SBY and the Story of the Reformist Generals Who Reject the Dual Function of the Indonesian Armed Forces

Amid the widespread public protests regarding the large number of active TNI soldiers occupying civilian positions, Indonesia's 6th President, Susilo Bambang Yudhoyono, voiced his criticism. He once again reminded that since the 1998 Reform era, there has been an agreement that the military should no longer engage in practical politics. To build a professional armed forces, soldiers must return to the barracks.

"That is one of the doctrines we issued in the past, during the ABRI (Armed Forces of the Republic of Indonesia) reform era, when I was part of the reform team, the head of the reform team, which we implemented. Indeed, I was moved, inspired, that if one is still an active general, for instance, one should not engage in politics. If you want to engage in politics, retire," said Susilo Bambang Yudhoyono, commonly known as SBY, while addressing Democratic Party cadres at his residence in Cikeas, Bogor Regency, West Java, on Sunday (23/2/2025).

He also provided an example, stating that despite having a brilliant military career, some TNI officers resigned when deciding to engage in practical politics. One such example is Agus Harimurti Yudhoyono, his eldest son, who retired when he ran as a gubernatorial candidate in the 2017 Jakarta Regional Head Election. Agus resigned from the military despite earning the Adhi Makayasa award upon graduating from the Military Academy in 2000, completing several military schools, and being newly appointed as Commander of the Mechanized Infantry Battalion 203/Arya Kemuning in 2015.

Kompas notes, SBY also retired after more than 20 years as a TNI soldier. He who once served as the Chief of Social Political Staff (Kasospol) who then changed to the Chief of Territorial Staff of ABRI resigned with his last rank as general. He resigned after being appointed as Minister of Mining and Energy during the administration of the 4th President of the Republic of Indonesia Abdurrahman Wahid, then also appointed as Coordinating Minister for Political, Social, and Security Affairs, during the same administration period.

After retiring, SBY's political career soared. He returned to serve as the Coordinating Minister for Political and Security Affairs during the tenure of Indonesia's 5th President, Megawati Soekarnoputri. Yudhoyono also founded the Democratic Party and was elected as Indonesia's 6th President for two terms, following the 2004 and 2009 Presidential Elections.

The resignation of SBY as a soldier was inseparable from the dynamics within ABRI during the 1998 Reform era. In response to civil society's demands to abolish ABRI's Dual Function, the institution sought to formulate doctrines and reform measures amidst the wave of democratization.

Within ABRI, there is also a group of generals known by the foreign press as reform-minded generals. They are the Governor of the National Resilience Institute (Lemhannas) Lieutenant General (Letjen) Agum Gumelar, the Chief of Territorial Staff (Kaster) of the TNI Lieutenant General Susilo Bambang Yudhoyono, the Commander of the TNI Command Staff School (Sesko) Lieutenant General Agus Widjojo, and the Assistant for General Planning (Asrenum) Major General Agus Wirahadikusumah (Kompas, 11/22/1999).

While serving as the Chief of Social and Political Affairs, Yudhoyono explained that ABRI had a team consisting of 35 high-ranking officers who worked tirelessly since May 4, 1998, to develop a concept for ABRI's reform. The concept was presented to the government, the DPR, other high-level institutions, and the broader public. The concept in question pertained to the reorientation and repositioning of ABRI's socio-political role within society.

"ABRI listens to every thought that concerns us. Please look at the whole essence and meaning of ABRI's dual function. Look at it clearly, unemotionally, rationally. Even without being pressured, we are reviewing the reorientation, repositioning of ABRI's socio-political role, which we call the actualization of ABRI's socio-political role," said Yudhoyono (Kompas, 5/26/1998).

Reflecting on the practices that occurred during the three decades of the New Order, Yudhoyono said at that time, ABRI occupied so many positions in society because of historical needs. ABRI was part of the New Order political format that required them to play a role not only as guardians of sovereignty but also in various socio-political areas. "That there is a deviation and something that is more than proportionate, this is what we want to fix," he said (Kompas, 12/9/1998).

According to him, ABRI recognizes that the nation's problems are becoming increasingly broad and complex. Therefore, the responsibility to resolve them is not solely borne by ABRI but must involve all components of the nation. "Take, for instance, maintaining national stability, unity, and public order; the community must also take part. Especially in other areas, such as politics, economics, and socio-culture, ABRI must be able to limit itself to the extent of its responsibility and take an appropriate role," said Yudhoyono.

Lieutenant General (ret.) Agus Widjojo, who is now the Indonesian Ambassador to the Philippines when contacted on Tuesday (25/2/2025), confirmed that at the end of the New Order there were a number of generals who were actively developing discourse on reform within ABRI to respond to democratization. One of the earliest was Yudhoyono, who put forward the idea in a forum at the staff and command school about the role of ABRI in the 21st century. The general idea initiated by Yudhoyono was then sharpened by other figures, until it became a concrete idea to re-examine the relevance of ABRI doctrine in the midst of a democratic country.

"At that time we thought, because democracy was just around the corner, would the TNI's basic documents still be valid when Indonesia entered a democratic political system," said Agus.

One that is irrelevant, even deviating from the constitution, is Law Number 20 of 1982 concerning the Main Provisions of State Defense and Security. In this policy, it is stipulated that ABRI is not only present as a state defense and security force, but also becomes a socio-political force or known as dual function. In fact, the 1945 Constitution mandates that the armed forces only play a role in national defense, not anything else.

In the New Order era, according to Agus, the role of ABRI which penetrated almost all areas of national life was inseparable from the spirit and history of independence. The Indonesian army came from the people and fought together with other elements of society to achieve independence. Therefore, the spirit of always including fellow fighters is still carried over into the political format of government.

However, that can no longer be maintained since the 1998 Reformation. The community already has very diverse backgrounds. They need to be accommodated even though they are not considered as “comrades in arms”. “Therefore, all governance and all activities in running the country must be based on democratic principles which we have no experience with. Including in defense which is the domain of the TNI,” said Agus.

So, what is the new paradigm formulated to reform ABRI? Agus emphasized that many parties mistakenly viewed that reform within ABRI at that time could be a step to solve many problems. However, in reality, ABRI Reform developed one spirit, namely to restore the role of the military in accordance with the constitution.

"The TNI reform regulates that the TNI's authority is adjusted to the 1945 Constitution, in line with the political system that we have agreed upon. So, the army must become a professional army that focuses on national defense," said Agus.

For that reason, since the TNI reform was initiated in 1998, soldiers are not allowed to enter the political realm and others that have nothing to do with defense. Their main task is to be an armed force that protects the country from external threats.

At the beginning of the reform, one of the things that was done was to separate or disassociate with Golkar and other political parties. "So the process of disassociating ABRI from Golkar. This is in the context that we (ABRI) want to put everything in its rightful place. The ABG (ABRI, Bureaucracy and Golkar) path is certainly no longer relevant and not appropriate to be revived in the spirit of democratization and reform," said Yudhoyono (Kompas, 24/9/1998).

In the process of disassociation, Yudhoyono admitted that there were still ABRI extended families who were still active in Golkar. However, they were already retired. If they were retired, ABRI would no longer have a problem with it because their presence in political parties was believed to be able to dynamize or become a constructive part of the party internally.

Structurally, ABRI also abolished the position of Kasospol and changed it to Chief of Territorial Staff. The position of Assistant for Workers, which was previously part of Kasospol, was completely liquidated or gradually eliminated. In addition, active soldiers who served outside the defense and security structure were asked to leave their active duty status (Kompas, 10/11/1998).

For more than 25 years, the process has continued. The spirit of returning the role of the military in accordance with the constitution is still stated in Law Number 34 of 2004 concerning the TNI. However, in recent times a number of active TNI soldiers have returned to civilian positions.

One of them is Major Teddy Indra Wijaya who is now the Cabinet Secretary. Although he manages the ministers and all matters in the Palace, structurally the Cabinet Secretary is now equivalent to an echelon IIA official. Major General Ariyo Windutomo is currently the Head of the Presidential Secretariat. Ariyo previously served as Head of the Personnel Section of the Ministry of Defense and Head of the General Bureau of the Secretariat General of the Ministry of Defense. Now, he holds a structural position held by a high-ranking echelon IA official.

Another active soldier is Major General Novi Helmy Prasetya who was recently appointed as the President Director of Bulog. In ministries/institutions, there are also several active TNI soldiers who hold structural positions. Major General Maryono, for example, serves as Inspector General of the Ministry of Transportation. Major General Irham Waroihan is Inspector General of the Ministry of Agriculture. In addition, there is still First Admiral Ian Heriyawan who serves at the Hajj Organizing Agency.

In fact, Article 47 Paragraphs 1-3 of the TNI Law states that soldiers can only occupy civilian positions after resigning or retiring from active military service. In addition, active soldiers can occupy positions in offices that oversee the coordination of State Politics and Security, State Defense, Presidential Military Secretary, State Intelligence, State Code, National Resilience Institute, National Defense Council, National Search and Rescue (SAR), National Narcotics, and the Supreme Court.

To serve in the ministries/institutions mentioned is also based on the request of the head of the department and non-departmental government institution and is subject to the administrative provisions applicable within the environment of the department and non-departmental government institution in question.

"The rules are correct, the TNI law is correct, but the rules are run by humans. And if humans don't want to obey the rules, what can we say? It means that they are actually not qualified to rule, because that will only damage the order," said Agus.

According to him, there is no alternative concept regarding the defense system in a democratic country other than returning the military to its main task as a tool of national defense. The move to give various civilian positions to the TNI will actually be a burden that will weaken the readiness of soldiers in facing war.

In fact, amidst the current geopolitical dynamics, war can happen at any time. There are threats from the South China Sea situation and the impact of the conflict in the Middle East that could have an impact on Indonesia at an unexpected time. In that context, the country should build a defense posture as effectively as possible so that the TNI is ready to fight whenever the enemy attacks.

If more and more soldiers are busy with domestic political affairs, what will happen to national defense, which has actually been carefully considered since the beginning of the reformation?