considered to reinforce the establishment of

Indonesia that supports human rights which then

affects the difficulties of relations with the state that

has human rights issues, such as China. This is then

expected to lift Indonesia's image, which at first fell

in the eyes of the international community regarding

the case of the release of East Timor into a sovereign

state, Timor Leste.

The "million friends zero enemy" policy was

then applied through Indonesia's active participation

in international forums and bilateral relations with

other countries. Obviously, Indonesia also expressed

its support for nuclear weapons free and the

elimination of weapons as a whole regarding the

issue of North Korea and Iran. Indonesia also

supported the NPT (Non-Proliferation Treaty) in

May 2010 in New York. Unlike Soekarno's refusal

to contribute to the United Nations (UN), the policy

of "million friends zero enemy" brings Indonesia's

active presence in the United Nations. This can be

seen from Indonesia hosting the meeting of heads of

state to discuss the Millennium Development Goals

in 2010 (Puspitasari, 2010: 4). In addition, Indonesia

is also a member of Group 20 (G-20) which is a

group of countries that influence the development of

the global economy. However, Indonesia does not

also ignore domestic aspirations in foreign policy

making. It can be seen from the decision of

Indonesia who chose not to vote or abstain in voting

against sanctions for Iran and support Palestine in

diplomacy Quartet know that Indonesia has the most

Muslim population in the world (Puspitasari, 2010:

4).

In addition, this policy also improves Indonesia's

relationship with other countries. Previously,

Indonesia's relationship with the European Union

was limited only through ASEAN alone. But in

2005, Indonesia normalized relations with the Dutch

who had debated about the recognition of

Indonesia's status as a sovereign country. In 2008,

Indonesia also established a trilateral relationship

with the Netherlands and Malaysia in the field of

fisheries (Puspitasari, 2010: 5). At the same time,

Indonesia also began improving bilateral relations

with the UK and with Norway through the signing of

a cooperation agreement on climate change. In

addition to Europe, Indonesia also strengthened

cooperation relations both bilaterally and through

international institutions with China and ASEAN

countries (Puspitasari, 2010: 5).

"Million friends zero enemy" is considered

Falahi (2012) as a policy that is merely an imaging

effort. However, although there are some good

effects on Indonesia's condition in international

politics, this policy is no longer used in government

after SBY, namely the reign of President Jokowi.

According to the Jokowi government through its

foreign minister, Retno Marsudi, the zero enemy

"million friends" policy put Indonesia's sovereignty

under and rejected President Jokowi to continue

using the slogan as the basis for Indonesia's foreign

policy. Therefore, President Jokowi stressed the

redefinition of "free active" politics in the following

statement: "All Nations are friends until Indonesia

sovereignty is integrated and national interest is

jeopardized." (Kompas, 2014). The use of "million

friends zero enemy" by President SBY then became

the hallmark of foreign policy during his own reign.

4 NATIONAL IDENTITY

ANALYSIS OF MILLION

FRIENDS ZERO ENEMY

Since Indonesia was first led by President Soekarno,

Indonesia holds the "active free" politics as its

foreign policy grip. However, after the post-

Soeharto administration, Indonesia's foreign policy

lacked the main focus for the government due to

National Identity and Foreign Policy: Indonesia Million Friends Zero Enemy under Yudhoyono Regime

583

several issues and challenges to be faced, such as the

Asian financial crisis (1997-1998), poverty, human

rights issues and corruption. This problem is enough

to create chaos on the condition of Indonesia at that

time both in domestic and its relation with other

countries in the international world. Even according

to Rodolfo Severino (in Tan, 2007: 162), Indonesia

has also lost its leadership in ASEAN. Indonesia's

leadership period after Soeharto, namely B.J.

Habibie, Abdurrahman Wahid, and Megawati

Soekarnoputri, were more cautious in fulfilling their

foreign ambitions (Tan, 2007: 162). This is because

there is still a good image of Indonesia in the eyes of

the international community. Indonesia's decline is

also coupled with natural disasters, namely

tsunamis, earthquakes, landslides, and flash floods.

This then resulted in Indonesia focusing on the

rehabilitation and recovery of the country, so that

foreign ambitions were also damped. For seven

years also, Indonesia's foreign policy through

diplomacy is more directed towards gaining aid for

economic recovery, ensuring that domestic separatist

movements are not exposed, and building support

for democratization (Tan, 2007: 162). It also carries

the policy of "million friends zero enemy" as a

novelty in Indonesian foreign policy which then

brings about the effects described in the previous

section.

In the international eyes, Indonesia is seen as a

country that has a diverse ethnicity, religion,

language, geography, history, to political

organizations. In addition, Indonesia is assumed to

be a "imagined communities" by Benedict

Anderson, which is meant by a community that has a

sense of belonging and nationalism from different

backgrounds because it emerges from colonization

that both colonized Indonesia at that time Moon,

2009: 256). Through Indonesia's unfamiliarity with

this distinction and staying peaceful and

harmonious, Indonesia wants to create an image in

the eyes of the international community that

Indonesia also wants to establish such relations

through the "milion friends zero enemy" policy

without seeing the difference. Indonesia also wants

to emphasize that all parties are important.

Establishing a relationship intended by the policy is

not limited to the state alone, but also to individuals

(people to people) and non-governmental

organizations (Falahi, 2012: 229-30).

In addition to being an "imagined communities",

Indonesian identity can also be seen as a country

with the largest Muslim population in the world.

According to Warner and Walker (2011: 115),

religion as a national identity can also influence the

adoption of a foreign policy. The role of religion, in

this case Islam because Indonesia is known as the

most populous Islamic country, was true enough to

give influence. This can be seen from the position of

Indonesia which is the only country that abstained in

giving sanctions for Iran and supporting Palestine as

a sovereign country. However, Indonesia does not

take sides in an alliance in international politics.

Referring to Holsti (1990), Indonesia's national

role in the international system is known as a non-

aligned country. It can be seen from Indonesia who

is the leader of the Non-Aligned Movement.

Through the Non-Aligned Movement, Indonesia

seeks to become a neutral country without taking

sides to any camp. When Indonesia views

Indonesia's decision in its "million friends zero

enemy" policy, Indonesia plays the role of a country

that befriends all countries without seeking enemies.

It can be said that Indonesia wants to portray

Indonesia's national role through this foreign policy.

In addition to the Non-Aligned Movement,

Indonesia also wants to improve relations with

countries that during the previous reign were not the

main focus of Indonesia's international political

agenda.

In ideological variables, Indonesia is famous for

its ideology of Pancasila which contains five

principles, namely nationalism, humanitarianism,

representative government, social justice, and belief

in one God (Guy, 1958: 314). Based on Pancasila,

Indonesia's foreign policy is "freely active" since

Soekarno's reign. Despite the policy of "million

friends zero enemy", it does not mean "free active"

is simply abandoned. Because basically, "million

friends zero enemy" is just a strengthening of the

policy of "free active" politics born by President

Soekarno (The Diplomat, 2014). The goal to be

achieved is to be the same, ie, to be impartial of any

bloc and to make friendships with all countries. Its

application lies in increasing Indonesia's

contribution to international forums and

strengthening Indonesia's cooperation with other

countries, especially neighboring countries. The

addition of efforts to the achievement of Indonesia's

impartial objectives lies only in terms of quantity

only, so it is referred to only as adjustment policy

changes (The Diplomat, 2014 and Hermann, 1990:

5-6). According to Hermann (1990: 5-6) in his

article "Changing Course: When Government

Choose to Redirect Foreign Policy", there are four

kinds of foreign policy changes of a country. The

first is adjustment changes, which are policy

changes that only increase or reduce the effort to

achieve the objectives of a foreign policy. This

ACIR 2018 - Airlangga Conference on International Relations

584

change does not change the original purpose of a

foreign policy of a country. Second is program

changes. Program changes is one of the changes

made by changing the way to achieve its goals, but

still with the same goal (Hermann, 1990: 5-6). The

third is the problem / goal changes, which are

changes to foreign policy that change the initial goal

of a policy. While the last change is international

orientation changes, which is the highest level of

change than the other three kinds of changes. This is

because this type of change changes both the activity

and the role of a country in the international system,

so the changed policy is not just one (Hermann,

1990: 5-6). Looking at President Yudhoyono's

foreign policy, "millions friends zero enemy" which

during the previous administration did not yet exist,

the authors consider the foreign policy to be

included in the category of first level policy change,

namely adjustment change.

While seen in its strategic culture, according to

Dewi Fortuma Anwar (1996), there are five

parameters of the use of strategic culture, namely

ideology, foreign policy, conflict solution, economy,

and national defense. Both ideology and foreign

policy have been discussed in the preceding

paragraph. While the conflict solution in question is

Indonesia's strategic culture that uses consensus

munfakat in conflict resolution and using the

principle of mutual cooperation in both political and

social life (Guy, 1958: 314). The deliberation system

requires all members of the deliberations to agree on

the outcome of the negotiations before the

negotiations end. This indicates that Indonesia

avoids disputes and conflicts. When applied to

Indonesian foreign policy, this is in line with the

objective of the "million friends zero enemy" policy,

which promotes friendship without disputes.

Whereas in the national self-image variable,

Indonesia considers itself as a country that has an

important role in the world when it sees ownership

of history, geography, resources and natural scenery.

Indonesia also sees itself as a nation that has a

traditional culture with distinctive political

principles and ideologies. In addition, Indonesia is

also known and claims to be a nation that has

solidarity, has good social skills, is friendly, kind,

sincere, cheerful, well-behaved, and tolerant (Guy,

1958: 313). Such a national self-image of Indonesia

can adequately explain Indonesia's decision in

choosing a "million friends zero enemy" policy.

Indonesia wants to have a good image in the

international world.

When viewed from the variables described

above, it can be said that in the international system,

Indonesia is seen as a country with Pancasila

ideology, which is only owned by Indonesia with its

foreign policy in the form of "free active" and then

changed to "million friends zero enemy "During the

administration of President SBY. Indonesia is also

known as the most populous Muslim country in the

world and a country that plays a role in the

international system as a non-aligned country. In

addition, Indonesia has also established an image

and is known as a good-hearted, friendly, and highly

tolerant country. Indonesia is also famous for its

own country in politics both domestic and

international. One is to use the principle of mutual

cooperation and consensus to reach munfakat. Of all

the variables that exist, the author sees that the

Indonesian national identity that wants to be formed

and then applied in its foreign policy is basically a

benevolent nation state and wants to be friends with

all of them. These variables also later construct the

image of Indonesia in the eyes of the international

community that Indonesia is a non-aligned third

world country that has foreign politics friendly with

all actors in the international system. Thus, the

policy of "million friends zero enemy" properly

reflects both national identity and international

social construction. However, there is no clear

reason that can be explained by the level of cultural

analysis and national identity as to why the

presidency with SBY chooses to release the policy.

This is because there is no difference in the purpose

of "active free" policy. However, with the policy of

"million friends zero enemy", Indonesian national

identity is more emphasized than the previous policy

of "free active".

5 CONCLUSION

Indonesia's foreign policy has been known as "free

and active" politics, but during the administration of

the second President SBY, President SBY

introduced Indonesia's foreign policy as "million

friends zero enemy". What is meant by the "zero

enemy enemy" policy is that Indonesia wants to

establish cooperation with all parties and does not

want to make enemies. Based on the author's

explanation and analysis, the writer can conclude

that the level of cultural analysis and national

identity has not been able to explain why the

government during the President SBY decided to

issue foreign policy "million friends zero enemy".

To find out about this, the author uses several

indicators, namely national self-image, national roles

in international systems, religion, ideology, and

National Identity and Foreign Policy: Indonesia Million Friends Zero Enemy under Yudhoyono Regime

585

strategic culture with a Structural Constructivism

perspective by Alexander Wendt. Which in

Structural Constructivism, which can be underlined

is that national identity is formed based on social

construction, so that the role of actors in a country is

important in creating a national identity that can be

assessed from its policies both domestically and

abroad by "Other".

It is said that the level of national cultural and

identity analysis cannot fully explain the reason for

the emergence of zero enemy "million friends"

policy because there are no variables that can

explain in detail, considering the "million friends

zero enemy" policy is only an extension of foreign

policy that Indonesia has previously adopted , ie

"free active". In the national role variables in the

international system, the policy of "million friends

zero enemy" only strengthens Indonesia's position as

a non-aligned country that does not want to take

sides and befriends anyone. This indicates that in the

absence of a "million friends zero enemy" policy and

an active "active free" politics that exists as a

characteristic of Indonesia's foreign policy identity,

there is no significant impact. The purpose of both

policies is the same. The second difference is only

the application by President SBY and the president

of the previous administration, which was only

during the administration of President SBY which

focused on strengthening foreign relations. This can

be seen from the active Indonesia in various

international forums, intensive President SBY in

visiting friendly countries, and increase the number

of diplomatic cooperation with countries in the

world. Based on this, the author argues that a more

appropriate level of analysis to analyze the

emergence of the "zero enemy enemy" policy is the

level of individual analysis that discusses on what

basis President SBY focuses more on good relations

with all countries and becomes very active in

international forums.

In addition to the level of individual analysis, the

author also believes that the "million friends zero

enemy" policy can also be explained through the

level of domestic political analysis. This was caused

by the explanation of the reason why Indonesia

during the administration of President SBY used the

"zero enemy" million policy, which was due to

Indonesian domestic politics which in the previous

administration still focused on national

development. In addition, the level of domestic

political analysis is also considered more capable of

analyzing this policy because the power of the

majority government is held by the new party, the

Democratic Party. Through this policy, in line with

that disclosed by Tan (2007), that Indonesia is trying

to find a secure position in foreign relations and

hopes to get help, especially in the economic field

considering Indonesia at the beginning of the

administration of President SBY needs a lot of funds

due to the many natural disasters. However, national

identity can be one of the factors behind decision

making as a "zero enemy enemy", but only limited

to strengthening Indonesia's position and Indonesia's

national identity from the previous foreign policy,

namely "free active". In addition, zero enemy

"million friends" based on the level of analysis of

national culture and identity want to reshape

Indonesia's image that is kind, friendly, sincere and

tolerant towards others.

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