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The Role of Government on Sustainable Development

BUILDING CONVERGENCE OF ETHNICITY IN


THE UNITARY STATE OF THE REPUBLIC OF INDONESIA
Tomi Setiawan1

1
Center for Agrarian Policy Study, Padjadjaran University
Jl Raya Bandung-Sumedang Km.21. Jantinangor 45363, West Java, Indonesia
Email: tomi.setiawan@unpad.ac.id

Abstract. boundaries) (Furnivall, 2009). In a pluralistic


This paper is the result of a literature review to society the most prominent feature is the absence
examine ethnicity and threat of disintegration in of shared will at all. Cooperation is possible only
plural society. Plural society is a society on certain matters that are considered important
consisting of two or more communities and as well as defense against external aggression. In
groups that are culturally and economically the context of "country", a pluralistic society is
divided by having different institutional usually divided into several provincial
structures. The problem facing Indonesia as a confederations that unite with an agreement or a
pluralistic society is the relationship between the formal constitution that regulates agreed matters,
government or public administration system and and the rest of them live their own lives.
the existing ethnic groups. And the origin and The state have as a slogan ‗Bhinneka
continuity of ethnicity that includes ethnic Tunggal Ika‘ (see Box 1. for detail) reflects the
boundaries, the integration of ethnic populations, actual reality of the Indonesian people, that
and the institutional relations of ethnicity, are Indonesia is known as a plural society consisting
generally concerned with competition for power of approximately 7000 ethnic groups, where each
positions and economic resources. Building of ethnic group retains its ethnic and cultural
convergence in a plural society must be initiated identity, and covers its own ethnic territories.
by the consciousness of the ethnic groups of Members of each ethnic group live in relatively
pluralism itself. In plural society, the government homogeneous ethnic communities, with their own
has an important role to aid the develop justice cultural identity and territorial boundaries, which
and equality. At last, the government plays the are spread throughout the Indonesian archipelago.
main role as a source of unity, and provides a In his hometown, local ethnicity or indigenous
focus for the common life of the whole community culture is dominant, which serves as a reference
through various public policies. system in selectively guiding the members of the
Keywords: convergence; ethnicity; role of community in carrying out their daily activities,
government. as well as how they perceive their surroundings,
where they are a small part of it.
1. INTRODUCTION In the past, mixing of different ethnic
Indonesia (Dutch East Indies) in the past is groups was probably only found in cities and
one of the real examples of a pluralistic society, urban centers. But at this time, almost all regions
namely a society consisting of several groups or of ethnically Indonesia are fairly heterogeneous,
social systems that live side by side, but without along with the arrival of migrants and from
mingling in one political unit (certain territorial different ethnic groups then living side by side

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with local ethnic communities, not only in cities Batak). In the past, this category of society was
or urban centers, but also in villages and inland led by nobles who led their native countries
areas. Therefore, inter-ethnic relations become (except Minangkabau and Batak). Communities
more interactive than in the past. But then this classified into this category are Javanese,
also often brings new problems in accommo- Sundanese, Madurese, Acehnese, Malay,
dating cultural differences between migrants and Minangkabau, Makassar-Bugis, and Batak. And
local communities, if later migrants are fourth, it can be found in urban centers, and
economically more established than local grouped according to the level of education and
communities. ethnic culture, as the center of the social and
cultural system. In fact, it is this side that
Box 1.
The sentence was taken from the philosophy of the distinguishes this category of society from rural
Nusantara Archipelago which since the days of the communities. These cultural differences further
Majapahit Kingdom has also been used as a motto of deepen ethnic differences, because the perpetra-
unifying the Nusantara archipelago, which was tors use the ethnic culture as a reference, to
pledged by Patih Gajah Mada in Kakawin Sutasoma,
the work of Mpu Tantular:
identify their ethnicity. As stated by Barth (1969),
Rwāneka dhātu winuwus wara Buddha Wiśwa, ethnicity surfaced in times of social and
Bhinnêki rakwa ring apan kěna parwanosěn, geographical contacts intensified between
Mangka ng Jinatwa kalawan Śiwatatwa members of different ethnic groups. This reality
tunggal, can be considered true especially in relation to
Bhinnêka tunggal ika tan hana dharmma economic interests and their usefulness in
mangrwa (Strophe.139: 5).
competition for certain resources.
Related to the concept of ethnicity,
Conceptually, ethnic and cultural differen-
Oommen (2009) identify at least five different
ces in Indonesia can be seen based on the level of
perspectives in which ethnic groups and
economic development. As stated by Kennedy
ethnicities are conceptualized, namely: first,
(1943), there are four categories of community
ethnic groups are conceptualized as small. The
culture. First, is the category of people living
ethnic group shares the same culture with the
from the results of hunting and food gathering.
culture of their ancestors as a basis. However, in
People living in this culture are nomadic groups
today's world, society and groups are not limited
where hunting and collecting forest products in
by lineage and kinship. Second, ethnic groups are
certain territorial areas are their top priority in
seen as groups that have the authority to define
life. They have also been able to grow crops
themselves. The authority of the ethnic group is
using dry land farming techniques. Second, is a
based on subjective factors chosen by their
group that has achieved economic growth in the
members from past history or current conditions.
field of agriculture, but lacks an adequate portion
The chosen cultural style helps in the creation and
of the political area at the village level.
maintenance of socio-cultural ties in relation to
Communities that can be classified into this
ethnic groups interacting with each other.
category include, among others, Baduy, Tengger,
Third, ethnic groups are seen as interest
Kalimantan Dayak, Mentawai and most ethnic
groups that compete to benefit from a welfare
groups in Irian Jaya.
state. Groups such as race, religion, and language
Third, it is grouped based on the level of
are included in this definition which sees
advanced cultural complexity, such as artificial
ethnicity as a source used by marginalized
irrigation, agriculture with intensive rice farming
migrant groups. Fourth, ethnicity is considered as
techniques, written literature, religion from major
an instrument of identity seeking by people with
traditions (mostly Islam, except Balinese and

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The Role of Government on Sustainable Development

diverse racial and cultural backgrounds in society. also diverse, depending on the types of
Fifth, ethnicity is conceptualized as a tool used by relationships that influence each other between
people to seek psychological unity which is often individuals and groups, with their social and
based on general similarity, namely blood natural environment. These environments include
equality, both real and fictitious. ethnic categories and cultural power systems that
The problem faced by Indonesia as a provide important authority over political,
pluralistic society is centered on the relationship economic and social norms. These all function in
between the government or the national system inter-ethnic relations, which in turn direct and
and the ethnic groups. President Soekamo once establish norms and positions, as determined or
supported a unification policy, ending with a valued by members of ethnic groups who care
rebellion, based on ethnicity, during his reign. about the environment. These environments also
During the Soeharto era, policies regarding unity offer alternative opportunities as well as re-
and uniformity remained supported, even military stricting individuals or groups who wish to
forces were used to suppress aspects of ethnicity, manage available resources, while creating
religion and race as a means of mobilizing the symbols used to achieve certain positions in
masses so as not to oppose government policies. social and ethnic relations.
At the same time, the Soeharto government used According to Barth (1969), the catego-
ethnicity and religion politically to gain support rization of certain ethnic groups is determined
and the community. President Habibie, who through their basis, general identity, background
succeeded Soeharto, was caught up in Soeharto's and origin. In this case, ethnic groups are seen as
ideas of democracy and the despotic and a social category that functions as a collection of
militaristic approach, which produced erratic and reference systems to identify certain ethnic
contradictory policies. In the end, this reality groups - in inter-ethnic relations. Because ethnic
resulted in an inter-ethnic bloody conflict in most groups refer to a distinctive culture, attempts to
parts of Indonesia. define such important concepts are appropriate
for the purposes of classification and metho-
2. METHODS dology. Culture is seen as a "blue print" for life,
The research methods used in this paper is as a collection of reference systems or forms
a literature study. Literature study method is a created through taste and knowledge of
series of activities related to library data something quite diverse. Many people use these
collection methods, reading and recording, and forms selectively, along with their interest in
managing research material (Creswell, 2010). these forms to produce meaningful understanding
Literature study conducted by collecting data or of certain situations, and at the same time to
sources related to the topic raised in a study. This guide their actions in their environment, through
literature study uses various sources, journals, their activities. Such actions may be seen as a
documentation books, internet and others directive to meet needs as well as a response to
literature. certain strength structures in their environment.
Cultural and ethnic categories are used as a
3. RESULTS AND DISCUSSION reference system for such interpretations and
3.1 Ethnicity in the Process of Social responses. Then, such an approach takes into
Interaction consideration social power for actors in
In Stewart's view (2005) ethnicity is a understanding their actions in certain structures of
separate phenomenon that arises in social strength and interaction.
interaction. The process of social interaction is

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Awareness of being part of a specific power relations has changed, along with migrants
ethnic community or social unit is a starting point who have begun to enter economic sectors which
for members of certain ethnic groups to previously were exclusive land for local people or
understand their perspective on other social units, they created economic activities (new markets)
such as religious organizations, political parties, that were different from traditional markets. The
professions, or even countries, as an ethnic group structure of inter-ethnic relations between
and through their affiliation, mobilization and migrants and members of local communities has
solidarity processes stated repeatedly that the also changed. Local ethnic communities suffer,
social unit was an ethnic group. These processes because they lose their privileges in the economic
always occur at certain times and places, and and political fields. Finally, the symbiotic
often relate to other ethnic groups in fighting for relationship between the two ethnic groups turned
economic and political resources. The emergence into a struggle for resources, including position
of ethnic associations in cities or urban centers is and power. It was then that ethnicity was
basically politically nuanced and aims to claim reaffirmed for the purpose of maintaining and
safe areas in these cities as ethnic areas, both strengthening ethnic boundaries to further
economically, socially and culturally. The same distinguish "our" vis a vis "them".
thing also happened in the case of affiliation with Ethnicity is used as an instrument to
political parties, religious organizations, uphold social cohesion and solidarity - from both
professions, even organizations of bad people and sides to fight for the market. If the market
criminals. It is all seen as an ethnic and political struggle does not have certain rules that guarantee
group for resources and domination. justice for competing ethnic groups, then finally
all possible ways are done, such as efforts to
3.2 Ethnicity and Resource Issues mutually disable access to resources and position,
In the previous explanation, Barth (1964) and monopolize and control its allocation and
has shown that the origin and continuity of distribution. Along with the passage of time, the
ethnicity which includes ethnic boundaries, the results that will occur are division of labor and
incorporation of ethnic and institutional relations economic specialization based on ethnicity. If a
of ethnic relations, is generally related to stable competitive relationship has taken place,
competition for economic positions and re- then the pattern of new inter-ethnic relations will
sources. In a homogeneous local ethnic commu- follow. Therefore, a balance point in the environ-
nity, environmental resources and certain posi- ment can be established.
tions are allocated among its members, based on However, the point of balance may not last
the official local environment (ulayat rights) and long. When high-value economic resources and
their customs (adat). Competition in fighting over office positions begin to become scarce, pressure
resources and position can hardly be found in to eliminate other ethnic groups, while domi-
societies that are organized socially and nating their allocation and distribution becomes
culturally. If newcomers, such as migrant urgent. These interests may be caused by greed or
workers, are accepted into a particular commu- stimulated by political forces at the local and
nity, they must obey the rules that apply in the national levels, to benefit in the fields of
community. autonomy, social or political. Because ethnic
When migrants arrive and live in certain grouping is hierarchical, ethnic members rely on
communal areas, the total population of the their leaders or certain patrons to direct their
community will far exceed the available envi- actions in inter-ethnic relations through their
ronmental resources. The structure of certain unity, society or social units in general. It is

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The Role of Government on Sustainable Development

ethnic leaders who have the right to urge to ethnicity through the destruction of ethnic
eliminate ethnic groups that disobey and symbols. Then, each party tries to destroy and
dominate economic resources and take over eliminate the existence of other parties. In fact,
positions in offices at local level politics, and this babies and children resulting from cross-breeding
pressure is realized through other issues they (between ethnic groups) were also killed during
develop by referring to the character of inter- the Singkawang and Sampit conflicts. This can be
relations ethnicity, where they are an integral part seen as an act of annihilation of the evidence and
of it. For example, In the article Van Klinen. ethnic symbols of the opponent. In ethnic
2005. Pelaku Baru, Identitas Baru: Kekerasan conflict, ethnicity shifts from individual
Antar Suku pada masa Pasca Soeharto, explained phenomena to ethnic categories. Ethnic symbols
that the Sambas Case, as well as the Ambon and are targets that must be destroyed, because they
Sampit cases, can be seen as examples of how are seen as representations of hostile presence.
competition for economic resources and positions These symbols include members of ethnic groups
can turn into inter-ethnic bloody conflicts. who are opponents, property and their properties.
However, competition between ethnic groups
does not always lead to bloody conflicts. This can 3.3 Ethnicity and Threat of Disintegration
be prevented if members of these ethnic groups A social institution, with a set of norms,
comply with applicable law and maintain social interrelated roles and predetermined behavior is a
order. The police, as law enforcers, should not social entity that has a balance in the relations of
take sides as long as the competition or conflict strengths of its elements. When one of the
takes place, and there should be no outside elements changes, it will affect the other
political, economic and religious support to one elements, which ultimately threaten the point of
or both ethnic groups that are competing and balance. Therefore, the social institutions of
conflicting. interrelated norms and roles must be defined to
As long as ethnic conflict occurs, ethnicity accommodate the changes that occur. This
becomes the main reference in identifying uncertain situation is a situation of social
themselves and their groups. Ethnic conflict in disorder.
Indonesia is basically often a conflict between When the whole system is not functioning
local ethnic groups and migrants. The impact of properly to guarantee the production process, the
the conflict included the loss of life, destruction system will experience social shocks and dis-
of the immigrant community and its environment, integration. Social disintegration refers to
and those who survived were forced to leave their conditions, where certain power structures and
homes. In the most extreme conditions, it their interactions with the environment do not
becomes a bloody conflict, a total war with function properly, thus disrupting the structure of
uncountable loss of life, mass dislocation, agreement norms among members of different
oppression, alienation and suffering caused by ethnic groups, and leadership, which results in the
hunger and torture. All migrant ethnic popula- loss of one ethnic group in the ethnic conflict.
tions were expelled from their environment. In Ethnicity as a phenomenon that arises in
the article of Alqadrie, Syarif Ibrahim. 2003. social interaction is a social institution. The
Faktor Penyebab Konflik Etnis, Identitas dan potential to organize the behavior of a particular
Kesadaran Etnis, serta Indikasi ke arah Proses ethnic group in a "social setting" is ascriptive and
Disintegrasi di Kalimantan Barat. In this article primordial. When they appear in social inte-
explained that ethnic conflict is basically a ractions, the differences between "me" and "you",
conflict that leads to the destruction of each and "us" and "them" are formed. The actors

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involved organize themselves in social categories one ethnic group. The existence of ethnicity and
based on ascriptive attitudes and their symbols, ethnic groups depends on ethnic culture. Ethnic
with reference to culture and its own ascriptive culture is basically regarded as a root, or pri-
ethnicity. In turn, this social category is mordial culture, because members of an ethnic
transformed into groups, groups and communities group learn and live their culture through the
as a group of organized activities, which are imposition of parents, elders and their
based on self-explanations and by others. communities. Ethnic culture is a set of values of
In a pluralistic society like Indonesia, whe- orientation, norms, language, religion and other
re ethnicity is a social fact, ethnic competition in practical guidelines to be able to live in their
fighting over resources and position might create environment. In competition and ethnic conflict,
a kind of fragile false balance from these groups. these cultures are activated and manipulated
They may develop ethnic communities that have selectively by ethnic leaders to understand their
interdependence, institutionalize cooperation and changing environment and to understand
division of labor or position between them. dominant issues. Such issues usually demand the
However, on the other hand, pluralistic societies support and loyalty of group members, because
will also bring these ethnic groups from they include relevant facts, even though they are
competition towards bloody ethnic conflict, while distorted, for them, because they care about their
destroying the existing social order and social existence and honor as an ethnic group. In article
integration at the local and national level. Diverse of Alqadrie, (2003) Faktor Penyebab Konflik
societies can also be a problem if one ethnic Etnis, Identitas dan Kesadaran Etnis, serta
group succeeds in dominating the other group, Indikasi ke arah Proses Disintegrasi di
while simultaneously applying the group's rules Kalimantan Barat, obtained an illustration that
to the other. All of these scenarios depend on the case of bloody ethnic conflict in Singkawang
several factors such as differences in political and was triggered by a series of acts of violence
economic ethos, population numbers and growth, committed by Madura criminals. The victims who
and external support, both locally and nationally. came from ethnic Malays witnessed acts of
In Indonesia, where competition between violence committed by these criminals, as
ethnic groups is organized ascriptively, it will be authentic evidence of the ideas (stereotypes) they
seen that ascriptive loyalty is more dominant than had obtained about the Madurese community.
economic loyalty. The ascriptive organization, Then, the issues that were further developed in
namely ethnicity, is important in the competition this incident were that the Malays had organized
process for resources that involve internal loyalty their group into a fighting army, to fight the
for social cohesion and political support and Madurese, to get rid of them from their homeland
external funding. Kinship, ethnicity and regional and cleanse their world of the evil Madurese. The
networks can be created and activated to win the police, who should prevent the conflict
competition. When competition turns into escalation, cannot act appropriately, because they
conflict, political support and external funding are are not trained to deal with such situations (but
important to overcome the destruction, or restore are trained as criminals), or they take sides (to
the spirit of ethnicity in order to win the conflict. one ethnic group) in the conflict.
In inter-ethnic conflict, the target of destruction
can include (up to) human lives, and ethnic 3.4 Building Convergence of Ethnicity: A Role
culture represented by symbols and property. of Government
Ethnic culture is a reference for ethnicity The basis of convergence in ethnic
and a mechanism to maintain the boundaries of diversity according to Parekh (2008) can be seen

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The Role of Government on Sustainable Development

at least from the arguments of Montesquieu and Then in Herder's view, nature has placed a
Herder. For Montesquieu, cultural diversity is the 'tendency for diversity in our hearts'. Every
nature of human life that develops slowly and culture has an identity of 'single, very good,
absolutely. There are no two communities in incomprehensible, identity that cannot be elimi-
common. Each society has different customs, nated', attaching a different vision of human life,
practices, methods, legal systems, family realizing different human capacities, instilling
structures and forms of government, and each different goodness and behavior, and having a
encourages different desires, morals, goodness unique 'core of happiness',' center of gravity ','
and behavior, forms of excellence and a good spirit ',' ethos', or 'atmosphere'. It is free unity
conception of life. Even when they have the same integrated and moving according to its own
laws and customs, these things have different internal principles (Herder, 1969). In meta-
influences and play quite different roles. physical influences, Herder understands culture in
Although all human beings are shared with the the image of a beautiful entity as a microcosm.
general nature, Montesquieu thinks that each They are windowless and can be self-sufficient,
society also develops different human capabi- who see the world in their own perspective and
lities, desires, and so on, and gives rise to the have the power in themselves and the vitality to
second nature of 'nationalism'. Its members grow oppose and refract external influences. Each has
together, and feel home with socially acquired its own endpoint and develops in a direction that
properties as well as biological and natural is ordered by it. 'The future' determines the
characteristics. Thanks to the diversity of national present, and the present determines the past, as
characteristics, it is 'a huge advantage if [the law] the purpose of determining the preparation of the
of one nation is suitable for the whole nation'. facilities to be used.
Although all societies as social entities pursue In every society, the government has an
certain general objectives, each has its own important role in fostering justice and to-
'unique goals'. getherness. In a pluralistic society, the govern-
While for Herder (1969) each culture is ment is a source of unity, provides a focus for the
uniquely associated with the experience of a common life of citizens, and is expected to set an
community group, ancestors and historical de- example to overcome narrow prejudices and
scendants, and reveals the way in which members communal views. Government institutions should
of the community group understand and (and must be seen) be fair in treating members of
imaginatively interpret these experiences. The different communities. As the only legal source
natural environment of society plays an important of justice in society, the government needs to
role in shaping its culture, by structuring the convince its citizens to obtain equal treatment in
world of its experiences in which it interprets and all areas of life such as employment, justice in
organizes the creative imagination of humans. For criminal acts, education and public services. In its
Herder, culture is a product of collective efforts negative form, Equality includes the absence of
that the public is not aware of, and like all direct or intentional discrimination, and indirect
creative actions there are always elements of or institutionalized discrimination. Direct discri-
mystery such as why culture develops in such a mination occurs when the decision maker is
way and form. Intellectual and creative writers directed by prejudices against certain groups,
play an important role in the process, but they do meanwhile, indirect discrimination occurs when
come true when they provide a centralized and the rules and procedures they undergo contain
deepest expression of the community and invisible discrimination bias and result in
articulation of expression.

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systematic harm to certain communities or groups each other in a normal life series at the local or
of people. regional level, respect for diversity in that level
While in its positive form, Equality becomes a big problem and shapes perceptions
requires rights and obligations. All citizens must between one and the other and with the
enjoy the same rights, and should include not government. It is easier for local and regional
only the fulfillment of civil, political, economic bodies to accommodate these differences (rather
and other rights but also including cultural rights. than the central government) because the
The latter refers to the rights possessed by a necessary adjustments are more readily identi-
person or community to express, maintain and fied, on a limited scale, not too expensive, and
instill their cultural identity. Because culture is usually free from public scrutiny. There is also
an integral part of the feeling of individual more room for experimentation so mistakes can
identity and well-being, cultural rights are part of be easily corrected, and one area can learn from
human rights, and a good society must guarantee the success of other regions. Thus, it is important
the existence of cultural rights for all its citizens. to build strong local and national government
In addition, in every society, the existing units and use them to strengthen the culture of
community usually determines its own cultural civil society. In Varshney's (2001) explanation,
nature and is able to unequivocally assert and recent research shows that tensions between
express its own cultural identity. equal oppor- community groups are less frequent and easier to
tunities should also be extended to minority control when there is a network of relationships
communities. between formal and informal community groups
By giving a "sense of security" to minori- that maintain social capital trust and cooperation.
ties to show identity and interact with the wider
community, cultural rights also demand loyalty 4. CONCLUSSION
and goodwill and facilitate their unification. In the process of social interaction,
Principles of justice govern important things for ethnicity has the potential to organize solidarity in
a good life and relate to what is called Rawls a descriptive manner, although competition for
(2011) the basic structure of society. The basic resources and position can lead to conflict and
structure of society is not only about politics and social disorganization. Then, ethnic conflict,
economics (as explained by Rawls) but also which can be a form of conflict to eliminate
culture, and therefore the principle of justice is others in a competition, can also lead to social
not only related to freedom and material disintegration. This is not caused by ethnicity
resources but also to cultural rights and itself. Social disintegration is the end result of
opportunities. Thus, political recognition is a various factors. Internal factors include the
broader part of the justice and nuances of the accumulation of hatred towards certain ethnic
theory of justice, with an important difference groups and also the role of ethnic leaders in the
between freedom and material resources, recog- inter-ethnic warfare. While external factors
nition that cannot be enjoyed individually or include the deterioration of the general economic
distributed from the center and requires a more and political conditions and the ascriptive
complicated concept of justice. character of society.
The most important thing in building Building ethnic convergence must be
convergence is decentralization of power. preceded by the awareness of ethnic groups on
Decentralization of power has a very important the awareness of pluralism itself. In a pluralistic
role to ensure justice in a pluralistic society. society, the government has an important role in
Because different communities regularly face helping the development of justice and equality.

41
The Role of Government on Sustainable Development

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Persaingan Identitas. Yogyakarta: Kreasi
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