Indonesia’s Peacekeeping Missions under the United Nations, known as the Garuda Contingent (KONGA), stand as a significant instrument in the Indonesian government’s foreign policy arsenal. Currently, this program operates on a considerable scale, with over 2,700 Indonesian peacekeepers deployed in various UN missions. This contribution earned Indonesia the 8th rank among the largest contributors of peacekeepers to the UN in 2023. However, a critical analysis is still needed to assess the effectiveness of these Indonesian missions specifically and UN peacekeeping activities in general. This essay will explore four key themes which is the historical evolution of Indonesia’s peacekeeping efforts, their politicization, an assessment of effectiveness, and concluding reflections on future challenges for the KONGA.
History of the KONGA Missions
During the authoritarian New Order era, Indonesia’s peacekeeping missions saw a return to active deployments starting in the 1990s. This period featured significant assignments such as those in Bosnia from 1992–1995 and Cambodia from 1992–1993. Following the democratic Reforms era, the administrations of President Susilo Bambang Yudhoyono and President Joko Widodo were instrumental in expanding and broadening this program, progressively increasing personnel numbers and establishing a permanent base known as the Indonesian Armed Forces (TNA) Peacekeeping Center (PMPP TNA) located in Sent, West Java. The TNA institution itself embraced its increasingly significant role as this program developed in the post-Reforms era. Successful KONG mission deployments, such as the notable contributions in Lebanon, have effectively enhanced the TNA’s reputation both internationally and domestically, aligning well with the military’s institutional interests.
Following this brief review of the program’s historical trajectory across different administrations, this essay will now turn to discuss some of the potential benefits from its existence. The first benefit is that Indonesian peacekeepers have actively contributed to public diplomacy efforts. They have introduced various aspects of Indonesian culture within their mission areas through initiatives such as organizing art performances and promoting distinct Indonesian cuisine.
On the institutional front, Indonesia’s substantial contributions to UN peacekeeping have translated into heightened influence within multilateral forums. The country’s role as a top troop-contributing nation played a pivotal role in securing a non-permanent seat on the UN Security Council for the 2019–2020 term. This position not only amplified Indonesia’s voice on global security issues but also provided a platform to advocate for the interests of the Global South.
Equally, noteworthy is the spillover effect on Indonesia’s defense industry. Peacekeeping missions have served as a testing ground and showcase for domestically manufactured equipment. The ‘Anna 6 × 6’ armored vehicle, produced by state-owned defense company PT Pindar, stands as a prime example. First deployed in Lebanon in 2006, the Anna garnered international attention for its performance in rugged terrains, effectively becoming a billboard for Indonesia’s growing defense-industrial capabilities
Politicization of the KONGA Missions
Behind the outlined benefits of Indonesia’s peacekeeping missions lie hidden agendas that warrant scrutiny. According to Hairpin, the development of this program is closely linked to politicization by the Indonesian Armed Forces (TNA), which serves as the implementing institution. One prominent form of this politicization is the utilization of KONGA Missions as an effort to rehabilitate the TNA’s relationship with the United States, which had deteriorated significantly following the East Timor case. These efforts culminated in joint military exercises in 2014, signaling restored ties.
Haripin further observes that the program also functions as a political justification for the TNA to maintain the territorial command policy, a legacy inherited from the New Order era. Criticism directed at the territorial command is often countered with the argument that this policy is essential for cultivating civilian-military interaction skills, deemed important for peacekeepers. Additionally, Sambhi notes that the positive publicity generated by the program appears biased towards the Indonesian Army (TNA AD). This bias is attributed to the fact that the majority of personnel are officers from the Army branch, contributing to the perpetuation of the Army’s doctrinal dominance within the overall TNA institution. Such dynamics underscore how peacekeeping missions, while framed as global contributions, simultaneously advance institutional and political interests within Indonesia’s military establishment.
Assessing the Effectiveness of Peacekeeping Efforts
Furthermore, this essay will analyze the effectiveness of UN Peacekeeping Missions in general, drawing upon three relevant academic literatures. The first, a study by Di Salvatore and Ruggeri, finds that Peacekeeping Missions can, unexpectedly, have negative spillover effects such as the displacement of refugees and an increase in terror activities within mission territories. This is attributed to the fact that peacekeeping interventions often fail to address the underlying social conditions that fuel the high risk of conflict.
In the second literature, Hultman finds that deploying a larger number of UN peacekeepers has indeed reduced the intensity of violence in civil war contexts. However, this positive effect appears to be, unfortunately, only applies in the short-term. The third literature, by Klobucista and Ferragamo, highlights various significant weaknesses of the program, including instances where peacekeepers have failed to adequately protect civilians from violence and underscoring the relatively high cost associated with Peacekeeping Missions. Collectively, these literatures suggest that many aspects of how UN Peacekeeping operations are planned and executed still require significant improvement to enhance their overall effectiveness on the ground.
However, recent events underscore that despite inherent challenges, UN peacekeeping forces can become indispensable in rapidly deteriorating security environments. The United Nations Interim Force in Lebanon (UNIFIL), established in 1978 to confirm Israeli withdrawal and restore peace and security, has seen its mandate and presence thrust back into critical focus since the events of October 7th, 2023. Following the dramatic escalation of the Israel-Palestine crisis, the border region between Lebanon and Israel experienced a significant surge in hostilities. Exchanges of fire between the Israeli military and Hezbollah, along with other non-state armed actors in South Lebanon, intensified dramatically, marking the most serious cross-border violence since 2006.
For Indonesia, a leading contributor with 1,150 personnel in UNIFIL, the mission offers both prestige and peril. While Indonesian troops have earned praise for de-mining operations and medical aid, their proximity to Hezbollah strongholds exposes them to growing risks. In March 2024, an Indonesian peacekeeper was injured in shelling near Naqoura—a stark reminder of the mission’s precariousness. UNIFIL’s patrols currently document near-daily violations of the Blue Line, including drone incursions and artillery exchanges, while coordinating evacuation routes for civilians trapped in conflict zones. Crucially, the force has acted as a communication channel between Israel and Lebanon, with both having no diplomatic relations, to prevent accidental escalation.
In this volatile climate, UNIFIL’s role has become increasingly more important. Operating as a crucial buffer between heavily armed actors, its presence is vital in preventing miscalculation and unintended escalation. Their patrols and observation posts monitor violations of the cessation of hostilities, providing impartial reporting that is essential for international understanding and diplomatic efforts. While operating under immense risk, with several incidents directly affecting peacekeepers, including Indonesian casualties, UNIFIL’s continued presence symbolizes international commitment to stability in this region. Its operations, therefore, highlight the critical function peacekeeping can serve in crisis management and conflict prevention, even when faced with profound political and military challenges.
Conclusion
Currently, there are no clear or empirical indicators to definitively measure the overall success of Indonesia’s KONGA Missions at the UN. Initial analysis suggests that, in general, UN Peacekeeping operations achieve varying degrees of success. In the specific context of Indonesia, this essay argues that the program warrants reevaluation due to its susceptibility to politicization and the emergence of contemporary challenges ranging from the imperative of equal gender representation within contingents to the risks of war escalation in recent regional conflicts. Despite this, the escalation of the Israel-Palestine crisis presented the vital role of UN peacekeeping, which Indonesia could play a key role in the future.
