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Global South Diplomacy and the Reconfiguration of International Order: Indonesia’s Emerging Strategic Role
Corresponding Author(s) : Thomas Sheku Marah
JURNAL HUBUNGAN LUAR NEGERI,
Vol. 11 No. 1 (2026): Jurnal Hubungan Luar Negeri
Abstract
The contemporary international order is characterized by geopolitical fragmentation, institutional pluralism, and demands for inclusive global governance. Existing scholarship explains Indonesia through middle-power diplomacy, strategic hedging, or ASEAN regionalism, but gives limited attention to how its diplomatic positioning produces institutional effects. This article develops the concept of adaptive governance agency to explain how a materially non-dominant state uses agenda mediation, coalition brokerage, and normative translation within asymmetrical governance structures. Employing a qualitative interpretivist design, the study analyzes 75 documents produced between 2014 and early 2026, including presidential speeches, foreign-ministry statements, ASEAN documents, G20 declarations, JETP agreements, partner-government materials, and scholarship. The analysis focuses on Indonesia’s 2022 G20 Presidency, the ASEAN Outlook on the Indo-Pacific, and the Just Energy Transition Partnership. The findings show that Indonesia generated bounded institutional effects through intermediary legitimacy leverage, producing agenda continuity, textual incorporation, and developmental accommodation. Indonesia therefore contributes to the incremental pluralization of international authority through negotiated institutional repositioning, although its influence remains constrained by major-power bargaining, institutional limitations, economic dependence, and domestic interests.
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- Acharya, A. (2017). After liberal hegemony: The advent of a multiplex world order. Ethics & International Affairs, 31(3), 271–285. https://doi.org/10.1017/S089267941700020X
- Acharya, A., Estevadeordal, A., & Goodman, L. W. (2023). Multipolar or multiplex? Interaction capacity, global cooperation and world order. International Affairs, 99(6), 2339–2365. https://doi.org/10.1093/ia/iiad242
- Alden, C., & Vieira, M. A. (2005). The new diplomacy of the South: South Africa, Brazil, India and trilateralism. Third World Quarterly, 26(7), 1077–1095. https://doi.org/10.1080/01436590500235678
- Albuquerque, F. L. (2019). Coalition making and norm shaping in Brazil’s foreign policy in the climate change regime. Global Society, 33(2), 243–261. https://doi.org/10.1080/13600826.2019.1571482
- Anwar, D. F. (2020). Indonesia and the ASEAN outlook on the Indo-Pacific. International Affairs, 96(1), 111–129. https://doi.org/10.1093/ia/iiz223
- Anwar, D. F. (2023). Indonesia’s hedging plus policy in the face of China’s rise and the US–China rivalry in the Indo-Pacific region. The Pacific Review, 36(2), 351–377. https://doi.org/10.1080/09512748.2022.2160794
- As-Saber, S., & Härtel, C. (2023). Cocktail geopolitics and the changing nature of governance. International Journal of Public Administration, 46(5), 373–388. https://doi.org/10.1080/01900692.2021.2001009
- Association of Southeast Asian Nations. (2019). ASEAN outlook on the Indo-Pacific. https://asean.org/wp-content/uploads/2021/01/ASEAN-Outlook-on-the-Indo-Pacific_FINAL_22062019.pdf
- Battilana, J., Leca, B., & Boxenbaum, E. (2009). How actors change institutions: Towards a theory of institutional entrepreneurship. Academy of Management Annals, 3(1), 65–107. https://doi.org/10.5465/19416520903053598
- Bery, S. (2024). Walking a middle path: The liberal international order, global economic governance, and India’s G20 presidency. Oxford Review of Economic Policy, 40(2), 339–349. https://doi.org/10.1093/oxrep/grae015
- Black, D. R., & Hornsby, D. J. (2016). South Africa’s bilateral relationships in the evolving foreign policy of an emerging middle power. Commonwealth & Comparative Politics, 54(2), 151–160. https://doi.org/10.1080/14662043.2016.1151164
- Black, J. (2008). Constructing and contesting legitimacy and accountability in polycentric regulatory regimes. Regulation & Governance, 2(2), 137–164. https://doi.org/10.1111/j.1748-5991.2008.00034.x
- Cabinet Secretariat of the Republic of Indonesia. (2022a, November 28). Gov’t to follow up G20 Summit results in detail. https://setkab.go.id/en/govt-to-follow-up-g20-summit-results-in-detail/?utm
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- Dannhauer, P. (2024). Elite role conceptions and Indonesia’s agency in the ASEAN Outlook on the Indo-Pacific: Reclaiming leadership. The Pacific Review, 37(1), 30–55. https://doi.org/10.1080/09512748.2022.2125999
- Das, A. K., & Takahashi, L. M. (2009). Evolving institutional arrangements, scaling up, and sustainability: Emerging issues in participatory slum upgrading in Ahmedabad, India. Journal of Planning Education and Research, 29(2), 213–232. https://doi.org/10.1177/0739456X09348613
- Degterev, D. A., Ramich, M. S., & Tsvyk, A. V. (2021). U.S.–China: “Power transition” and the outlines of “conflict bipolarity.” Vestnik RUDN. International Relations, 21(2), 210–231. https://doi.org/10.22363/2313-0660-2021-21-2-210-231
- Djuyandi, Y., Azmi, M. F., Sudirman, A., Bhakti, A., Siddha, A., & Ridzuan, A. R. (2026). G20 as an initiative in strengthening global economic connectivity, digital security, and digital entrepreneurship: The case of Indonesia’s presidency. Research Journal in Advanced Humanities, 7(1). https://doi.org/10.58256/bqmhgs54
- Edwina, Y. A., & Edwina, Y. A. (2025). The potential escalation of strategic partnership conflicts in the Indo-Pacific region from the AUKUS trilateral defense pact. Indonesian Journal of International Law, 22(2), Article 1. https://doi.org/10.17304/ijil.vol22.2.1650
- Efstathopoulos, C. (2012). Middle powers and combative diplomacy: South Africa in the 2003 Cancun Ministerial Conference of the World Trade Organisation. Diplomacy & Statecraft, 23(1), 140–161. https://doi.org/10.1080/09592296.2012.651969
- Emmers, R., & Le Thu, H. (2021). Vietnam and the search for security leadership in ASEAN. Asian Security, 17(1), 64–78. https://doi.org/10.1080/14799855.2020.1769068
- European External Action Service. (2022, November 15). The EU and international partners launch ground-breaking Just Energy Transition Partnership with Indonesia. https://www.eeas.europa.eu/delegations/japan/eu-and-international-partners-launch-ground-breaking-just-energy-transition-partnership-indonesia_en?utm
- European External Action Service. (2023, November 21). Indonesia Just Energy Transition Comprehensive Investment and Policy Plan launched. https://www.eeas.europa.eu/delegations/indonesia/indonesia-just-energy-transition-comprehensive-investment-and-policy-plan-launched_en?utm
- Finnemore, M. (1996). National interests in international society. Cornell University Press.
- Finnemore, M., & Sikkink, K. (1998). International norm dynamics and political change. International Organization, 52(4), 887–917. https://doi.org/10.1162/002081898550789
- G20. (2022, November 16). G20 Bali Leaders’ Declaration. Council of the European Union. https://www.consilium.europa.eu/en/press/press-releases/2022/11/16/g20-bali-leaders-declaration/
- Government of Indonesia, & International Partners Group. (2022, November 15). Joint statement on the Just Energy Transition Partnership with Indonesia. Government of Canada. https://www.consilium.europa.eu/en/press/press-releases/2022/11/16/g20-bali-leaders-declaration/?utm
- Ikenberry, G. J. (2018). The end of liberal international order? International Affairs, 94(1), 7–23. https://doi.org/10.1093/ia/iix241
- Japan-ASEAN Integration Fund. (2022, November 1). Progress report on Japan’s cooperation for the ASEAN Outlook on the Indo-Pacific. https://jaif.asean.org/en/news/progress-report-on-japans-cooperation-for-the-asean-outlook-on-the-indo-pacific-aoip/
- JETP Indonesia Secretariat. (2023). JETP Indonesia: Comprehensive Investment and Policy Plan 2023. https://pathways.rmi.org/pathway/JETP-CIPP-2023
- Katzenstein, P. J. (Ed.). (1996). The culture of national security: Norms and identity in world politics. Columbia University Press.
- Levi-Faur, D. (2012). From “big government” to “big governance”? In D. Levi-Faur (Ed.), The Oxford handbook of governance (pp. 3–18). Oxford University Press. https://doi.org/10.1093/oxfordhb/9780199560530.013.0001
- Li, M. (2022). ASEAN’s responses to AUKUS: Implications for strategic realignments in the Indo-Pacific. China International Strategy Review, 4(2), 268–287. https://doi.org/10.1007/s42533-022-00121-2
- Ministry of Foreign Affairs of the Republic of Indonesia. (2024, September 29). Menlu Retno Marsudi serukan “kepemimpinan tanpa hegemoni” di Sidang Majelis Umum PBB ke-79 [Foreign Minister Retno Marsudi calls for “leadership without hegemony” at the 79th United Nations General Assembly]. https://kemlu.go.id/berita/menlu-retno-marsudi-serukan-%22kepemimpinan-tanpa-hegemoni%22-di-sidang-majelis-umum-pbb-ke-79?type=publication&utm
- Mohan, A. K. (2021). Introduction—Exploring urban “Southernness”: Praxes and theory(s). In A. K. Mohan, S. Pellissery, and J. Gómez Aristizábal (Eds.), Theorising urban development from the Global South (pp. 1–28). Palgrave Macmillan. https://doi.org/10.1007/978-3-030-82475-4_1
- Mubah, A. S. (2019). Indonesia’s double hedging strategy toward the United States–China competition: Shaping regional order in the Indo-Pacific? Issues & Studies, 55(4), Article 1940007. https://doi.org/10.1142/S1013251119400071
- Prasetya, D. M., Haffsari, P. P., & Estriani, H. N. (2020). Identity matters: Indonesia’s approach towards territorial disputes in South-east Asia. Maritime Affairs: Journal of the National Maritime Foundation of India, 16(2), 89–105. https://doi.org/10.1080/09733159.2020.1836775
- Ruggie, J. G. (1992). Multilateralism: The anatomy of an institution. International Organization, 46(3), 561–598. https://doi.org/10.1017/S0020818300027831
- Sabrow, S. (2020). Peripheral states and conformity to international norms: The dilemma of the marginalised. Third World Quarterly, 41(2), 187–206. https://doi.org/10.1080/01436597.2019.1637728
- Sudiarto, T. D., Triantama, F., & Pramono, B. K. (2024). Indonesia’s G20 presidency and middle power diplomacy: Building bridges between developed and developing countries. Austral: Brazilian Journal of Strategy & International Relations, 13(25), 75–95. https://doi.org/10.22456/2238-6912.138192
- Suharto, P., Cempaka Timur, F. G., & Sutanto, R. (2024). The development of AUKUS in the Indo-Pacific region and its influence on Indonesia’s policy as a global maritime fulcrum. Journal of Infrastructure, Policy and Development, 8(7), Article 4076. https://doi.org/10.24294/jipd.v8i7.4076
- Tahalele, M. P. (2022). The politics of Indonesia’s development cooperation: Between ideas, institutions, and structures. In E. Parlar Dal (Ed.), G20 rising powers in the changing international development landscape: Potentialities and challenges (pp. 35–63). Springer. https://doi.org/10.1007/978-3-031-07857-6_3
- Teo, S. (2022). Middle power awkwardness? Indonesia’s norm entrepreneurship in ASEAN. In G. Abbondanza and T. S. Wilkins (Eds.), Awkward powers: Escaping traditional great and middle power theory (pp. 151–176). Palgrave Macmillan. https://doi.org/10.1007/978-981-16-0370-9_6
- Visoka, G. (2019). Metis diplomacy: The everyday politics of becoming a sovereign state. Cooperation and Conflict, 54(2), 167–190. https://doi.org/10.1177/0010836718807503
- Wardhani, B., & Dugis, V. (2023). Indonesian foreign policy under the Jokowi administration: Variations on traditional ideas. Issues & Studies, 59(3), Article 2350005. https://doi.org/10.1142/S1013251123500054
- Wendt, A. (1992). Anarchy is what states make of it: The social construction of power politics. International Organization, 46(2), 391–425. https://doi.org/10.1017/S0020818300027764
- Wicaksana, I. G. W. (2021). Economic nationalism for political legitimacy in Indonesia. Journal of International Relations and Development, 24(1), 27–50. https://doi.org/10.1057/s41268-019-00182-8
- Wicaksana, I. G. W., & Yakti, P. D. (2025). Indonesia’s new partial multialignment strategy: A conceptual and empirical analysis. TRaNS: Trans-Regional and -National Studies of Southeast Asia, 13(2), 264–281. https://doi.org/10.1017/trn.2025.1
References
Acharya, A. (2017). After liberal hegemony: The advent of a multiplex world order. Ethics & International Affairs, 31(3), 271–285. https://doi.org/10.1017/S089267941700020X
Acharya, A., Estevadeordal, A., & Goodman, L. W. (2023). Multipolar or multiplex? Interaction capacity, global cooperation and world order. International Affairs, 99(6), 2339–2365. https://doi.org/10.1093/ia/iiad242
Alden, C., & Vieira, M. A. (2005). The new diplomacy of the South: South Africa, Brazil, India and trilateralism. Third World Quarterly, 26(7), 1077–1095. https://doi.org/10.1080/01436590500235678
Albuquerque, F. L. (2019). Coalition making and norm shaping in Brazil’s foreign policy in the climate change regime. Global Society, 33(2), 243–261. https://doi.org/10.1080/13600826.2019.1571482
Anwar, D. F. (2020). Indonesia and the ASEAN outlook on the Indo-Pacific. International Affairs, 96(1), 111–129. https://doi.org/10.1093/ia/iiz223
Anwar, D. F. (2023). Indonesia’s hedging plus policy in the face of China’s rise and the US–China rivalry in the Indo-Pacific region. The Pacific Review, 36(2), 351–377. https://doi.org/10.1080/09512748.2022.2160794
As-Saber, S., & Härtel, C. (2023). Cocktail geopolitics and the changing nature of governance. International Journal of Public Administration, 46(5), 373–388. https://doi.org/10.1080/01900692.2021.2001009
Association of Southeast Asian Nations. (2019). ASEAN outlook on the Indo-Pacific. https://asean.org/wp-content/uploads/2021/01/ASEAN-Outlook-on-the-Indo-Pacific_FINAL_22062019.pdf
Battilana, J., Leca, B., & Boxenbaum, E. (2009). How actors change institutions: Towards a theory of institutional entrepreneurship. Academy of Management Annals, 3(1), 65–107. https://doi.org/10.5465/19416520903053598
Bery, S. (2024). Walking a middle path: The liberal international order, global economic governance, and India’s G20 presidency. Oxford Review of Economic Policy, 40(2), 339–349. https://doi.org/10.1093/oxrep/grae015
Black, D. R., & Hornsby, D. J. (2016). South Africa’s bilateral relationships in the evolving foreign policy of an emerging middle power. Commonwealth & Comparative Politics, 54(2), 151–160. https://doi.org/10.1080/14662043.2016.1151164
Black, J. (2008). Constructing and contesting legitimacy and accountability in polycentric regulatory regimes. Regulation & Governance, 2(2), 137–164. https://doi.org/10.1111/j.1748-5991.2008.00034.x
Cabinet Secretariat of the Republic of Indonesia. (2022a, November 28). Gov’t to follow up G20 Summit results in detail. https://setkab.go.id/en/govt-to-follow-up-g20-summit-results-in-detail/?utm
Cabinet Secretariat of the Republic of Indonesia. (2022b, April 29). Statement of President of the Republic of Indonesia on Indonesia’s G20 presidency, Bogor Presidential Palace, West Java Province, April 29, 2022. https://setkab.go.id/en/statement-of-president-of-the-republic-of-indonesia-on-indonesias-g20-presidency-bogor-presidential-palace-west-java-province-april-29-2022/?utm
Dannhauer, P. (2024). Elite role conceptions and Indonesia’s agency in the ASEAN Outlook on the Indo-Pacific: Reclaiming leadership. The Pacific Review, 37(1), 30–55. https://doi.org/10.1080/09512748.2022.2125999
Das, A. K., & Takahashi, L. M. (2009). Evolving institutional arrangements, scaling up, and sustainability: Emerging issues in participatory slum upgrading in Ahmedabad, India. Journal of Planning Education and Research, 29(2), 213–232. https://doi.org/10.1177/0739456X09348613
Degterev, D. A., Ramich, M. S., & Tsvyk, A. V. (2021). U.S.–China: “Power transition” and the outlines of “conflict bipolarity.” Vestnik RUDN. International Relations, 21(2), 210–231. https://doi.org/10.22363/2313-0660-2021-21-2-210-231
Djuyandi, Y., Azmi, M. F., Sudirman, A., Bhakti, A., Siddha, A., & Ridzuan, A. R. (2026). G20 as an initiative in strengthening global economic connectivity, digital security, and digital entrepreneurship: The case of Indonesia’s presidency. Research Journal in Advanced Humanities, 7(1). https://doi.org/10.58256/bqmhgs54
Edwina, Y. A., & Edwina, Y. A. (2025). The potential escalation of strategic partnership conflicts in the Indo-Pacific region from the AUKUS trilateral defense pact. Indonesian Journal of International Law, 22(2), Article 1. https://doi.org/10.17304/ijil.vol22.2.1650
Efstathopoulos, C. (2012). Middle powers and combative diplomacy: South Africa in the 2003 Cancun Ministerial Conference of the World Trade Organisation. Diplomacy & Statecraft, 23(1), 140–161. https://doi.org/10.1080/09592296.2012.651969
Emmers, R., & Le Thu, H. (2021). Vietnam and the search for security leadership in ASEAN. Asian Security, 17(1), 64–78. https://doi.org/10.1080/14799855.2020.1769068
European External Action Service. (2022, November 15). The EU and international partners launch ground-breaking Just Energy Transition Partnership with Indonesia. https://www.eeas.europa.eu/delegations/japan/eu-and-international-partners-launch-ground-breaking-just-energy-transition-partnership-indonesia_en?utm
European External Action Service. (2023, November 21). Indonesia Just Energy Transition Comprehensive Investment and Policy Plan launched. https://www.eeas.europa.eu/delegations/indonesia/indonesia-just-energy-transition-comprehensive-investment-and-policy-plan-launched_en?utm
Finnemore, M. (1996). National interests in international society. Cornell University Press.
Finnemore, M., & Sikkink, K. (1998). International norm dynamics and political change. International Organization, 52(4), 887–917. https://doi.org/10.1162/002081898550789
G20. (2022, November 16). G20 Bali Leaders’ Declaration. Council of the European Union. https://www.consilium.europa.eu/en/press/press-releases/2022/11/16/g20-bali-leaders-declaration/
Government of Indonesia, & International Partners Group. (2022, November 15). Joint statement on the Just Energy Transition Partnership with Indonesia. Government of Canada. https://www.consilium.europa.eu/en/press/press-releases/2022/11/16/g20-bali-leaders-declaration/?utm
Ikenberry, G. J. (2018). The end of liberal international order? International Affairs, 94(1), 7–23. https://doi.org/10.1093/ia/iix241
Japan-ASEAN Integration Fund. (2022, November 1). Progress report on Japan’s cooperation for the ASEAN Outlook on the Indo-Pacific. https://jaif.asean.org/en/news/progress-report-on-japans-cooperation-for-the-asean-outlook-on-the-indo-pacific-aoip/
JETP Indonesia Secretariat. (2023). JETP Indonesia: Comprehensive Investment and Policy Plan 2023. https://pathways.rmi.org/pathway/JETP-CIPP-2023
Katzenstein, P. J. (Ed.). (1996). The culture of national security: Norms and identity in world politics. Columbia University Press.
Levi-Faur, D. (2012). From “big government” to “big governance”? In D. Levi-Faur (Ed.), The Oxford handbook of governance (pp. 3–18). Oxford University Press. https://doi.org/10.1093/oxfordhb/9780199560530.013.0001
Li, M. (2022). ASEAN’s responses to AUKUS: Implications for strategic realignments in the Indo-Pacific. China International Strategy Review, 4(2), 268–287. https://doi.org/10.1007/s42533-022-00121-2
Ministry of Foreign Affairs of the Republic of Indonesia. (2024, September 29). Menlu Retno Marsudi serukan “kepemimpinan tanpa hegemoni” di Sidang Majelis Umum PBB ke-79 [Foreign Minister Retno Marsudi calls for “leadership without hegemony” at the 79th United Nations General Assembly]. https://kemlu.go.id/berita/menlu-retno-marsudi-serukan-%22kepemimpinan-tanpa-hegemoni%22-di-sidang-majelis-umum-pbb-ke-79?type=publication&utm
Mohan, A. K. (2021). Introduction—Exploring urban “Southernness”: Praxes and theory(s). In A. K. Mohan, S. Pellissery, and J. Gómez Aristizábal (Eds.), Theorising urban development from the Global South (pp. 1–28). Palgrave Macmillan. https://doi.org/10.1007/978-3-030-82475-4_1
Mubah, A. S. (2019). Indonesia’s double hedging strategy toward the United States–China competition: Shaping regional order in the Indo-Pacific? Issues & Studies, 55(4), Article 1940007. https://doi.org/10.1142/S1013251119400071
Prasetya, D. M., Haffsari, P. P., & Estriani, H. N. (2020). Identity matters: Indonesia’s approach towards territorial disputes in South-east Asia. Maritime Affairs: Journal of the National Maritime Foundation of India, 16(2), 89–105. https://doi.org/10.1080/09733159.2020.1836775
Ruggie, J. G. (1992). Multilateralism: The anatomy of an institution. International Organization, 46(3), 561–598. https://doi.org/10.1017/S0020818300027831
Sabrow, S. (2020). Peripheral states and conformity to international norms: The dilemma of the marginalised. Third World Quarterly, 41(2), 187–206. https://doi.org/10.1080/01436597.2019.1637728
Sudiarto, T. D., Triantama, F., & Pramono, B. K. (2024). Indonesia’s G20 presidency and middle power diplomacy: Building bridges between developed and developing countries. Austral: Brazilian Journal of Strategy & International Relations, 13(25), 75–95. https://doi.org/10.22456/2238-6912.138192
Suharto, P., Cempaka Timur, F. G., & Sutanto, R. (2024). The development of AUKUS in the Indo-Pacific region and its influence on Indonesia’s policy as a global maritime fulcrum. Journal of Infrastructure, Policy and Development, 8(7), Article 4076. https://doi.org/10.24294/jipd.v8i7.4076
Tahalele, M. P. (2022). The politics of Indonesia’s development cooperation: Between ideas, institutions, and structures. In E. Parlar Dal (Ed.), G20 rising powers in the changing international development landscape: Potentialities and challenges (pp. 35–63). Springer. https://doi.org/10.1007/978-3-031-07857-6_3
Teo, S. (2022). Middle power awkwardness? Indonesia’s norm entrepreneurship in ASEAN. In G. Abbondanza and T. S. Wilkins (Eds.), Awkward powers: Escaping traditional great and middle power theory (pp. 151–176). Palgrave Macmillan. https://doi.org/10.1007/978-981-16-0370-9_6
Visoka, G. (2019). Metis diplomacy: The everyday politics of becoming a sovereign state. Cooperation and Conflict, 54(2), 167–190. https://doi.org/10.1177/0010836718807503
Wardhani, B., & Dugis, V. (2023). Indonesian foreign policy under the Jokowi administration: Variations on traditional ideas. Issues & Studies, 59(3), Article 2350005. https://doi.org/10.1142/S1013251123500054
Wendt, A. (1992). Anarchy is what states make of it: The social construction of power politics. International Organization, 46(2), 391–425. https://doi.org/10.1017/S0020818300027764
Wicaksana, I. G. W. (2021). Economic nationalism for political legitimacy in Indonesia. Journal of International Relations and Development, 24(1), 27–50. https://doi.org/10.1057/s41268-019-00182-8
Wicaksana, I. G. W., & Yakti, P. D. (2025). Indonesia’s new partial multialignment strategy: A conceptual and empirical analysis. TRaNS: Trans-Regional and -National Studies of Southeast Asia, 13(2), 264–281. https://doi.org/10.1017/trn.2025.1