Open access Vol. 6 No. 2 (2026) · pp. 145-159

Regulation of Community Organizations in Indonesia:

Toward a Proportionate Regulatory Framework

Authors

  • Muhaimin Universitas Teknologi Surabaya, Indonesia
  • Novi Enjelina Putri Universitas Teknologi Surabaya
Abstract

Freedom of association is a constitutional right guaranteed under Article 28 and Article 28E(3) of the 1945 Constitution of the Republic of Indonesia. Nevertheless, the development of regulations governing community organizations (Ormas) in Indonesia has not followed a linear trajectory from repression toward democratization. This study examines changes in the regulatory regime governing Ormas based on three principal legal instruments: Law No. 8 of 1985, Law No. 17 of 2013, and Law No. 16 of 2017. The study employs a normative juridical method with a qualitative and historical-analytical approach. Unlike previous studies, which have generally adopted a descriptive-historical approach, this study analyzes the three legal regimes through the framework of manifest and latent functions. This framework demonstrates that the expansion of opportunities for Ormas participation following the Reform Era did not necessarily eliminate the coercive power of the state. Rather, the expansion of participation occurred alongside selective facilitation and practices of co-optation. The findings indicate that compliance with the principle of proportionality, which encompasses legality, legitimate aims, and the necessity and balancing of measures, varies across the three regulatory regimes. Law No. 8 of 1985 fails to satisfy the latter two elements. Law No. 17 of 2013 provides a stronger normative framework but faces weaknesses in its implementation. Meanwhile, Law No. 16 of 2017 represents a regression in terms of proportionality by eliminating judicial review mechanisms in the process of dissolving Ormas. Based on these findings, this study proposes four policy principles as a basis for restructuring Ormas regulation: legal certainty, restoration of fair legal process, strengthening the state’s supportive functions, and symmetrical accountability. These four principles are expected to provide a relevant framework for the Ministry of Home Affairs’ agenda for reforming Ormas regulation.

Keywords
  • Freedom of Association
  • legal proportionality
  • ormas regulation
  • co-optation
  • repression
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Regulation of Community Organizations in Indonesia:: Toward a Proportionate Regulatory Framework. (2026). Bestuurskunde: Journal of Governmental Studies, 6(2), 145-159. https://doi.org/10.53013/bestuurskunde.6.2.145-159

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