p–ISSN: 2723 - 6609 e-ISSN: 2745-5254

Vol. 5, No. 5 May 2024 http://jist.publikasiindonesia.id/

Jurnal Indonesia Sosial Teknologi, Vol. 5, No. 5, May 2024 2054

Implementation of Collaborative Governance in Countering

Terrorism in Indonesia

Muhammad Syauqi Khudzaifi

, Petrus Polyando

, Frans Dione

Institut Pemerintahan Dalam Negeri Jakarta, Indonesia

Email: [email protected]

, [email protected]

[email protected]

*Correspondence

ABSTRACT

Keywords: Global Threat,

Collaborative

Governance, Terrorism.

Terrorism is one of the global threats that can affect

Indonesia's social, political, and economic stability.

Currently, terrorism has been categorized as an

extraordinary crime that requires extraordinary efforts from

various parties to counter it. This research examines and

describes the collaboration process built into countering

terrorism in Indonesia. This research uses a descriptive

qualitative method with six informants as research subjects.

The results show that implementing collaborative

governance to counter-terrorism in Indonesia has been

running well and involves many parties. However, in the

context of the stages of the implementation of collaboration,

there are still obstacles. The motivational factor of the parties

involved in counterterrorism is enough to influence the

imbalance of resources and knowledge among collaborative

actors. Different perceptions in addressing the issue of

terrorism have caused the starting conditions in the

implementation of collaboration not to work correctly. This

affects the commitment between collaboration actors and the

consistency in running various terrorism prevention

programs. In addition, the lack of solid regulations

governing BNPT's role as coordinator in terrorism

prevention causes obstacles in the synergy process.

Collaboration has been implemented in terms of quantity,

but in terms of quality, there are still things that are not

optimal.

Introduction

The development of radical groups that lead to acts of terrorism has become a

national and international security issue. Terrorism is one of the global threats that affect

national and international economic stability because it causes an atmosphere of

widespread terror in society (Reksoprodjo et al., 2018). Radicalism in Indonesia poses a

significant threat to the resilience of state ideology. Information disclosure is the cause of

the development of radicalism, which was once clandestine and is now carried out

Implementation Of Collaborative Governance In Countering Terrorism In Indonesia

Jurnal Indonesia Sosial Teknologi, Vol. 5, No. 5, May 2024 2055

blatantly (Adikara et al., 2021). The pattern of spreading the radical ideology of terrorism

has also begun to undergo changes, which initially from kinship/kinship relationships

have now changed by utilizing technology to spread it.

The report of the results of the UN high-level panel in 2004 entitled "Threats,

Challenges, and Change, stated that in the 21st century, there are 6 (six) threat clusters,

namely social and economic threats (poverty and environmental damage); conflicts

between states; conflicts within states (civil wars, genocides, and other large-scale

criminal events); the threat of nuclear, radiological, chemical and biological weapons;

terrorism; and transnational organized crime. Based on the UN report, terrorism is one of

the threats that Indonesia needs to be aware of. The phenomenon of terrorism can threaten

the state, public, and human security (United et al., 2004).

Terrorism has been categorized as an extraordinary crime, so it requires

multistakeholder cooperation to overcome. The problem of terrorism has become a

particular concern for the international community, including the Indonesian government.

Terrorism severely threatens peace and security and legal, social, and economic

development (Adnan & Amaliyah, 2021).

The pattern and targets of terrorist attacks in Indonesia have also transformed.

Initially, terrorist attacks were carried out with careful planning and focused on attacking

Western symbols such as embassies and foreign nationals. However, now there is a shift

in the pattern of targets of terrorism attacks that are more varied by attacking other targets

such as police stations, places of worship, government offices, and other public spaces

through a single action using suicide bombings or other methods (Nur et al., 2020).

Research from the Indonesian Laboratory 2045 research institute also states that

the majority of terror perpetrators tend to carry out actions by bombing, with the main

targets being individuals / personal assets, religious figures/places, and police officers.

(Fahmi, 2022). The following are the targets of terrorist acts in Indonesia from 2002 to

2021.

Figure 1

Target of Terrorist Attacks in 2000-2021

Tokoh/Tempa

t Religius;

15%

Individu/Aset

Pribadi; 24%

Polisi; 17%

Paramiliter;

Ruang/Tokoh

Publik

lainnya; 6%

Militer; 7%

Media; 2%

Pemerintahan

; 8%

Misi

Diplomatik;

Pariwisata;

13%

Transportasi;

Data tidak

lengkap; 2%

Muhammad Syauqi Khudzaifi, Petrus Polyando, Frans Dione

Jurnal Indonesia Sosial Teknologi, Vol. 5, No. 5, May 2024 2056

Based on the figure above, it shows that the highest target of terrorist attacks from

2000-2021 was to attack individuals/personal assets by 24%. The second highest target

was the police at 17%. Religious figures/places are the third highest target at 15%,

followed by tourism places, government offices, and other public spaces / public figures.

This shows that terrorism is still a strategic issue that has not found an optimal solution

in overcoming it because it is still happening in Indonesia.

The Government of the Republic of Indonesia and the House of Representatives

have also enacted and passed Law Number 5 of 2018 concerning the Eradication of

Criminal Acts of Terrorism as one of the efforts to strengthen the implementation of

counterterrorism policies in Indonesia. Through the implementation of the Law, it is

hoped that counterterrorism can run well from upstream to downstream. Counterterrorism

is carried out by strengthening regulations and synergy in implementing various efforts

to prevent, protect, deradicalize, and crack down on perpetrators of criminal acts of

terrorism.

Based on various challenges in dealing with the growing potential threat of

terrorism and the absence of solid synergy between stakeholders in countering terrorism,

the author will conduct research titled "Application of Collaborative Governance in

Counterterrorism in Indonesia." The results of the analysis of the implementation of this

policy are expected to be an alternative in policy formulation, significantly increasing

synergy and multistakeholder collaboration to maximize the entire nation's potential in

counter-terrorism efforts according to the duties and functions of each party. The above

significantly impacts BNPT's operational activities as an institution mandated coordinator

in countering radicalism and terrorism in Indonesia.

Previous research in a journal entitled Analysis of Yogyakarta Special Region

Police Strategy in Tackling Terrorism (Saputra, 2021). The focus of his research shows

that the DIY Regional Police, in counterterrorism management, has used a Penta helix

participation approach. The program formed by the DIY Regional Police is called Quick

Wins, where counterterrorism activities are carried out by ten work units at the DIY Police

level by involving the participation of 5 counterterrorism elements called Penta helix

consisting of elements of government, private, community, NGOs and

academics/terrorism researchers. This approach contains the intention that

countermeasures can be carried out effectively and efficiently. Ideally, with the

participation of various external parties in carrying out their duties to realize public

security and order (Kamtibmas), there will be no more radical acts and acts of terrorism

in DIY.

From the background and formulation of the problem above, it can be described the

objectives of the research as follows:

1. Describe the condition and efforts of the government in countering terrorism

2. Describe the application of collaborative governance in terrorism prevention in

Indonesia.

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Jurnal Indonesia Sosial Teknologi, Vol. 5, No. 5, May 2024 2057

Research Methods

In this study, the author used qualitative research methods with a descriptive

approach. According to (Murdiyanto, 2020), qualitative research is a type of research that

produces findings that cannot be achieved using statistical procedures or by other means

of quantification. Qualitative research is descriptive and tends to use an inductive

approach analysis by emphasizing the understanding of problems in social life based on

reality conditions or natural settings that are holistic, complex, and detailed. (Zuchri,

2021) also, qualitative research data is descriptive in words and images and not in

numbers obtained through in-depth interviews.

Location and Time of Research

The research will be carried out at the National Counterterrorism Agency as an

element of government and other stakeholders spread across Indonesia. It is planned to

take place between June 2023 and May 2024. Researchers limit the area to stakeholders

located in Jabodetabek.

Data sources

In this study, only two parts are needed, namely:

1. Person, a resource that usually provides data in the form of oral answers through

interviews or written answers through questionnaires.

2. Paper (symbol), a data source that presents signs in letters, numbers, images, or other

symbols. With this understanding, "paper" is not limited only to paper as translated

into English but can take the form of laws, regulations, or other supporting data

suitable for documentation methods.

The data sources of this study include two primary sources, namely:

1. Data Primer

Primary data is data obtained from sources without intermediaries. This data was

obtained through interviews with interested parties involved in counter-terrorism efforts.

2. Data Seconds

The secondary data used are various pieces of literature related to counterterrorism

strategies from journals, articles both printed and sourced from the internet, and some

previous research results related to this study, namely, on collaborative governance in

countering terrorism in Indonesia.

Data Validation Techniques

Data in qualitative research can be declared credible if there are similarities between

what the researcher reports and what happens to the object under study (Mekarisce, 2020).

The results of qualitative research require a credibility test that aims to prove that the data

obtained is valid and by the reality that occurs in the object of research. States that the

formulation of data validity examination concerns the criteria of the degree of trust,

transferability, dependability, and confirmability.

Data Analysis Techniques

The stages of research data analysis using theory (Engle, 2015) are:

1. Data Condensation

Muhammad Syauqi Khudzaifi, Petrus Polyando, Frans Dione

Jurnal Indonesia Sosial Teknologi, Vol. 5, No. 5, May 2024 2058

Data condensation refers to selecting, focusing, simplifying, abstracting, and

transforming data in field notes and transcripts.

2. Data Presentation (Data Display)

Data on the results of condensation activities are then presented based on the aspects

studied. Presenting data will help us understand what is happening and plan the next work

based on what we have understood.

3. Conclusion Drawing and verification

The third step in qualitative analysis is to draw conclusions and verify them. The

initial conclusions presented are provisional and will change if no substantial evidence

supports the following data collection stage.

Results and Discussion

The National Counterterrorism Agency (BNPT) is a Non-Ministerial Government

Institution (LPNK) located on Jalan Anyar No 12, Sukahati, Citeureup District, Bogor

Regency, West Java. This location was chosen based on several strategic considerations.

First, Sukahati is an area that balances accessibility and privacy. Located not far from the

capital, this area provides easy access for officers and staff while ensuring the operational

safety of the institution from external interference. Second, geographically, Sukahati is

on a relatively stable plain, with minimal risk of natural disasters, which is essential for

the continuity of operations of a security institution. Tropical climatic conditions with

predictable weather variations facilitate activity planning and logistics. In addition, the

surrounding environment, which is a blend of urban and rural areas, provides an

advantage in simulating various scenarios of handling terrorism. Third, security and

confidentiality factors are also significant considerations. BNPT's hidden yet easily

accessible location from the main line facilitates surveillance and reduces unexpected

risks. The presence of this agency in less densely populated areas reduces the risk to civil

society in terms of security.

Analysis of the Application of Collaborative Governance in Countering Terrorism

in Indonesia

In implementing collaborative strategies in terrorism prevention between BNPT

and related stakeholders, the author will provide an overview of the implementation of

collaborative governance, which will be described in four dimensions: starting conditions,

facilitative leadership, institutional design, and collaborative processes. Currently, the

collaboration process is at the core of this model. At the same time, the initial conditions,

institutional design, and facilitative leadership are supports that can make essential

contributions to the collaborative process.

This collaboration model was chosen because it describes in detail how the

collaboration process is cyclical. Researchers also use this theory because, before

cooperation in terrorism prevention in Indonesia, there were leadership activities, trust

between actors, mutual commitment, and institutional structures. This characterizes

collaborative practice. In addition, terrorism prevention in Indonesia has also involved

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Jurnal Indonesia Sosial Teknologi, Vol. 5, No. 5, May 2024 2059

cooperation between government and non-government, which characterizes collaborative

governance practices.

The implementation of collaborative governance in terrorism prevention in Indonesia has

involved various elements such as academics, business/business actors, civil society,

government, and media. Each stakeholder has roles and responsibilities according to their

capacity and capability. Synergy can accelerate various programs and policies, mainly to

prevent terrorism.

Resource and Knowledge Imbalance Between Collaboration Actors

The results of an interview with Mr. Bangbang Surono, the President and Secretary

of BNPT, regarding indicators of imbalance of resources and knowledge, stated that there

are still differences in perceptions between stakeholders such as elements of academia,

business actors, civil society, and the media in understanding the issue of terrorism.

Therefore, strengthening synergy between the government and relevant stakeholders must

continue to improve to equalize perceptions in the context of the fight against terrorism

ideology. Through synergy and collaboration with various parties, it is hoped that it can

build national resilience and campaign messages not to be tired of the fight against the

ideology of terrorism.

In an interview, Mr. Makmun Rasyid, one of the MUI administrators, also stated

that there are still differences in views from non-governmental organizations (NGOs)

regarding the issue of terrorism. Some NGOs are anti-terrorism because it is considered

to discredit Islam. In addition, there are still NGOs who consider that the spirit of

countering terrorism in the world causes certain people who have an interest in spreading

radical ideology to Indonesia (to seek sympathy).

The results of interviews with several informants indicate that there is an imbalance

of knowledge and resources, both human and financial, in addressing the problem of

terrorism in Indonesia. This is shown by the differences in perceptions/views from

stakeholders in addressing these problems, resulting in not making an optimal

contribution in the dimension of starting conditions in implementing collaborative

governance in countering terrorism in Indonesia.

The results of (Bakti et al., 2021) state that countering terrorism requires social and

cultural engineering to establish cooperation and synergy with all parties, especially the

younger generation, to prevent through counternarrative, counter ideology, and

counterpropaganda of terrorism in cyberspace. The community must be able to play an

active role in efforts to prevent radical acts of terrorism. (Reksoprodjo et al., 2018) They

stated that BNPT had established a Terrorism Prevention Coordination Forum (FKPT) in

the area, an extension and a BNPT think tank. This forum aims to synergize terrorism

prevention efforts involving all elements of society based on the use of local wisdom

values in the regions.

Constraints of Stakeholders to Collaborate (Conflict)

The results of an interview with Mr. Bangbang Surono, the President Secretary of

BNPT, regarding indicators of stakeholder constraints to collaborate (conflict) stated that

collaboration and coordination are easy to say but challenging to implement. For this

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Jurnal Indonesia Sosial Teknologi, Vol. 5, No. 5, May 2024 2060

reason, equalizing perceptions regarding terrorism prevention efforts and high

commitment from stakeholders can accelerate various policies and strategies that have

been set together. An apparent reference is needed to regulate the role of each interest

group for optimal collaboration. NAP PE can be one of the guidelines for various parties

ranging from relevant ministries/institutions to all elements of society when

implementing policies, especially in efforts to prevent terrorism in Indonesia. In addition,

it is necessary to support both human resources and budgets for each interest group so

that the implementation of collaboration can run well.

Institutional Design

Participation and transparency are needed in the institutional design dimension to

encourage collaborative processes. This dimension contains several indicators, including

the role and participation of stakeholders in collaborating, transparent collaboration

processes, and basic rules or regulations that support collaboration. The basic rules of

cooperation are mutually agreed upon by the parties, not just the agreement of one of the

parties. This aspect focuses on the clarity of rules and procedures. Rules must be enforced

fairly, transparently, and openly so that the parties can be assured that any discussion and

negotiation is pure and not just lip service to cover up a confidential agreement. The

explanation of each indicator will be described as follows:

Role and Participation of Stakeholders in Collaborating

The results of an interview with Mr. Bani Fajar regarding indicators of the role and

participation of stakeholders in collaborating stated that the role of business actors is to

help equalize perceptions in the community, especially to customers, help campaign for

terrorism prevention through socialization and various training. Security Service Business

Entities (BUJP) that have a role in securing the public sector can help virtualize various

policies made by BNPT.

Transparent Collaboration Process

On the transparency indicator in the collaboration process, Mr. Yaenurendra, as a

member of the NAP PE Secretary, said that collaboration transparency, in terms of

budget, activity programs, and target priorities, has been well implemented. However, not

all intelligence data can be accessed by all parties. This concerns the principle of

confidentiality of intelligence data.

In his interview, Mr. Makmun Rasyid, Deputy of Social and Political Issue CICSR,

also corroborated previous informants' opinions by mentioning that transparency in

preventive actions has been done well because all activities are published through the

media. However, data collaboration has not been carried out transparently because each

stakeholder still has differences in data. In addition, because there is no data collaboration,

it is difficult to find the delivery of ideas in the form of terrorism prevention programs

from the role of stakeholders carried out in a bottom-up manner. This can be done by

expanding aspiration absorption through more massive FGDs and workshops.

Collaboration Process

The collaboration process has three stages: problem determination, goal

determination, and implementation. Communication is at the heart of collaboration, so

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indicators that support the implementation of the collaboration process start from face-to-

face dialogue, build trust and commitment to the collaboration process, and share

understanding and interim results. The explanation of each indicator can be described as

follows;

a. Dialog Tatap Muka (Face-to-Face Dialogue)

In the face-to-face dialogue indicator, the results of an interview with Mr.

Yaenurendra as the RAN PE Secretary team showed that BNPT often carried out face-to-

face dialogues, gathering stakeholders either in a joint or separate forum. The enthusiasm

of the stakeholders has been outstanding, although driven by curiosity from each

stakeholder.

b. Building Trust

In the collaboration process, stakeholders can provide input and be accommodated

to little or little, reflected in a terrorism prevention program. Efforts to build trust between

stakeholders in collaborating are one indicator of a good collaboration process. In the

interview, Mr. Yaenurendra, a member of the Secretary of RAN PE, explained that in the

implementation of collaboration, other parties such as academics, CSOs, media, and

business actors (businesses) were involved in meetings in planning various terrorism

prevention programs. This shows the mutual trust of each interest group in implementing

policies, especially in preventing terrorism in Indonesia.

c. Commitment to the Collaboration Process

In the dimension of implementing collaboration, of course, high commitment is

needed from all parties involved so that the implementation of planned policies can be

carried out correctly. Academics and CSOs show the highest commitment. Commitment

can be conveyed orally and in writing. The commitment of interested parties is usually

marked by various regulations regulating each party's roles, duties, and authorities. For

example, the passing of dangerous goods control regulations used as precursors to

weapons of terrorism is reflected in the program (CBRN). In addition, BNPT has also

established the Nusantara Integrated Area (KTN). KTN is a soft approach that prioritizes

welfare by providing opportunities for deradicalization partners, survivors, and

communities to increase economic productivity. This sector supports the reintegration of

deradicalization partners towards economic independence. In the long run, KTN is

expected to prevent extremism and terrorism by changing the mindset to be more

moderate.

d. Sharing Understanding

Furthermore, related indicators of sharing understanding with all stakeholders in

efforts to prevent terrorism are shown by cooperation agreements involving various

parties. The results of the interview with Mr. Bani Fajar showed that there are business

actors or the private sector, namely PT Sigap Prima Astrea, willing to share understanding

regarding potential acts of terrorism in their work area. This can positively impact all

parties, especially by helping to prevent terrorism by strengthening the protection of

infrastructure facilities. The implementation of various trainings also shows the

strengthening of competence/certification for security units working in various objects so

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Jurnal Indonesia Sosial Teknologi, Vol. 5, No. 5, May 2024 2062

that the potential threat of criminal acts of terrorism can be mitigated quickly and

appropriately.

Several aspects found from the results of this study affect the application of

collaborative governance in countering terrorism in Indonesia, including the motivation

factors of the parties involved in countering terrorism, which immensely affect the

imbalance of resources and knowledge between collaborative actors. Differences in

perceptions when addressing the issue of terrorism result in the starting conditions in the

implementation of collaboration that cannot run as it should. Indicators of stakeholder

constraints to collaborate (conflict) have also not contributed optimally to implementing

collaborative governance to counter-terrorism in Indonesia. This is shown by the

difficulty in collaborating due to limited human and budget resources. Not all

stakeholders make the issue of terrorism prevention a significant concern in their business

processes, so the problem of lack of budget for counterterrorism efforts is often one of

the problems found.

The starting condition dimension shows that elements of society and the media are

less involved in formulating various terrorism prevention policies. The community is only

the object of program implementation without involvement in planning. Ideally, the

community should be directly involved in formulating these policies because the

community is more aware of the conditions or facts around their environmental areas.

Media elements are also rarely involved in various disseminations regarding procedures

for reporting arrests or incidents of acts of terrorism. This can affect public perception of

terrorism if delivering news in the media is wrong. Elements of society and the media

must be at the forefront of terrorism prevention programs. The government, in this case

BNPT, which functions as the leading sector in countering terrorism, must develop a

partnership strategy with the community. The role of the community is crucial so that

there is no turmoil in various regions.

In terms of institutional design, it has yielded quite good results. The ratification of

various regulations marks this and the signing of various memorandums of understanding

between BNPT and various stakeholders to combat and prevent terrorism. Since the

enactment of Law Number 5 of 2018 concerning the Eradication of Criminal Acts of

Terrorism, BNPT has the role and responsibility to coordinate various

ministries/agencies, local governments, and all elements of the nation to build national

resilience in the context of preventing criminal acts of terrorism in Indonesia. However,

there are still some indicators that need to be improved in terms of the quality of

implementation. For example, a clear division of roles and responsibilities of each

stakeholder as outlined in a basic rule or regulation such as MoUs and cooperation

agreements requires consistency and transparency in the collaboration process.

The aspect of facilitative leadership in counter-terrorism collaboration has been

well implemented. However, there are still several obstacles, such as the lack of solid

regulations governing the role of BNPT as a coordinator in terrorism prevention; the

BNPT organization is still very young at 13 years old, so sometimes there are still

obstacles in the synergy process, in the private sphere it is felt that it is still not involved

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in terrorism prevention because it has not become a significant concern. The collaboration

process has also shown quite good results. More substantial commitment and consistency

between stakeholders in collaboration are expected to be increased so that the

implementation of various terrorism prevention programs and policies can run optimally.

In this regard, better collaboration is needed from planning and implementation to

evaluation. The collaboration focuses on the involvement of all elements of society by

building and increasing awareness of potential threats of terrorism. This is important so

that the public is not affected by propaganda spread by networks of terrorist groups.

Increasing public insight and knowledge about the dangers of radical terrorism by

recognizing its characteristics, modus operandi, and impact is essential to building

community resilience. This is done by empowering the community. Community

empowerment to anticipate the threat of terrorism in Indonesia requires an operational

framework involving five essential elements: the government, academia, civil society,

business actors, and the media. The central government plays a vital role in determining

policies that will be used as guidelines by local governments and related agencies to

ensure the community environment is safe from the threat of terrorism. The role of

stakeholders is carried out through community empowerment, which is established in

cooperation and is called community partnership. In order to improve the effectiveness

of community empowerment, it is necessary to develop a working guideline that maps

the role of each party in empowering the community and preventing acts of terrorism in

Indonesia.

Conclusion

Based on the results of research that has been described in the previous chapter, the

conclusions of this study are as follows:

1. Generally, governance in countering terrorism in Indonesia has been carried out well

and systematically because there are regulations governing this matter, namely Law

Number 5 of 2018. These regulations can be a reference for Increasing Public

Awareness and Public Engagement and encouraging multistakeholder collaboration to

build public resilience to form prevention, deterrence, and resistance against the

dangers of violent ideologies, radicalism, and terrorism. The role of stakeholders is

carried out through community empowerment, which is established in cooperation and

is called community partnership.

2. The implementation of collaborative governance in countering terrorism in Indonesia

has been running well and involving many parties. However, in the context of the

stages of implementing collaboration, there are still differences in perceptions between

collaboration actors in addressing the issue of terrorism. This affects the commitment

between actors, collaboration, and consistency in various terrorism prevention

programs. In addition, the lack of solid regulations governing the role of BNPT as a

coordinator in terrorism prevention sometimes still causes obstacles in the synergy

process. In terms of quantity, many collaborations have been carried out, but in terms

of quality, there are still things that are not optimal. Early detection of potential acts of

Muhammad Syauqi Khudzaifi, Petrus Polyando, Frans Dione

Jurnal Indonesia Sosial Teknologi, Vol. 5, No. 5, May 2024 2064

terrorism can be done with the readiness of all elements/interest groups in early

detection and early prevention of all possible possibilities. The synergy between the

government and the public in preventing terrorism positively impacts creating a better

security situation in Indonesia.

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