INDONESIA AND CENSORSHIP

From the beginning of its reign in 1966 to its fall in 1998, New Order regime had banned over 2,000 books. Under its censorship law, all works, which, in the view of the Attorney General, “could disturb public order”, are subject to censorship. Under this law, hundreds of novels, historical studies, religious tracts, and books on political and social controversies have been banned, including scholarly works on subjects from early twentieth century social movement, to liberation theology, to the rise of Asia as a center of global capitalism.


The broad censorship practiced by the Soeharto government has had a direct impact on scholarship and the academic community. The Indonesian National Library keeps copies of banned books, but such books are inaccessible without the prior approval of security authorities. Researchers and students are, in principle, able to apply for permission to use such books for academic study, but in practice they must obtain prior permission from the State Intelligence Coordinating Body (Badan Koordinasi Intelijen Negara or Bakin), the Coordinating Agency for the Maintenance of National Stability (Badan Koordinasi Bantuan Pemantapan Stabilitas Nasional or Bakorstanas), and the attorney general’s office. These authorities have untrammeled discretion to delay or refuse to issue permits for use of the books. Because of the permit requirements, the National Library is often forced to deny permission to students and others. Although many academics and intellectuals keep copies of banned books and there is an active market in photocopies of such works, they are rarely used in classrooms except by the most critical and fearless lecturers. References to banned works are absent from the works of all but a handful of scholars because publications of studies based on such sources could damage their career.

Book censorship in Indonesia did not begin with the New Order. In 1963, President Sukarno issued a decree, PP no.4/1963, requiring publishers to submit copies of all books to their local prosecutor’s office within forty-eight hours of publication. The decree vested the attorney general with broad power to criminalize possession and seize all copies of works which “could disturb public order [and] have a negative influence on efforts to achieve the goals of the [Indonesian] Revolution.” Within a month of the coup attempt, writers who belonged to the Indonesian Communist Party or its affiliates used this decree to ban all works. In 1969, the Soeharto government enacted the decree into law and subsequently built up a bureaucratic infrastructure to implement the law.

During the 1970s and 1980s, most censorship decisions were initiated by one of the New Order security and intelligence bodies. In October 1989, a “clearinghouse” was formed to study the contents of books and make censorship recommendations directly to the attorney general. The clearinghouse is composed of nineteen members, including representatives of the attorney general’s office and all of the leading intelligence agencies in the country, including the State Intelligence Coordinating Body (Badan Koordinasi Intelijen Negara or Bakin), the Coordinating Agency for the Maintenance of National Stability (Badan Koordinasi Bantuan Pemantapan Stabilitas Nasional or Bakorstanas), and the Armed Forces Intelligence Agency (Badan Inteligen ABRI or BIA), together with representatives from the ministries of information, education, and religion. Since early 1990s, the attorney general on the advice of the clearinghouse makes most censorship decisions.

A wide range of works is subject to censorship. In 1996, the Jakarta daily Kompas listed criteria used by the government in making censorship decisions. Works subject to censorship include those which: conflict with the state ideology or national constitution; contain Marxist-Leninist teachings or interpretations; destroy public faith in government leaders; are pornographic; are atheistic or insult a religion recognized in Indonesia; undermine national development; lead to ethnic, religious racial or inter-group conflict; or undermine national unity. Because there is no provision in the law for compensation for those whose books are seized, publishers and bookstores that carry controversial works take a substantial financial risk. Because banning also criminalizes possession, it can also be used to keep critics on the defensive. A prominent example occurred in 1989 when three students were arrested, convicted of subversion, and sentenced to jail terms ranging from seven to eight and a half years for, among other things, possessing and attempting to distribute copies of Pramoedya Ananta Toer’s banned novels on the rise of Indonesian nationalism.

A study of the impact of the government’s censorship on scholarly inquiry has not yet been undertaken, but previous works have noted the impact of the policy on the availability of social science texts, poetry and fiction, commentary on and analysis of contemporary political controversies, and alleged government abuses. Because Marxist-Leninist teachings are banned, professors in the social sciences can be subject to harassment. In 1988, for example, Dr. Arief Budiman, a sociologist at Satya Wacana Christian University was accused by a university alumni group of teaching Marxism to students, and the complaint was forwarded to the regional armed forces headquarters (Korem). Dr. Budiman argued that someone couldn’t know if someone else a Marxist if that person did not know what Marxism is and he taught Marxism in his class because it was part of the theoretical and ideological study of development.

Virtually all works by authors alleged to have been communists or communist sympathizers continue to be banned, whether those works were written before or after the 1965 coup attempt. Prominent among such authors is Pramoedya Ananta Toer, Indonesia’s best-known novelist. More than twenty works of fiction, a memoir, and a number of significant historical studies by Pramoedya, including works on the Chinese in Indonesia and on important historical figures Tirto Adhi Suriyo and Kartini, are banned. Even his edited edition of one of Indonesia’s first novels, Hikayat Siti Marijah, by Haji Mukti, is banned on the ground that the novel emphasizes “social contradictions.” Students who wish to write their theses on Pramoedya’s works have been denied permission to do so by their advisors and university administrators. Pramoedya is accused by his critics in Indonesian literary circles of having denigrated and subjected other writers to abuse when he headed the literary section of the leftist cultural organization Lekra (Lembaga Kebudayaan Rakyat or Institute of Peoples’ Culture) in the 1950s and early 1960s. Pramoedya was jailed for fourteen years after the 1965 coup attempt as a suspected communist based on his work for Lekra. None of these claims justify the continued censorship of his writings. Pramoedya is a prolific and respected author, and his works represent a gold mine for literary and cultural critics that were all but lost to the scholarly community as a result of the arbitrary censorship practices of the New Order government.

Publications in Chinese have been banned altogether. As described above, ethnic Chinese were made the subject of de jure as well as de facto government discrimination following the 1965 coup attempt, amid allegations that the coup plotters received support directly from Beijing through Chinese-Indonesian intermediaries. All Chinese-language schools were closed permanently in 1966. Because the closures were carried out almost overnight, many students lost the ability to continue their education. In late 1978 and 1979, a series of government decrees formally banned all imports of goods with Chinese characters, and forbade use of Chinese characters in all publications and circulation of any Chinese-language printed matter, absent the express consent of the authorities, with the exception of a government-run newspaper. Again, although there was an exception in the regulations for academic study of Chinese-language materials, the ban has had devastating consequences for the development of scholarship on China in Indonesia, and has all but closed off discussion of the status of the Chinese-Indonesian community and its role in early Indonesian history.

Historical studies have been a leading target of the censors. In almost every case, the rationale for censorship contained in the attorney general’s censorship decision is that the offending work “inverts the facts” which could “lead the public astray” and ultimately “disturb public order.” Censorship thus presupposes an official history. In at least one case, this was made explicit. In 1990, the attorney general banned Permesta: Kandasnya Sebuah Cita-Cita (Permesta, the End of Hope), by KML Tobing, an account of the Permesta Rebellion in Sulawesi during the late 1950s. According to the censorship decree, the book was banned because it “contains analyses that conflict with the work Cuplikan Sejarah Perjuangan TNI Angkatan Darat (Aspects of the History of Struggle of the National Army),” a work published by the Armed Forces.
As these censorship cases in Indonesia demonstrate, censorship played an important role in defining New Order ideological orthodoxy and frequently was used as a weapon against political opponents. Academics, students, and scholarship itself suffered as a result.