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Scot Marciel
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This commentary was first published by The Diplomat.


 

Indonesia’s $20 billion Just Energy Transition Partnership (JETP), announced last November by U.S. President Biden, Indonesian President Joko Widodo, and Japanese Prime Minister Kishida Fumio, is reaching an early critical juncture. The stakes involved are high, encompassing climate change, economics, U.S.-Indonesian relations, and geopolitics.

Under the Partnership, an International Partners Group (IPG), made up of the G-7, Norway, and Denmark and led by the United States and Japan, promised to mobilize $10 billion in financing, while a private sector alliance committed an equal amount. Indonesia agreed to accelerate the retirement of coal-fired power plants and promote renewable energy, setting targets of capping emissions from its power sector, making that sector carbon neutral by 2050, and tripling the share of renewable energy in the power mix by 2030.

If the partnership succeeds, Indonesia – one of the world’s largest greenhouse gas emitters – will be on a path toward significantly reduced emissions. Moreover, success will demonstrate that the JETP model is viable, encouraging similar partnerships elsewhere. Failure would undermine the JETP concept and discourage efforts by other developing countries.

For Indonesia, JETP provides an opportunity not only to shift away from dirty coal power but also to enhance its attractiveness as an investment destination. Although Coordinating Minister Luhut Panjaitan, who has been overseeing its implementation, has sought to put all the pressure on the IPG, saying “we don’t lose anything if the deal doesn’t materialize,” a failed deal would mean Indonesia leaving billions of dollars on the table, and would reinforce perceptions that it is a difficult place to do business.

The stakes for the United States are equally high. Washington led the negotiations and will get much of the credit or blame for JETP’s success or failure. Also, the recent U.S. track record on economic issues in the Asia-Pacific region has been poor, the result of its withdrawal from the Trans-Pacific Partnership, avoidance of other trade agreements, and failure to deliver on its “quality infrastructure” initiatives. The United States is widely viewed as losing economic influence in the region to China. The Indonesia JETP deal is a chance for Washington to demonstrate that it can deliver and thereby boost its geostrategic position. Failure would do just the opposite.

Finally, JETP offers a means to improve U.S.-Indonesian relations. Indonesia is important – the world’s third-largest democracy, the biggest Muslim-majority nation, a rising economic power, and a leader of the Association of Southeast Asian Nations (ASEAN). While security ties have improved, economic relations have stagnated, the Indonesian public remains cool toward the United States, and Washington worries about Jakarta’s growing ties with China, which provides it with needed infrastructure financing.

JETP already is facing significant challenges. It was always going to be difficult for Indonesia to shift away from coal, an industry that has produced powerful conglomerates and employs around 250,000 people. The country has a surplus of power capacity in key regions and a relatively new fleet of coal plants, making early retirement costly. Moreover, the current regulatory environment, including Jakarta’s local content requirement, makes investing in renewable energy unattractive. There are other challenges, but discussions with experts suggest most can be overcome with sufficient will and financing.

Jakarta and Washington need to redouble efforts to move the partnership forward. For Indonesia, that means completing an investment plan with bankable projects, offering regulatory reform to make renewable energy investments more attractive...
Scot Marciel
Oksenberg-Rohlen Fellow

Therein lies the bigger, more immediate problem. Following an April visit to Washington, Indonesian officials complained that the IPG was asking Jakarta to take difficult steps without doing its part. Minister Luhut told the press that Washington had not “shown” them any money or clarified how Indonesia can access JETP funds. He also emphasized that the money needed to come on concessional terms. An Indonesian official involved in JETP said privately that they are informed that grants would make up only a small fraction of the $20 billion in financing and that only one-third of the money would consist of truly concessional loans. “The [financing] package,” the official added, “is not aligned with the spirit of the partnership and ambitious transition required in JETP, which without real financial support will add significant financial burden to Jakarta.”

Other conversations suggest increasing doubt in Jakarta about whether the money will materialize, along with what one Indonesian expert called a growing worry that JETP will fail before it gets started. U.S. officials say it will be “bankable” projects identified in the JETP investment plan, expected next month, that should trigger the flow of money. They insist the financing will be there.

Given the stakes, Jakarta and Washington need to redouble efforts to move the partnership forward. For Indonesia, that means completing an investment plan with bankable projects, offering regulatory reform to make renewable energy investments more attractive, and addressing the contracts behind the current energy surplus. It also will mean accepting less concessional financing than it wants. For Washington, it involves quickly demonstrating that it and its IPG partners will meet their financing commitment with reasonably concessional terms and clarify the mechanism for accessing the JETP funds.

Time is of the essence. To bolster lagging confidence, the parties need to announce several pilot projects soon and move vigorously to implement them. The opportunity presented by the JETP initiative is too good to miss, and the cost of failure is high.

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Last November, the U.S. and its partners promised to supercharge the country’s green energy transition, but their efforts are already facing obstacles.

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George Krompacky
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In February 1986, Scot Marciel was driving home after midnight and went past what he assumed was just another protest near military facilities in downtown Manila. The gathering, less than a year into his first overseas assignment with the Foreign Service, turned out to be the early days of the Philippine People Power revolution, leading to the end of the Ferdinand Marcos regime. This was just one of several times during his 35-year career in the State Department that Marciel would find himself witnessing historic moments in Southeast Asia and in the U.S. relationship with the countries of the region.

That illustrious career includes being the first U.S. diplomat to work in Hanoi since the end of the Vietnam War and serving as the first U.S. ambassador for ASEAN Affairs and as U.S. ambassador to Indonesia and Myanmar.

Marciel, Oksenberg-Rohlen Fellow at FSI and affiliated with APARC, has distilled his experiences and observations into his new book, Imperfect Partners: The United States and Southeast Asia (Shorenstein APARC/ Rowman & Littlefield, 2023). In it, he offers his on-the-ground account of the ups and downs of critical U.S. relationships in the region — focusing on the Philippines, Thailand, Vietnam, Cambodia, and Indonesia — and examines the role of ASEAN and China’s influence in Southeast Asia.

To mark the book’s release, we talked with Marciel about recent events in the region and his views on how the United States should approach Southeast Asian countries in the context of China’s efforts to sow closer ties with them. Watch the conversation:

A Return to the Philippines

The Philippines under President Ferdinand “Bong Bong” Marcos, Jr. is now allowing U.S. forces expanded access to four of its bases. Marciel, who first met Marcos, Jr. as the provincial governor of Ilocos Norte in 1985, expressed some surprise at the Philippine president’s rapid shift to strengthen the country’s alliance with the United States. He noted, however, that even in the last year of the Duterte presidency, which frequently was at odds with the United States, there was some recognition in the Philippines that the relationship with China wasn’t bearing the fruit that had been anticipated. Marciel also pointed out that the deal with the United States does not mean Marcos has abandoned China: he is still working on keeping the relationship with Beijing healthy and visiting Japan, another important partner.

Although there is some Philippine civil opposition to the renewed presence of U.S. forces, Marciel believes that the Enhanced Defense Cooperation Agreement (EDCA) will provide an opportunity for a “more modern and equal partnership,” and hopefully one that can supplant memories of the U.S. colonial history in the Philippines.

Southeast Asian Charm Competition?

As concern continues to rise about a possible invasion of Taiwan by the People’s Republic of China, some have questioned the effectiveness of the U.S. capability to compete with China, particularly in terms of a diplomatic offensive. Marciel responded to a recent New York Times article on U.S. and Chinese efforts to “woo” Indonesia. As China continues to seal trade deals in Southeast Asia, some of which are part of its Belt and Road Initiative, we asked whether the United States can compete with China’s free-flowing cash.

Marciel, taking a step back, cautions that “Indonesia is not a prize to be won,” and that we should not be “scoring diplomatic relations like a sporting event” when we look at improving ties with the countries of Southeast Asia. Indonesia, for example, has a long history with the Non-Aligned Movement, so while it attempts to attract foreign investment, it will resist aligning with any one major power. China tends to offer attractive investment packages with minimal conditions, but “you can’t always count on those investments to happen,” notes Marciel, and even when they do, there can be issues with corruption, as well as social and environmental consequences. The United States tries to put together investments that consider issues like labor and the environment, but Marciel believes that “sometimes we aim a little high” and the conditions make U.S. offerings less attractive.

[American diplomats] go to Southeast Asia, Indonesia or elsewhere and talk about China. These governments, these countries are fully aware of the pros and cons of working with China and the pros and cons of working with us. We don't need to teach them this.
Scot Marciel

The Continuing Crisis in Myanmar

We spoke with Marciel just after the second anniversary of the 2021 coup in Myanmar. He began his term as U.S. ambassador to that country in 2016, just before Aung Sang Suu Kyi’s new government was about to take office. As he puts it, it was a time of “euphoria,” not only in Myanmar but also in terms of U.S. hopes for democracy there. It turned out to be a difficult four years for Myanmar and Marciel, as the Rohingya crisis repeatedly erupted and the Myanmar military reacted with violent operations that drove hundreds of thousands of Rohingya out of Myanmar. As Marciel relates in his book, he soon found that even using the word “Rohingya” in U.S. embassy statements could create a diplomatic crisis.

Even with the horrific Rohingya genocide, Marciel cautiously notes that by 2020, when he left the country, most people in Myanmar had more opportunity and freedom under four years of a democratically elected government—the Rohingya themselves being the obvious exception. But in 2021, the “military coup basically eliminated that hope and opportunity.”

More and more Myanmar people are explicitly recognizing the legitimate grievances and the suffering of many of the ethnic minority populations, including the Rohingya, over the past years, and [there is] some recognition that they were fed a lot of propaganda for a long time…
Scot Marciel

Marciel doesn’t hold much hope for an end to the coup anytime soon, but he does see at least one “positive development” over the last two years. During the worst of the Rohingya crisis, many in the majority Bamar community did not believe the reports of massacres, or even worse, did not care. But now, after two years of military rule, “more and more Myanmar people are explicitly recognizing the legitimate grievances and the suffering of many of the ethnic minority populations, including the Rohingya, over the past years, and [there is] some recognition that they were fed a lot of propaganda for a long time about what was really happening.”

Establishing Relations with Vietnam

One of Marciel’s great success stories is the normalization of U.S. ties with Vietnam. It was an improbable success with any number of obstacles likely to prevent it from happening, not the least being the debate about the fate of U.S. prisoners of war and servicemen reported as missing in action. Saigon fell in 1975, and yet in 1995, just 20 years later, diplomatic relations were restored and the U.S. embassy opened in Hanoi.

According to Marciel, it took patience, pragmatism, but also the collapse of the Soviet Union and the end of the Cold War. No longer able to rely on Soviet help for their economy, the Vietnamese became more open to work with the United States, particularly on POW-MIA issues, allowing Vietnamese imprisoned in re-education camps to flee the country, and withdrawing Vietnamese forces from Cambodia.

Marciel sees the U.S.-Vietnam relationship today as a “good-news story” that shows the degree of progress that can be attained when two countries are willing to be rational and work together. The United States still has significant concerns about human rights in Vietnam yet “both sides have agreed to talk about that issue, but not let it define or limit the relationship excessively.”

“In brief, [we need to] show up and engage consistently… with a focus on the countries that we’re talking to, not on China, because what they’re looking for… is, ‘Can we count on the United States being a long-term partner?’”
Scot Marciel

How the United States Can Improve Relations in Southeast Asia

When pressed for a prescription on what the United States can do to further improve its relationships with the countries in the region, Marciel said, “In brief, show up and engage consistently, with humility, and with a focus on the countries that we’re talking to, not on China, because what they’re looking for, for the most part is, ‘Can we count on the United States being a long-term partner?’”

By ensuring the reliability of the partnership, countries in Southeast Asia have more freedom of maneuver, and they can, if necessary, be more capable to “make decisions China might not like.” The flip side of that—the failure to show up at presidential and high governmental levels, like what happened during the Trump administration—means “you’ve undone all the good that you had done in previous years by investing in those relationships.” The price of isolationism, of neglecting U.S. diplomatic relations in Southeast Asia, is that those countries lose confidence in the United States as a reliable partner. 

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In "Imperfect Partners," Ambassador Scot Marciel combines a memoir of his 35 years as a Foreign Service Officer with a policy study of U.S. relations with the countries of Southeast Asia, a region proving to be critical economically and politically in the 21st century.

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Reza Idria is an Assistant Professor in Social Anthropology at the Universitas Islam Negeri (UIN) Ar-Raniry (Ar-Raniry State Islamic University) in Banda Aceh, Indonesia. He holds an MA and Ph.D. in Social Anthropology from Harvard University as well as an MA in Islamic Studies from Leiden University, The Netherlands. Born and raised in Aceh, the only province adopting Sharia Law in Indonesia, Reza’s research interests are at the intersection of legal anthropology and Islamic law. 

Idria is the Lee Kong Chian NUS-Stanford Fellow on Contemporary Southeast Asia at APARC for the 2023 winter quarter. The fellowship, which is hosted jointly by APARC’s Southeast Asia Program (SeAP) and the Faculty of Arts and Social Sciences at the National University of Singapore, raises the visibility, extent, and quality of scholarship on contemporary Southeast Asia.

During his LKC NUS-Stanford fellowship, he will turn his doctoral dissertation, “Tales of the Unexpected: Contesting Syari’ah Law in Aceh, Indonesia,” into a book manuscript. This work is an anthropological study that examines a wide range of social and political responses that have emerged with the state implementation of Islamic law. The empirical data for this research project has been gathered in Aceh, the only Indonesian province that has adopted Sharia. Dr. Idria is also embarking on a new research project that focuses on the legal and socio-economic consequences of the local regulation on Islamic banking.

This interview originally appeared on the website of the Faculty of Arts and Social Sciences at the National University of Singapore.



What sparked your interest in studying the social and political responses to the state implementation of Sharia law in Aceh, Indonesia?

There are some puzzling conditions in Aceh that sparked my interest to conduct this study. I grew up immersed in Acehnese Muslim culture and have lived through the historical and political transformation of the region since the period of armed conflict. In my view, the government’s efforts to translate Sharia into positive law in Aceh was motivated largely by political needs, rather than the religious ones. Islam has indeed a pronounced role in Aceh society since pre-colonial time, and the province is often called “Verandah of Mecca”, but it was only in 1999 the central government decided to impose Sharia law in the province in an attempt to quell the Free Aceh Movement rebellion.

In fact, it was the tsunami of 2004 that actually helped stop the war and led to the signing of peace agreement. However, it did not prevent the government to apply more aggressive Sharia law in the post-conflict and post-tsunami Aceh. While many Acehnese appeared supportive to the implementation of Sharia, I was also troubled with the impression created by many media outlets that all Acehnese accept Sharia law without question. Despite the aggressive enforcement directed by the state, my study found some elements of Acehnese society have passionately contested and challenged the official understanding of Sharia.

What challenges did you encounter when carrying out your fieldwork in Aceh for your upcoming monograph, Tales of the Unexpected: Contesting Syari’ah Law in Aceh, Indonesia?

I began gathering considerable data for this study in 2011 when I was involved in a joint research project on the Indonesian experience of Islam and politics after the fall of Suharto. Given the sensitivity of this topic conducting fieldwork was challenging. Some people were suspicious of my academic inquiry. People were mostly reluctant to speak on anything related to Sharia Law. Even those who have engaged in activism against Sharia law did not want to be seen as openly antagonistic to it. Many would say that they are not resisting Sharia as such, rather seeking to rescue Sharia from associations with fundamentalism. I think it is because the Acehnese perceived that their identity is deeply entwined with Islam, therefore critical voices to the state-led Sharia implementation are often subdued due to the fear of being labeled anti-Islam. It’s a dangerous stigma and I think no one could survive in Aceh with that stigma. Such condition contributes to people’s ambiguous and ambivalent reactions toward Sharia. To me this also explains why resistance to Sharia has eventually taken many forms and is often performed in unconventional manners. Sometimes so subtle that they might not seem like resistance at all.

How have the diverse range of local groups who have engaged in activism against Sharia law enforcement in Aceh cooperated with each other?

There was some cooperation and mutual support among local groups who share dissenting views concerning the state interpretations of Sharia. For example, in responding to the provisions of Islamic Criminal Code of 2009 (referred locally as Qanun Jinayah), intellectuals from several local universities, cultural activists, and dozens of civil society organizations worked together to criticize many controversial aspects of the proposed law. They formed an advocacy network called Jaringan Masyarakat Sipil Peduli Syariat (the Civil Society’s Network concerning Sharia). JMSPS activists used various strategies, from lobbying to organizing a series of demonstrations. They went to the Aceh Parliament condemning members of the parliament and the governor of Aceh had they not stopped proposing the law. The movement was relatively successful as the Sharia Criminal Code of 2009 was postponed because Governor Irwandi Yusuf eventually refused to sign it. However, conditions have changed in the following years, especially after Irwandi lost the gubernatorial election in 2012. His successor signed the Qanun draft and passed the Sharia criminal law in 2014.

How has Komunitas Tikar Pandan, the cultural organization you co-founded in Aceh in 2002, played a role in the responses to Sharia law implementation?

Komunitas Tikar Pandan continues to organize various culturally oriented activities such as creating writing workshops, painting exhibitions, film screenings and discussions. The organization’s mission from the very beginning is to generate critical awareness, especially for the young, about the dangers of cultural hegemony and structural oppression in the name of identity politics and religion. One example, in responding to the absence of public cinema in Banda Aceh which has been considered by Aceh’s Ulama Council incompatible to the spirit of Sharia, Komunitas Tikar Pandan provides a mini-cinema and hosts a series of film screenings and discussions as a rebuke. Tikar Pandan’s office occasionally became sanctuary for some members of marginalized groups in Banda Aceh.

How do activist groups based outside of Aceh provide assistance to local Aceh activists whose resistance to Sharia law enforcement has met with opposition from local authorities?

For some cases such as the anti-punk crackdown in 2011 and the persecution of Aceh queers in 2018, support and assistance from people outside Aceh were helpful and forceful imposing pressure upon the Sharia authorities to evaluate their actions. Legal Aid Foundation (LBH) from Jakarta offered legal assistance to release the arrested punks. International expressions support for Aceh’s punks also took place across the globe, from Moscow to San Francisco, under the slogan “Punk is Not Crime” condemning the crackdown. Some international human rights organizations also provided aid advocacy and financial support to LGBTQ activists in Aceh.

How has local public opinion of Sharia law changed since it was implemented in Aceh, and what factors have been most influential in shaping this change?

At the beginning, there was a tremendous hope that the Sharia law would restore justice in the region affected by decades of bloody armed conflict. The conflict period was the period of profound lawlessness for the Acehnese. They were killed, tortured, and raped but no perpetrators had been brought to trial. That’s why I think people in Aceh were enthusiasts when the central government offered Sharia law to the province in 1999. Gradually the implementation has given rise to its own issues and resulted in the creation of multiple injustice and many forms of violence too. I think there are two factors that have been most influential in shaping and creating the negative image of the current Sharia implementation in the province, first morality policing through the special unit known as Sharia police. Second, the enactment of spectacle punishment, namely hukum cambuk (public caning). While Sharia promises to be a comprehensive guidance in all aspects of life, the Aceh government has been criticized by many ordinary Acehnese to focus merely on symbolic aspects of Islam, while neglecting what they viewed as more “substantial” concerns.

What developments do you anticipate happening in Aceh’s political and social scene in the near future that could affect the enforcement of Sharia law?

Aceh has been the poorest province in Sumatra within the last five years according to official survey. Despite receiving tremendous financial assistances from international agencies during the tsunami recovery and from the central government (so far more than $7.9 billion) Aceh’s economic growth continues to be the lowest in Sumatra. Following the Helsinki peace accord, the Aceh province is entitled to receive special autonomy funds from its central government for twenty years, from 2008 to 2027. So, it is only a few years left and with the rampant corruption and lack of interest from investors it is hard to imagine any changes for a better condition will occur in Aceh. I think poor and disempowered Acehnese Muslims will likely continue to see more perplexing regulations in the region promulgated in the name of Sharia.

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In this interview, Lee Kong Chian NUS-Stanford Fellow on Southeast Asia Reza Idria discusses his research into Syari’ah Law in Aceh, Indonesia, and the forthcoming book manuscript based on his doctoral dissertation.

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Reza Idria joined the Walter H. Shorenstein Asia-Pacific Research Center (APARC) as Visiting Scholar and 2022-23 Lee Kong Chian NUS-Stanford Fellow on Contemporary Southeast Asia for the winter and spring quarter of 2023. Idria currently serves as Assistant Professor at the Universitas Islam Negeri Ar-Raniry, Banda Aceh, Indonesia. While at APARC, he conducted research on the wide range of social and political responses that have emerged with the state implementation of Sharia (Islamic Law) in Indonesia.

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Watch our interview below with Scot Marciel about Imperfect Partners. You can also read a summary news article of the conversation.

Listen to a conversation with Marciel on the Insight Myanmar podcast, below.

About the book

Scot Marciel is widely considered the State Department’s top Southeast Asia hand, the result of decades of experience working in and on the region and the key role he has played in shaping and implementing U.S. policy. He was on the ground in the Philippines during the historic People Power revolt in the 1980s, became the first U.S. diplomat to serve in Hanoi in the early 1990s, was appointed the first U.S. ambassador to ASEAN in the 2000s, and spent the last 15 years twice serving as the State Department’s point person on Southeast Asia policy, and as U.S. ambassador to Indonesia and then to Myanmar during that country’s democratic experiment and its horrific ethnic cleansing of the Rohingya.

Imperfect Partners encapsulates Marciel’s experiences, providing the perspective of an American diplomat who has dealt with the dual challenges of working with foreign governments and also within the U.S. government. Noting that the United States “has a history of not quite knowing how to engage with Southeast Asia,” he highlights the ups and downs of critical U.S. relationships in the region. Marciel explores not only diplomatic successes, but challenges faced, missteps made, and opportunities missed in U.S. diplomacy with Southeast Asia. His on-the-ground witness account of the normalization of U.S.-Vietnam relations is essential reading, as is his passionate analysis of the gains and the failures of Myanmar’s decade-long opening.

While China’s rise has re-injected a long-absent strategic element into U.S. policy toward Southeast Asia, Marciel warns against making China the focus of that policy. He argues that the United States can best advance its own interests—and support the freedom of maneuver of Southeast Asia—through a strategy of consistent engagement based on a positive agenda and by focusing on the region’s dynamic younger generation.


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"What we have in this very readable book are the reflections of an eminent American diplomat on issues of particular significance for Australia as it continues to ponder how it should be responding to China’s rise, and how those responses are likely to affect its alliance with the US." — Dr. Allan Patience

Read the complete review at the Australian Institute for International Affairs >    

Praise for the Book

"For the United States, Southeast Asia is one of the most important and least understood parts of the world. Scot Marciel draws on his vast diplomatic experience to bring a wealth of illuminating stories, hard-earned insights, and wise analysis to bear on a region that will help determine our capacity to deal with the most pressing issues of the 21st century. . . . Imperfect Partners is an indispensable resource for anyone seeking to understand Southeast Asia and America’s relationship with its countries and people."
Ben Rhodes, former deputy national security advisor and author of After the Fall

"Drawing on his 35 years of diplomatic experience, Scot Marciel has written an illuminating survey of the United States' relations with Southeast Asia. . . . This is an excellent primer on a part of the world whose significance has grown substantially in recent years with the rise of neighboring China."
John Negroponte, career diplomat, former U.S. Permanent Representative to the United Nations and the first director of national intelligence

"Ambassador Scot Marciel has written a gem of a book. His thoughtfully researched account is brought to life with fascinating insights and captivating, on-the-scene anecdotes. . . . Imperfect Partners is a must-read for U.S. policymakers, business leaders, academics, humanitarians, and everyday Americans engaging with the nations of Southeast Asia."
Kristie Kenney, former State Department counselor and U.S. ambassador to Thailand, the Philippines, and Ecuador

"A master practitioner has provided us with a ring-side view of how our diplomats pursue American interests in Southeast Asia.  This is must reading for aspiring Southeast Asia hands who want to familiarize themselves with American regional diplomacy.  It’s also indispensable reading for American strategists, who will ignore Ambassador Marciel’s policy prescriptions at their peril."
Dave Shear, former assistant secretary of defense for Asian and Pacific Security Affairs and U.S. ambassador to Vietnam

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The United States And Southeast Asia

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Sally Zhang joined the Walter H. Shorenstein Asia-Pacific Research Center (Shorenstein APARC) as the 2022-2023 APARC Predoctoral Fellow. She is currently a doctoral candidate in the Department of Economics at Stanford University. Her dissertation, "Hidden in Plain Sight: Asymmetric Information and Hidden Income within the Household," focuses on contemporary Indonesia.

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An edited version of this opinion piece first appeared in the 14 July 2022 issue of The Jakarta Post.


How preoccupied is America with its own domestic problems? To the point of impairing the ability of President Biden’s administration to give Indonesia and Southeast Asia the foreign-policy attention they deserve?

The Group of Twenty’s meetings are now at or near the top of the Indonesian foreign ministry’s list of things to do. Foreign minister Retno Marsudi has worried, amid talk of boycotts, that Moscow-Washington animosity over Ukraine could ruin the G20 summit in Bali this November, to the embarrassment of its Indonesian host and chair. Presumably to her relief, Secretary of State Antony Blinken flew to Indonesia to attend in person the preparatory G20 foreign ministers meeting that she hosted and chaired in Bali on 7-8 July 2022, and he did so despite the participation of his Russian counterpart Sergey Lavrov.  In addition to holding a one-on-one session with Marsudi, Blinken also met with Chinese foreign minister Wang Yi for a discussion of US-China relations that reportedly lasted five hours. Indonesia can take pride in having made that lengthy interaction possible. 

The foreign ministers’ meeting was not without drama. Twice, in response to criticism of Russia, Lavrov walked out of the room, and he left the conference altogether before it ended. Perhaps he forgot that in democracies, praise is not required.  But things in Bali could have gotten much worse, and in that sense America’s presence throughout the event helped save Indonesia’s face.

Biden’s administration has not neglected Indonesia or Southeast Asia, as recent diplomacy shows. In May he accommodated the priority on economic development favored by Indonesia and other Asian states by traveling to Japan to announce the formation of an Indo-Pacific Economic Framework (IPEF). Its 14 founding partners, including Indonesia and six other ASEAN members, account for 40 percent of global GDP. Earlier in May, in Washington, DC, Biden hosted a special summit with Indonesia and other ASEAN states. Their Joint Vision Statement with the US, as in IPEF, emphasized economic cooperation.

None of this diplomacy, however, could temper the strident political polarization that continues to disrupt America. Understandably, that frenzy of distrust and dissension has led some Indonesians to wonder how reliable a partner the US will turn out to be in years to come.    

The splitting of many Americans into rival partisan camps is in part structural. For example, compared with better-educated urban and suburban dwellers, less well-educated rural and small-town Americans are more likely to hold right-wing Republican views. The reasons why those views have become more extreme include the popularity of Donald Trump and his anti-democratic if not proto-fascistic campaign to re-install himself in the White House after losing the free and fair election of 2020.  His effort, Republican complicity in it, and the backlash against it have widened the separation of often coastal or near-coastal Democratic states from Republican ones more or less clustered in middle and southern America. Political scientist and statistician Simon Jackman goes so far as to argue that the US has not been this divided politically since the Great Depression of the 1930s—or possibly even since the 1860s Civil War.

The Vanderbilt University Project on Unity and American Democracy chooses the longer timeline. “Not since the Civil War,” it concludes, “have so many Americans held such radically opposed views not just of politics but of reality itself.” The project’s own findings, however, undermine the caricature of a country fatally hobbled by national schizophrenia and group delusions. 

The Vanderbilt Unity Index combines quarterly data from 1981 to 2021 on five variables—presidential disapproval, congressional polarization, ideological extremism, social mistrust, and civil unrest—to calculate changes in American national unity across those four decades on a 0-to-100 scale, from least to most unified. Over that period of time, the index has fluctuated in a close to middling zone between 50 and 70 on that 100-point scale. 

The index shows deep plunges in unity only twice since 1981, and both of those dives were linked to the uniquely calamitous presidency of President Trump. In contrast, the average score during the first five quarters of the Biden administration has been 58, a sharp improvement from the average of 51 under Trump. Heartened by that betterment, two of the Vanderbilt scholars surmise that America’s “disharmony may be dissipating.”

That could be an overoptimistic guess. Unity is one thing, victory another. Legislative elections will be held on 8 November this year. As of the end of June, prominent forecaster Nate Silver gave the still largely Trump-beholden Republican Party an 87 percent chance — a near-certainty — of replacing Biden’s Democrats as the majority party in the House of Representatives. The race for a majority in the Senate was too close to call. But even if Republicans control only the House, they will likely use that platform to undermine Biden’s administration during his final two years in office.      

As if likely losses of legislative power were not enough for Biden to worry about, maneuvers by Republicans to stack the Supreme Court with right-wing partisans have tilted that juridical balance steeply in their favor. The court’s new reactionary 6-to-3 majority has already made two shocking decisions. They have, in effect, denied women their long-standing right to abortion and made it easier to carry a concealed gun in public. Republicans claim to support individual rights. But they and their court appointees have deleted the long-standing constitutional right of a pregnant woman to decide whether to give birth or not, thereby depriving her of assured responsibility over her physical body and personal future. 

Regarding gun violence, in barely five months from 1 January through 5 June of this year, America has experienced 246 mass shootings — incidents that kill or wound four or more people. That puts the US on track in 2022 to match or exceed its record of 692 mass shootings in 2021, more than in any year since the Gun Violence Archive began counting them. The Republican-majority court’s unconscionable impulses seem to be to make women make more babies, wanted or not, and to make murders more likely as well.

There is good news. First, a massive popular backlash against these Republican decisions has either begun or is likely. Second, a nationally televised Congressional investigation of the violent attack on the US Capitol on 6 January 2021 has displayed the complicity of Trump, and by association the Trump-infected Republican Party, in an insurrection that killed at least seven people and injured roughly 150 more. Third, although Trump may not end up where he belongs, namely, in jail, at least he faces Republican rivals for the party’s nomination to run for president in 2024. Conceivably those rivals could come to include a candidate who is politically more moderate and personally less criminal, corrupt, and narcissistic than he. 

President Joko Widodo will host the G20 leaders in Indonesia merely one week after the 8 November 2022 midterm legislative election takes place in the US. Will Biden go again to Bali? Not if at that time right-wing fanatics claiming election fraud are destabilizing America. For long-term interactions between Jakarta and Washington relations, however, what will matter is not who will attend the 2022 G20 summit in Bali. It will be the names and plans of the Indonesians and Americans who will run and win in the national elections to be held in their respective countries in 2024.


Donald K. Emmerson heads the Southeast Asia Program at Stanford University's Shorenstein Asia-Pacific Research Center. His recent publications include an edited volume, The Deer and the Dragon: Southeast Asia and China in the 21st Century.

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For long-term Jakarta and Washington relations, what will matter is not who will attend the 2022 G20 summit in Bali. It will be the names and plans of the Indonesians and Americans who will run and win in the national elections to be held in their respective countries in 2024.

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This piece was originally published in The Jakarta Post.


Congratulations, Indonesia! What a thrill it was to open my daily copy of The New York Times on Aug. 3 and see a nearly half-page color photo of the jubilant faces and raised fists of Greysia Polii and Apriyani Rahayu as they celebrated their and their country’s Olympic gold medal in women’s- doubles badminton.

Their first-place finish could not have been more timely. Indonesia needs good news. Bloomberg has combined 12 variables to determine where the COVID-19 pandemic is being most-to- least effectively managed.

From April to July, by that measure, Indonesia fell steadily to last place among the 53 countries covered. Such a bad review cannot be explained by domestic underperformance alone. The ferocity of the now ubiquitous Delta variant has played a role. So has vaccine nationalism—the limited and late availability of effective jabs from abroad. Not to mention less well-established variables such as the relative potency of Chinese vaccines. Whatever the reasons, there is little to celebrate regarding the risk to the health of Indonesians.

In this downbeat context, however, and far less well known than Indonesia’s “goodminton” victory in Tokyo, is an upbeat development on Indonesia’s academic front that also deserves Indonesian pride: the five-day inaugural Conference on Indonesian Studies (CIS) held online on June 24-27 Jakarta time. The American Institute for Indonesian Studies and Michigan State University sponsored the meeting with the participation and cooperation of hundreds of students, academics, and educational institutions in Indonesia and the United States. As a long-time would-be Indonesianist, I was happy to attend.

Researchers have more questions than answers. Nationalists reverse the ratio. The scholarly ideal—gathering evidence, testing assertions, birthing, sharing, and comparing ideas— transcends borders. But nationality has long shaped Indonesian studies.

During Dutch rule over the East Indies from 1816 to 1941, with rare exceptions, the archipelago’s past was largely interpreted by Europeans with colonial access. Indonesian studies were dramatically expanded and diversified following World War II. But the birth and growth of “area studies” in Western universities continued to incubate mainly Western scholarly careers.

The recent CIS was doubly important, as an affirmation and a stimulus. Its 326 presentations in 65 different sessions served to remind the roughly 500 attendees from Indonesia and 22 other countries of the breadth and vitality of Indonesian studies and thereby motivate further research.

Included on the program were a first-rate keynote speech by Prof. Aquarini Priyatna of Padjadjaran University on feminist voices in Indonesian literature; the premiere reading in English of Oh by Indonesia’s renowned novelist and playwright Putu Wijaya, whose work I remember applauding at Taman Ismail Marzuki decades ago; and a rousing performance of the wayang lakon (Javanese puppet show) Ciptoning by Ki Purbo Asmoro, ably and simultaneously rendered in English by Kathryn Emerson (no relation).

The conference also conveyed what was on the minds of the more than 300 mainly young and Indonesian panelists who wrote papers and made presentations about their country. Although the topics were diverse, some were more popular than others. A comparison may offer clues as to the subjects for research that are attracting the next generation of Indonesian scholars as they begin to shape the future and focus of Indonesian studies.

The distribution of themes is informative. Nearly half of all the CIS sessions were about culture. Culture in the sense of identity was by far the most popular topic at the conference, including religious and especially Muslim identity, with lesser attention to language and gender. Three genres of performed culture — art, music, and literature—were featured in roughly a fourth of the sessions. Five different sessions took up the blood-shedding watershed of 1965, encouragingly in the light of past silence on the subject. Only three panels focused on the economy, merely three were on climate change, and just two featured foreign policy.


It is tempting to view this evidence for the popularity of cultural identity in Indonesian studies as a local instance of two trends that some scholars have noted: a greater emphasis on identity in political discourse around the world and a related decline in the salience of ideology, including democracy.

Of the 65 conference panels, only two featured democracy, despite the alarm bell that some established Australian and Indonesian scholars had rung in 2020 in a book entitled Democracy in Indonesia; From Stagnation to Regression? Yet human rights and civil liberties in Indonesia were highlighted at the event, including the freedom of creative expression embodied in literature and the arts. A case in point was a session on “Islam Nusantara” featuring scholars from the University o Nahdlatul Ulama Indonesia.


Not even a five-day-long gathering could have dealt with everything. The relative neglect of economics and foreign policy was unfortunate nevertheless. Five days after the conference ended, the World Bank reclassified Indonesia as a lower-middle-income country, down one level from the upper-middle-income status it had previously briefly held. Also basically ignored at the CIS was a key reason for that slippage: COVID-19.

In fairness, these omissions are not unique to Indonesia. Among scholars in area studies worldwide, economists are scarce and health policy experts still harder to find. In my own conversations with foreign advisors in Indonesia during the Soeharto years, some of the number-crunching economists were inclined to dismiss the interpretation-minded anthropologists. Some of the latter reciprocated the disregard. A joke in circulation at the time held that the sole requirement that a development economist needed to meet in order to be a consultant in Indonesia was to have flown over the country once in daylight.

That disciplinary rift may very well be obsolete. But if it isn’t, it should be. Climate-friendly economic development and improved health policies are vital to Indonesia’s future and therefore to the future agenda of Indonesian studies.


As for Indonesian foreign policy, the paucity of CIS panels on that topic has to an extent been compensated for by the laudable efforts of Dino Patti Djalal’s Foreign Policy Community of Indonesia to stimulate and reward the interest and involvement of the younger generation in their country’s future role in the world.

The challenge now is to build on the success of the inaugural CIS to the larger and ongoing benefit of Indonesia’s capacity to navigate these difficult times.


View Emmerson's keynote address at the CIS conference,"Scholarship, Autonomy, and Purpose: Issues in Indonesian Studies" >>

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The American Institute for Indonesian Studies and Michigan State University Asian Studies Center are holding the inaugural Conference on Indonesian Studies this week, June 23-26, 2021. The conference's theme is "Indonesian Studies — Paradigms and New Frontiers." On June 24, APARC's Southeast Asia Program Director Donald K. Emmerson delivered a keynote address, "Scholarship, Autonomy, and Purpose: Issues in Indonesian Studies." Watch the session below:

The Conference on Indonesian Studies seeks to expand research dissemination, activities, and collaboration on the academic study of Indonesia to better understand the archipelago's historical, cultural, linguistic, literary, artistic, economic, environmental, and political dimensions, as well as its role in the Indo-Pacific and the world. The conference connects scholars and academic communities from multiple disciplines based in Indonesia, the United States, the Asia-Pacific, and other global contexts.

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Southeast Asia Program Director Donald K. Emmerson delivers a keynote address at the American Institute for Indonesian Studies–Michigan State University Conference on Indonesian Studies.

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Indonesia is the largest nation in Southeast Asia, but it is still dwarfed by the outsized influence China has in the region. Like many Southeast Asian nations, Indonesia desires strategic autonomy over its foreign policy and statecraft. But as the antagonism between the United States and China grows, there is increasing pressure for Indonesia and the rest of the region to choose sides in the great power competition.

Donald K. Emmerson, director of the Southeast Asia Program, joins Gita Wirjawan on the podcast Endgame to discuss the challenges Indonesia faces as it tries to chart a course of policies that balance its domestic needs and desire for autonomy with the international geopolitical sparrings occurring in its backyard in the South China Sea. The full podcast episode is available below.

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Emmerson draws from his recent book, The Deer and the Dragon: Southeast Asia and China in the 21st Century, to frame the struggle Indonesia faces. Internally, Indonesia faces challenges to its democracy and in managing political and cultural diversity. Externally, there is the challenge of trying to simultaneously work within the often-fractured and disunified structure of ASEAN while still rebutting pressures from China.

In this sense, Indonesia must behave as the mousedeer in local folklore and nimbly navigate around its larger rivals with clever politics and policies. But the realities of the situation are much more complicated. Emmerson and Wirjawan take a deep dive into Indonesia's history, culture, politics, and position in the region and how those factors may affect the country's trajectory towards an endgame. Below is the video version of their conversation.

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On the Endgame podcast, Southeast Asia Program Director Donald K. Emmerson discusses the history and politics that have shaped Indonesia in the past and how that context now affects the country's position in the intensifying rivalry between China and the United States.

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