A very difficult relationship: living with Indonesia

The relationship between Australia and Indonesia is a complex and fragile one between two very different societies, and requires a continuing and special effort to sustain. The Government should avoid creating unnecessary misunderstandings and concerns, as it has sometimes done in the past, usually for domestic political reasons.

The meeting between John Howard and President Yudhoyono on Batam Island on June 28 restored a measure of cordiality at the head-of-government level. We should, however, rely less on personal relationships between heads of governments and certain ministers, which can mask important cultural and policy differences.

John Howard himself said in a moment of frankness and without “spin” on June 16 that “it is a very difficult relationship”. We need, therefore, to build a wider convergence of policies at the government level and, at the public level, a deeper and more general mutual understanding. Neither will be easy.

It is imperative to change perceptions of Australia in Indonesia, and perceptions of Indonesia in the wider Australian community.

The Government could take four steps: first, it should ensure adequate funding for programs to increase language studies and people-to-people contacts in both directions - between elected members of the Australian and Indonesian parliaments, and between academics, youth leaders, writers, journalists, moderate religious figures, and other groups. This will help increase each country’s knowledge of the other, and break down ignorance and prejudice.

Second, we should consult more closely on important policy decisions, which can impact on either country.

Third, Australia and Indonesia should work towards expanding defence cooperation through wider exchange programs, and by reinstating, with Indonesian support, the 1995 Agreement on Mutual Security or some similar arrangement.

Fourth, in addition to working to strengthen our bilateral relations, we should continue to consult and cooperate with Indonesia whenever possible in multilateral forums such as the United Nations, the Post Ministerial Forum of the Association of South East Asian Nations (ASEAN), future East Asian summits, the ASEAN Regional Forum, the Asia Pacific Economic Cooperation meetings, the WTO and the Cairns Group.

Even when we have different policies it is helpful to ensure that both sides understand the reasons for the differences.

Indonesia faces complex problems that most Australians cannot be expected to comprehend fully. Conversely, Australia enjoys a lifestyle that most Indonesians can only imagine.

Neither side should shrink from seeking to build bridges between our very different societies: rather it is a national objective that should be seen as an exciting and worthwhile challenge. If we succeed, both Australia and Indonesia will benefit.

Official diplomacy must operate in the world as it is, not as it should be. There will always be tensions between principle and morality on the one hand and expediency and the constraints imposed by existing realities on the other. Often in foreign policy, decisions have to reflect an appropriate balance between conflicting interests.