Introduction: A New Political Order

In the wake of political turmoil and transition, Indonesia under President Suharto embarked on a profound restructuring of its political landscape. The period following Suharto’s rise to power was characterized by systematic efforts to control, weaken, and streamline political opposition, culminating in the landmark Party Simplification Law of January 10, 1973. This legislation fundamentally reshaped Indonesian democracy, merging nine existing parties into two new entities based on political ideology—marking a decisive step in the consolidation of the New Order regime. This article explores the historical context, implementation, and lasting impacts of this political reorganization, which redefined party politics in Indonesia for decades.

Historical Background: From Turmoil to Authoritarian Control

Suharto’s ascent to power followed a period of intense instability, including the alleged communist coup attempt of 1965 and the gradual sidelining of Indonesia’s first president, Sukarno. By the late 1960s, Suharto had effectively established military-backed authoritarian rule, seeking to stabilize the nation through economic development and tight political control. The political party system inherited from the Sukarno era was fragmented and often polarized, featuring nationalist, Islamic, Christian, and communist-aligned groups. Viewing this pluralism as a threat to stability and regime security, Suharto’s government moved to impose order through coercion, co-option, and legal restructuring.

A key instrument in this process was the elevation of Golkar . Originally a joint secretariat of functional groups, it was reorganized in 1971 into a political entity that served as the electoral vehicle for the regime. Backed by the military and state resources, Golkar was designed to dominate elections and ensure Suharto’s continued control. Against this backdrop, the Party Simplification Law was introduced to further neutralize opposition by forcing smaller parties into broad, manageable coalitions.

The Party Simplification Law of 1973

On January 10, 1973, the Indonesian government enacted the Party Simplification Law, which mandated the merger of all existing political parties into two new organizations based on ideological orientation. This move was justified officially as a measure to reduce political friction and promote national unity, but in practice, it served to dilute the influence of individual parties and bring them under state supervision.

The two new parties created were:
– The Indonesian Democratic Party , which brought together nationalist and non-Islamic groups.
– The Development Unity Party , which consolidated Islamic-oriented parties.

This restructuring left Golkar as the third—and dominant—political force, though it operated more as a regime organ than a conventional party. Together, these three entities formed the core of Indonesia’s electoral politics throughout the Suharto era.

The Indonesian Democratic Party: An Unwieldy Coalition

The PDI was formed through the merger of five non-Islamic parties, each with distinct historical roots and ideological leanings. This amalgamation included:

– The Indonesian National Party , founded by Sukarno on July 4, 1927. Its ideology, Marhaenism, was described by Sukarno as a form of Marxism adapted to Indonesian conditions. The party aimed to eliminate capitalism, imperialism, and colonialism, striving for an egalitarian society. It drew significant support from Central Java, East Java, and Jakarta.
– The Murba Party , established on October 3, 1948, by Tan Malaka, an early leader of the Indonesian Communist Party. It identified as a proletarian movement and merged several smaller leftist groups, advocating Marxism tailored to local realities.
– The Indonesian Independence Supporters Association , a nationalist group.
– The Indonesian Christian Party , formed on November 10, 1945, from regional Christian parties. It had a strong base in Christian-majority areas such as North Sumatra, North Sulawesi, East Nusa Tenggara, Maluku, and West Papua.
– The Catholic Party, established on December 12, 1945, evolving from pre-war Catholic political associations. It similarly drew support from Christian communities.

The PDI adopted a unified platform emphasizing Indonesian democracy, religious values, and social justice. However, internal cohesion was weak, as constituent parties retained their original ideologies and failed to integrate fully. This lack of unity made the PDI easier for the regime to manage but also limited its effectiveness as an opposition force.

The Development Unity Party: Islam as a Unifying Force

The PPP was created as a coalition of four Islamic parties, unified under the banner of Islamic political ideology. It emerged as the primary vehicle for Islamic political aspirations, especially after the banning of the Masyumi Party in 1960. The constituent parties were:

– Nahdlatul Ulama holding significant influence over its decisions.
– The other three Islamic parties, which brought together various streams of Muslim political thought.

The PPP initially used the Kaaba—the sacred structure in Mecca—as its electoral symbol, leveraging religious sentiment to mobilize voters. It framed political participation as a religious duty and presented itself as the unified representative of Indonesian Muslims. However, in 1984, under government pressure, the party adopted Pancasila as its sole ideological foundation and replaced the Kaaba with a star symbol, effectively diluting its Islamic identity. Internal divisions, leadership struggles, and state interference gradually weakened the PPP’s cohesion and electoral appeal.

Golkar: The Regime’s Political Machine

While the PDI and PPP were formed through forced mergers, Golkar operated as the regime’s electoral arm. Initially a coalition of functional groups, it was transformed in 1971 into a political organization backed by the military, civil service, and state resources. Golkar consistently won overwhelming majorities in elections through a combination of patronage, coercion, and control over the electoral process. It was less a political party in the traditional sense and more an instrument of Suharto’s authoritarian rule, ensuring the regime’s longevity and dominance.

Ideological Conformity: The Imposition of Pancasila

In August 1982, Suharto declared that all political parties must adopt Pancasila—the Indonesian state philosophy based on five principles: belief in one God, just and civilized humanity, national unity, democracy, and social justice—as their sole ideological foundation. This move was intended to further curb ideological opposition and promote a unified national identity. For the PPP, this meant abandoning its explicit Islamic platform, while the PDI and Golkar also formally aligned with state ideology. The policy reinforced the regime’s control but also sparked resistance, particularly among Islamic groups who viewed it as an imposition on religious identity.

Cultural and Social Impacts

The party simplification process had profound cultural and social ramifications. By reducing political diversity to three state-sanctioned options, the regime narrowed the scope of public discourse and marginalized alternative voices. Islamic political expression was particularly constrained, as the PPP’s adoption of Pancasila undermined its religious distinctiveness. Meanwhile, the PDI’s internal divisions reflected broader tensions between secular nationalism, Christianity, and leftist ideologies, which were suppressed rather than resolved.

Socially, the restructuring reinforced the regime’s authority by channeling political participation into controlled avenues. Golkar’s dominance ensured that state resources and patronage flowed to loyalists, while opposition parties struggled to maintain relevance. Religious and ethnic identities, though politically subdued, continued to influence voter behavior, particularly in regions with strong Islamic or Christian traditions.

Legacy and Modern Relevance

The legacy of Suharto’s party simplification endures in contemporary Indonesian politics. The forced mergers created a precedent for state intervention in party organizations, and the dominance of Golkar shaped a political culture centered on elite patronage and centralized control. After Suharto’s fall in 1998, Indonesia transitioned to a more democratic system, allowing a proliferation of political parties. However, many of these new parties trace their roots to the PDI, PPP, or Golkar, reflecting the enduring influence of the New Order’s political architecture.

The imposition of Pancasila as a unifying ideology remains a cornerstone of Indonesian political life, though it is now debated in a more open and pluralistic context. The tension between Islamic politics and secular nationalism—exemplified by the PPP’s evolution—continues to shape electoral dynamics and policy debates.

In conclusion, Suharto’s party simplification was not merely a administrative reorganization but a deliberate strategy to consolidate power, suppress dissent, and shape Indonesian political identity. Its effects reverberate through the institutions, ideologies, and conflicts of modern Indonesia, serving as a reminder of the enduring impact of authoritarian engineering on democratic development.