Implementing Comprehensive Security Through Institutional Synergy: Indonesia's Total People’s Defense Framework in ASEAN Defense Minister’s Meeting (ADMM) Cooperation
DOI:
https://doi.org/10.33172/jp.v11i3.19884Keywords:
ADMM, Comprehensive Security, Institutional Synergy, Policy Implementation, Total People’s Defense.Abstract
This study examines Indonesia’s implementation of comprehensive security through institutional synergy within the ASEAN Defense Ministers’ Meeting (ADMM) framework, grounded in the constitutional doctrine of Total People’s Defense (Sistem Pertahanan Rakyat Semesta). In the context of multipolar geopolitics and intensifying nontraditional security challenges, it explains an implementation gap in which the whole-of-government mandate embedded in Total People’s Defense is not translated into consistent domestic coordination for ADMM engagement. Existing research emphasizes Indonesia’s geopolitical strategy or ADMM’s regional architecture, leaving domestic organizational and bureaucratic impediments underexamined. A qualitative phenomenological case study combined observation of 15 ADMM activities (2020–2023), analysis of policy documents including the State Defense Policy Guidelines (2020–2024), and interviews with eight senior policymakers. Three coordination failures were identified: 75 percent of non-defense officials were unfamiliar with policy provisions assigning their agencies as primary responders to nontraditional threats; 80 percent of ADMM activities relied on ad hoc rather than routine inter-agency coordination; and follow-up mechanisms were absent for integrating multilateral commitments into domestic planning and budgeting. Consequently, BNPB, BSSN, and the Ministry of Health remained peripheral despite statutory mandates, reinforcing fragmentation that constrains Indonesia’s capacity to advance regional security governance and fulfill its ADMM leadership role. It is concluded that conceptual alignment between Total People’s Defense and ADMM comprehensive security is necessary but insufficient without institutionalized coordination. Three interventions are proposed: structured orientation and quarterly briefings, formal role delineation through regulation, and a standing ADMM Coordination Working Group to ensure continuity and domestic policy integration.
References
Acharya, A. (2019). Constructing Global Order: Agency and Change in World Politics. Cambridge University Press.
Acharya, A., & Tan, S. S. (2006). Betwixt Balance and Community: America, ASEAN, and The Security of Southeast Asia. International Relations of the Asia-Pacific, 6(1), 37–59. https://doi.org/10.1093/irap/lci125
ADMM Secretariat. (2023). ASEAN Defense Ministers' Meeting: Annual report 2023. ASEAN Secretariat.
AHA Centre. (2023). ASEAN Disaster Monitoring and Response System: Annual Report 2023. ASEAN Coordinating Centre for Humanitarian Assistance on Disaster Management.
Amable, D. S. (2022). Theorizing The Emergence of Security Regions: An Adaptation for the Regional Security Complex Theory. Global Studies Quarterly, 2(4), ksac065. https://doi.org/10.1093/isagsq/ksac065
Anwar, D. F. (2020). Indonesia and The ASEAN Outlook on the Indo-Pacific. International Affairs, 96(1), 111–129. https://doi.org/10.1093/ia/iiz223
ASEAN Secretariat. (2023). ASEAN statistical yearbook 2023. ASEAN Secretariat.
Ba, A. D. (2017). ASEAN and The Changing Regional Order: The ARF, ADMM, and ADMM-Plus. In M. Cook & D. Narine (Eds.), ASEAN@50: Building ASEAN Community: Political-Security and Socio-Cultural Reflections (Vol. 4, pp. 146–157). World Scientific Publishing.
Beach, D., & Pedersen, R. B. (2019). Process-Tracing Methods: Foundations and Guidelines (2nd ed.). University of Michigan Press.
Benecke, G., Schurink, W., & Roodt, G. (2007). Towards a Substantive Theory of Synergy. Journal of Human Resource Management, 5(2), 9–19. https://doi.org/10.4102/sajhrm.v5i2.123
Bland, B., Laksmana, E., & Kassam, N. (2021). Charting Their Own Course: How Indonesians See the World. Lowy Institute for International Policy.
Bungin, B. (2003). Analisis Data Penelitian Kualitatif: Pemahaman Filosofis dan Metodologis ke Arah Penguasaan Model Aplikasi. PT RajaGrafindo Persada.
Buzan, B. (1988). The Southeast Asian Security Complex. Contemporary Southeast Asia, 10(1), 1–16. https://www.jstor.org/stable/25797952
Buzan, B. (2003). Regional Security Complex Theory in the Post-Cold War World. In F. Söderbaum & T. M. Shaw (Eds.), Theories of New Regionalism (pp. 140–159). Palgrave Macmillan.
Buzan, B., & Wæver, O. (2003). Regions and Powers: The structure of international security. Cambridge University Press.
Caballero-Anthony, M. (2005). Regional security in Southeast Asia: Beyond the ASEAN Way. Institute of Southeast Asian Studies.
Chau, A. (2008). Security Community and Southeast Asia: Australia, the U.S., and ASEAN's counter-terror strategy. Asian Survey, 48(4), 626–649. https://doi.org/10.1525/as.2008.48.4.626
Chin, J. J., Skinner, K., & Yoo, C. (2023). Understanding National Security Strategies Through Time. Foreign Policy Analysis, 6(4), 103–124. https://doi.org/10.1093/fpa/orad012
Chye, T. S. (2016). Strengths and Weaknesses of the ADMM and ADMM-Plus. S. Rajaratnam School of International Studies.
Connelly, A. L. (2021). Sovereignty and The Sea: President Jokowi's Foreign Policy Challenges. Contemporary Southeast Asia, 43(2), 240–268. https://doi.org/10.1355/cs43-2d
Creswell, J. W. (2009). Research Design: Qualitative, Quantitative, and Mixed Methods Approaches (3rd ed.). SAGE Publications.
Drab, L. (2018). Defense Diplomacy: An Important Tool for the Implementation of Foreign Policy And The Security Of The State. Connections: The Quarterly Journal, 17(3), 47–58.
Emmers, R. (2009). Comprehensive Security and Resilience in Southeast Asia: ASEAN's approach to terrorism. The Pacific Review, 22(2), 159–177. https://doi.org/10.1080/09512740902815300
Goh, E. (2014). Southeast Asia's Evolving Security Relations and Strategies. In S. M. Pekkanen, J. Ravenhill, & R. Foot (Eds.), Oxford Handbook of The International Relations of Asia (pp. 441–460). Oxford University Press.
Haacke, J., & Williams, P. D. (2009). Regional Arrangements and Security Challenges: A Comparative Analysis (Working Paper No. 52). Crisis States Research Centre, London School of Economics.
Haryanto, A. (2014). Prinsip Bebas Aktif dalam Kebijakan Luar Negeri Indonesia: Perspektif Teori Peran. Jurnal Ilmu Politik dan Komunikasi, 4(11), 17–27.
Hsiung, J. C. (2004). Comprehensive Security: Challenge for Pacific Asia. In J. C. Hsiung (Ed.), Twenty-First Century World Order and the Asia Pacific: Value Change, Exigencies, and Power Realignment (pp. 265–284). Palgrave Macmillan.
Jati, I. (2014). Critical Perspective on ASEAN Security Community under ASEAN Political and Security Community. Unisia, 36(81), 135–141. https://doi.org/10.20885/unisia.vol36.iss81.art3
Jooste, C. J. (2002). A Strategic Approach to Human Resource Management In a Local Authority. Journal of Human Resource Management, 1(1), 1–6.
Kasmad, R. (2018). Studi Implementasi Kebijakan Publik. Kedalaksara.
Liaw, J. O. H., Ibrahim, N., & Yacob, K. (2024). Comprehensive Defense as a Concept: The Defense White Paper's Whole-of-Government Approaches. Journal of Harbin Engineering University, 45(3), 622–629. https://doi.org/10.1016/j.jheu.2024.03.018
Lincoln, Y. S., & Guba, E. G. (1985). Naturalistic inquiry. SAGE Publications.
Mahoney, J., & Thelen, K. (2010). A theory of Gradual Institutional Change. In J. Mahoney & K. Thelen (Eds.), Explaining Institutional Change: Ambiguity, Agency, and Power (pp. 1–37). Cambridge University Press.
Malik, P. J., Iskandar, A., Bangkara, A., & Mursalin, A. (2022). Understanding the government's strategy in public policy making in the era of multicrisis in Indonesia: A Study of public policy analysis. Budapest International Research and Critics Institute-Journal (BIRCI-Journal), 5(3), 21493–21503. https://doi.org/10.33258/birci.v5i3.6166
Minnich, J. M., Kevany, S., Agee, R. C., Fox, E. J., Allen, E., Siekiera, J., & Rai, D. (2025). The Indo-Pacific Mosaic: Comprehensive Security Cooperation In The Indo-Pacific. U.S. Army War College Press.
Moleong, L. J. (2017). Metode penelitian kualitatif (Edisi revisi). PT Remaja Rosdakarya.
Morgan, P. M. (2003). National and International Security: Theory Then, Theory Now. Asian Journal of Political Science, 11(2), 58–74. https://doi.org/10.1080/02185370308434227
Muladi. (2007). Konsep Comprehensive Security dan Ketahanan Nasional. Jurnal Ketahanan Nasional, 12(3), 1–25.
Murfi, Y., & Brantas, S. G. (2024). Sishankamrata: Analisis Komprehensif Sistem Pertahanan dan Keamanan Indonesia Terpadu dalam Perspektif Sejarah (Vol. 3). Indonesia Defense University Press.
Murphy, A. M. (2017). Great Power Rivalries, Domestic Politics, and Southeast Asian Foreign Policy: Exploring The Linkages. Asian Security, 13(3), 165–182. https://doi.org/10.1080/14799855.2017.1354566
Muzakki, F. (2017). Theory, practice, and analysis of Indonesia's foreign policy. Jurnal Translitera Edisi Khusus: Indonesia's Foreign Policy, 1–15.
Peraturan Presiden Republik Indonesia Nomor 97 Tahun 2020 tentang Kebijakan Umum Pertahanan Negara Tahun 2020-2024 [Presidential Regulation of the Republic of Indonesia Number 97 of 2020 concerning General National Defense Policy 2020-2024]. Sekretariat Negara.
Prayitno, A., Rudiyanto, & Sutrisno, E. (2024). The Implementation Of National Defense Policy: Understanding the Concept in The Millennial Era. Journal of Law and Sustainable Development, 12(1), e2353. https://doi.org/10.55908/sdgs.v12i1.2353
Prezelj, I. (2015). Comprehensive Security and Some Implemental Limits. Information & Security: An International Journal, 33(1–2), 13–34. https://doi.org/10.11610/isij.3301
Räisänen, H., Hakala, E., Eronen, J. T., Hukkinen, J. I., & Virtanen, M. J. (2021). Comprehensive Security: The Opportunities and Challenges of Incorporating Environmental Threats in Security Policy. Politics and Governance, 9(4), 91–101. https://doi.org/10.17645/pag.v9i4.4389
RSIS. (2015). The future of the ADMM/ADMM-Plus and Defense Diplomacy in the Asia Pacific (Conference Report). S. Rajaratnam School of International Studies, Nanyang Technological University.
Sabatier, P., & Mazmanian, D. (1979). The Conditions of Effective Implementation: A Guide to Accomplishing Policy Objectives. Policy Analysis, 5(4), 481–504. https://www.jstor.org/stable/42783358
Sarjito, A. (2024). Enhancing national security: Strategic Policy Development in Defense Management. Jurnal Pelita Nusantara, 2(1), 56–68. https://doi.org/10.59996/jurnalpelitanusantara.v2i1.524
Scott, D. (2019). Indonesia Grapples With the Indo-Pacific: Outreach, Strategic Discourse, and Diplomacy. Journal of Current Southeast Asian Affairs, 38(2), 194–217. https://doi.org/10.1177/1868103419843393
Seraw, W., & Lu, X. (2020). Review of Concepts and Theoretical Approaches of Policy Implementation. International Journal of Academic Multidisciplinary Research (IJAMR), 4(10), 113–118.
Shiddiqy, M. A. A., Lugo, D. S., & Novarizal, R. (2024). Regional Security Complex (RSC) in the Security Complexity of the Southeast Asia Region. International Journal of Religion, 5(11), 1244–1253. https://doi.org/10.61707/zy74jy81
Shobri, T., Yusgiantoro, P., Navalino, D. A., & Sutanto. (2024). Implementation of National Defense Policy: Management of Indonesia's Reserve Components. Jurnal Kebijakan Pemerintahan, 7(2), 1–13. https://doi.org/10.33701/jkp.v7i2.4594
Simatupang, H. Y., & Panggabean, M. R. (2022). The Implementation of Indonesia's Free and Active Foreign Policy Over The Russia-Ukraine War During Indonesia's G20 Presidency. In Proceedings of the International Conference on Sustainable Innovation on Humanities, Education, and Social Sciences (ICOSI-HESS 2022) (pp. 590–602). Atlantis Press SARL. https://doi.org/10.2991/978-2-494069-65-7_49
Stern, E. (1995). Bringing The Environment in: The Case for Comprehensive Security. Cooperation and Conflict, 30(3), 211–237. https://doi.org/10.1177/0010836795030003001
Sudirman, A. (2017). Regional Security Complex in ASEAN: Neutrality and Centrality at Brink in The South China Sea issue. Journal of Indonesian Social Sciences and Humanities, 7(1), 43–54. https://doi.org/10.14203/jissh.v7i1.48
Sugiyono. (2016). Metode Penelitian Kuantitatif, Kualitatif, dan R&D. Bandung: Alfabeta.
Sulistyani, Y. A. (2018). State Defense Implementation Strategy To Improve The Nation's Ideology Resilience. Wira: Jurnal Penelitian Pertahanan, 7(1), 59–74.
Syarifuddin, K. F. (2021). Sinergitas Kelembagaan dalam Implementasi Kebijakan Kerjasama Pertahanan Guna Membangun Keamanan Komprehensif di Kawasan Asia Tenggara [Institutional Synergy In The Implementation of Defense Cooperation Policy To Build Comprehensive Security In Southeast Asia] [Master's thesis, Indonesia Defense University]. Indonesia Defense University Repository.
Tan, S. S. (2020). Consigned to Hedge: South-East Asia and America's 'free and open Indo-Pacific' Strategy. International Affairs, 96(1), 131–148. https://doi.org/10.1093/ia/iiz Ces246
Task Force, ADMM-Plus. (2024). ADMM and ADMM-Plus 2024: ASEAN's blueprint for a secure and resilient region. ASEAN Defense Ministers' Meeting Secretariat.
Teo, S. (2023). The Future of ADMM-Plus in the Indo-Pacific. S. Rajaratnam School of International Studies Commentary No. 135.
Umar, A. R. M. (2023). The Rise of the Asian Middle Powers: Indonesia's Conceptions Of International Order. International Affairs, 99(4), 1459–1476. https://doi.org/10.1093/ia/iiad167
Yin, R. K. (2003). Case Study Research: Design and Methods (3rd ed.). SAGE Publications.
Downloads
Published
How to Cite
Issue
Section
Citation Check
License
Proposed Policy for Journals That Offer Open Access. Authors who publish with this journal agree to the following terms:
The copyright of articles accepted for publication is assigned to the Jurnal Pertahanan: Media Informasi tentang Kajian dan Strategi Pertahanan yang Mengedepankan Identity, Nasionalism dan Integrity and Indonesia Defense University (Universitas Pertahanan) as publishers of the journal. The intended copyright includes the rights to publish articles in various forms (including reprints).
Jurnal Pertahanan: Media Informasi tentang Kajian dan Strategi Pertahanan yang Mengedepankan Identity, Nasionalism dan Integrity keep the rights to articles that have been published. Authors are permitted to disseminate published article by sharing the DOI Number or the link of our journal's website. Authors are allowed to use their works for any purposes deemed necessary without written permission from our journal and/or Indonesia Defense University (Universitas Pertahanan) with an acknowledgement of initial publication in this journal.
