Queering Internet Governance in Indonesia
An exploratory research in Indonesia
Authors:
Kamilia Manaf
Dewi Nova Wahyuni
Ikram Baadila
Contributors:
Ni Loh Gusti Madewanti
Nyx Mclean
Manjima Bhattacharjya
Reviewers:
Jac SM Kee
Nadine Moawad
Caroline Tagny
Charrisse Jordan
Sheherezade Kara
Bishakha Datta
Publication production:
Hanny Ika Yuniati
Published by Institut Pelangi Perempuan in cooperation with
Association for Progressive Communication and Ford Foundation
2014
ISBN 978-979-17983-4-1

ii

Queering Internet Governance in Indonesia

Table of Contents
Executive Summary............................................................................

iv

Part I Introduction..............................................................................

1

Background ...................................................................................

1

Purpose and Objective..................................................................

2

Part II Research Methodology...........................................................

4

Part III Terms and Concepts .............................................................

8

Part IV Findings : Situation of LGBTIQ in Indonesia and Internet
Governance............................................................................

15

A. Internet is Strategic Media to Promote and Enforce Human
Rights of LGBTIQ......................................................................

18

B. Abandonment of Rights of LGBTIQ on the Internet ...............

25

C. Involvement of LGBTIQ Movement in Indonesia in Queering
Internet Governance at National and Global Level.................

38

Part V Analysis Conclusion and Recommendation ..........................

45

Conclusion......................................................................................

45

Recommendation..........................................................................

53

References...........................................................................................

58

About the Authors..............................................................................

64

iii

EXECUTIVE SUMMARY

Queering
Internet Governancein Indonesia
A. INTRODUCTION
In Indonesia, sexuality has gradually become a more and more open
public discourse. Conflict on discourse of sexuality expands throughthe use of Internet. On the one hand, Internet has given space to theadvancement of Human Rights including Human Rights of Lesbian, Gay,
Bi-sexual, Transgender, Intersex and Queer (LGBTIQ). On the other hand,
the technology creates a space, which preserves status quo, discriminationand violence against LGBTIQ that has previously been evident in offline
spaces. That is, due to the lack of human rights protection of LGBTIQ on
Internet governance, as is the lack of security in the same physical space.
Harassment and homophobic bullying, which include online deliveryof hate speech against the LGBTIQ referred to as cyber-homophobia isamong the behaviors appearing in social network and other cyber spaces.
The blockade of LGBTIQ websites by several Internet Service Providers(ISP) has been happening since 2011. The act is often a one-sided decision
without prior notification to owner of website. More often than not, theprocess is committed by both ISP and Ministry of Communication andiv

Queering Internet Governance in Indonesia

Informatics Republic of Indonesia, without a transparent and accountableconsultation to the owner of the website. This is clearly detrimental toany individual or group in an effort to access information about humanrights, reproductive rights and sexual rights.

B. CHALLENGING BACK DISCRIMINATION: Queering Internet through
EROTICS Indonesia Exploratory Research
Refused to become part of the silent majority, Institut Pelangi
Perempuan (IPP) conducted an exploratory research related to the
LGBTIQ rights in the internet governance in Indonesia. This research is
an attempt to challenge and build social movements through a processof advocacy in the fight against cyber-homophobia and blocking decisions
unilaterally LGBTIQ sites in Indonesia. The movement initiated by IPP to
be a part of a social movement that wants to introduce to the term ofqueering Internet governance.
In an effort to ‘queering’, this research has an urgent and important
to be conducted to observe a problem that has not yet been able to beclearly identified in terms of situation and existence. More often thannot, such case appears when we have not had enough knowledge on
conceptual difference and articulation of facts in exploratory relation.1
IPP conducts the research in cooperation with EROTICS2 (Exploratory
Research on Internet and Sexuality) in Indonesia. EROTICS has been
conducted in several countries in the world including Brazil, Lebanon,
India, USA and South Africa. The EROTICS global network is working under
the coordination of Association for Progressive Communication (APC),3
an international organization working in research, policy advocacy, andcampaign of Internet Rights as part of Human Rights.
1

Shields, Patricia and Rangarjan, Nandhini. 2013. A Playbook for REsearch Methods: Integrating Conceptual Frameworks and Project Management. Stillwater, OK: New Forums
Press.

2

EROTICS: Sex, Rights and the internet, http://www.genderit.org/resources/erotics-sexrights-and-internet-study

3

Association for Progressive Communication www.apc.orgvConsider the reference data that has been previously studied, so
far there is no research data that can be one of reference for thedevelopment to the discourse of LGBTIQ human rights discourse on
Internet governance in Indonesia. For this reason, exploratory researchunder collaboration work between IPP and EROTICS becomes important
to be conducted.

C. VOICE OF THE RESOURCES PERSON: Part of The Movement Against
Discrimination and ViolenceThis exploratory research has three main objectives in order to fulfill andprotect the rights of LGBTIQ, both individuals and groups on the internet
medium. In an effort to queering, the results of this research aims to (1)Explain the role of internet in advancing the Human Rights of LGBTIQ and
LGBTIQ online activism in Indonesia. (2) Articulate LGBTIQ advocacy inintegrating Human Rights of LGBTIQ in internet governance or queering
the internet governance in Indonesia. (3) Articulate challenges of LGBTIQ
movements in Indonesia both in offline and online spaces in order to map
the relation between the two.
By using a feminist analysis, it should be underlined that in this
exploratory research is not intended to give final answer but to build
hypotheses on what has been happening in relation to a certain situation.
Subjects of the research were part of a collaborative effort of advocacy inorder to generate hypotheses about what is happening to a situation, inparticular cases of discrimination, violence and harassment experienced
by individuals and groups of LGBTIQ in the internet space.
These hypotheses will become questions describing two or moreinter-connected variables. In order for the results of this study favor
the protective measures, enforcement and fulfillment of human rights,
especially for marginalized groups, exploratory qualitative researchrequires the researcher to build a good relationship (rapport) withinformants. Building trust through communication started in online
portals, frequently asked questions and correspondence using onlinevi

Queering Internet Governance in Indonesia

media, followed by direct interview and build spaces that liquid in a
focused group discussion (FGD). The participants involved in the research
are activists from various civil society organizations such as Satu Dunia,
ICT Watch, the Institute for Criminal and Justice Reform (ICJR), National
Commission on Violence Against Women (Komnas Perempuan), HIVOSSouth East Asia region, Research Division of the London School of Public
Relations Jakarta and ICT activists individuals. FGD aims to clarify andconsult on the design -outline of the research results.
These methods are selected so that the process of this exploratory
research, the data can be explored related meanings, values​​, andexperiences of the informants. Exploratory qualitative approach, using
framework analysis of feminism and human rights instruments, areneeded to collect a variety of information regarding the promotion andthe neglect of human rights in the world online LGBTIQ associated withthe practices and policies in the offline world.

D. URGENCY OF EROTICS INDONESIA: What is the Importance of Exploratory Research?
The method is performed in an effort to queering Human Rights
LGBTIQ both individuals and groups related to internet governance, firststep was done with data collecting technique through EROTICS global
survey, which was launched on March 8, 2013 by the APC. The reason for
employing this technique is to disclose various challenges faced by sexual
rights activists in using the internet at the global level. This survey was
distributed worldwide in EROTICS focus countries namely India, Lebanon,
South Africa, Brazil, USA, and Indonesia.
These International survey has been conducted globally, was very
interesting. To see the variations in the context of forms of violence asa real challenge for LGBTIQ both individuals and groups and advocacy
efforts that have been made, as part of the fulfillment of the human rights
struggle.

vii

As an initial trigger, it already determined the respondents of EROTICS
Indonesia research, the respondents were the sexual rights activists suchas LGBTIQ human rights activists, women activists living with HIV/AIDS,
feminist on the Islamic boarding school, anti-human trafficking activists,
National Commission on Violence Against Women (Komnas Perempuan),academics on gender issues and sexuality and other sexual rights activists.
Primary data from a survey of Indonesian EROTICS serve as guidelines forelaborating it through in-depth interviews. It is important to do the indepth exploration of the data from the primary data survey.
This data collection technique is considered appropriate for the
research as it facilitates exploration of experience of various actors. As
much as 11 activists consist of 3 females and 8 males participate in theinterview. Some of them are LGBTIQ activists and activists of internet
rights and internet governance as well as women’s rights activists.
The gender gap of people we interviewed really represents the limited
participation of women or transgender activists who are quite active in
voicing for the internet or communication and information technology
rights. Men remain dominant in the interview. Three (2 men and 1 woman)of the 11 in-depth interview informants were also the EROTICS Indonesia
survey respondents.

E.’QUEERING’: The Citizen’s Demands and Social Movements
Various attempts have been mentioned affirmative thoroughprotection and respect to every individual that sexual orientation andgender identity varied. On June 17, 2011 the UN Human Rights Council
adopted a resolution titled “Human rights, sexual orientation and gender
identity”, which expressed grave concern about acts of violence anddiscrimination committed against individuals because of their sexual
orientation and gender identity. This resolution reaffirms Universal
Declaration of Human Rights ratified by the Government of Indonesia
through enactment of Act No. 39 Year 1999 on Human Rights. The
resolution requested the UN High Commissioner for Human Rights toviii

Queering Internet Governance in Indonesia

prepare a study documenting discriminatory laws and practices andacts of violence against individuals based on their sexual orientationand gender identity. The study4 was published in December 2011 andpresented to the Human Rights Council in March 2012 and contains a listof strong recommendations to Member States. The report affirms that
States have a duty under international law to protect the human rights ofall persons, including those who are lesbian, gay, bisexual, transgenderand intersex.
On July 5, 2012, was an important milestone the Human Rights Councilof UN has adopted Resolution on Promotion, Protection and Enjoymentof Human Rights in Internet.5 The resolution was supported by 70 member
countries of the Human Rights Council including China, Brazil, Nigeria,
Ukraine, Tunisia, USA, England and Indonesia. The resolution basicallyaffirms its operating principle in paragraph 1 by stating that “humanrights owned by individual in offline world should also be protected in
online spaces”. The basic principles of human rights in relation to Internet
include privacy, freedom of expression, rights to receive information,
protection of culture, languages and diversity, and rights for education(Kurbalija, 2012).
Queering internet governance moved from the experiences andawareness that internet is a subject/actor that plays an important part aspolitical and public sphere in social transformation. Internet as a politicaland public sphere is influenced by multi-stakeholder with diversity andvarious gender identity and sexual orientation hence it will make thecontent and policy on internet in need of a continous advocacy process.
IPP develops the concept as a way to build theory based on experiences
and research result, and it is open for falsification and verification. The
promotion of this theory will benefit the organization in developing4

http://www2.ohchr.org/english/bodies/hrcouncil/docs/19session/A.HRC.19.41_English.
pdf

5

UN Human Rights Council, Resolution: The promotion, protection and enjoyment of
human rights on the Internet, A/HRC/20/L.13, adopted on 5 July 2012ix

strategy and advocacy to fight cyber-homophobia, including the blockageof LGBTIQ websites.
There are at least three purposes of enjoying the internet existence by
the LGBTIQ movement, firstly, to use the internet to provide a safe media
of communication to organize the group; secondly, to be used as media
to disseminate advocacy and education; thirdly, facilitate extension of
spaces of advocacy, not only with regards to the issue of LGBTIQ but also
to other Human Rights issues including the rights of minority groups,
women, environment and others. From three interests of the existenceof the internet, the effort to Queering internet governance is an urgent
matter.

x

Queering Internet Governance in Indonesia

Part I

Introduction
BackgroundIn Indonesia, sexuality has gradually become a more and more open
public discourse. Conflict on discourse of sexuality expands throughthe use of Internet. On the one hand, Internet has given space tothe advancement of Human Rights including Human Rights of Lesbian,Gay, Bi-sexual, Transgender, Intersex and Queer (LGBTIQ). On the other
hand, the technology creates a space, which preserves status quo,
discrimination and violence against LGBTIQ that has previously been
evident in offline spaces.
Harassment and homophobic bullying, which include online deliveryof hate speech against the LGBTIQ referred to as cyber-homophobia isamong the behaviors appearing in social network and other cyber spaces.
The blockade of LGBTIQ websites by several Internet Service Providers(ISP) has been happening since 2011. The act is often a one-sided decision
without prior notification to owner of website. More often than not, theprocess is committed by both ISP and Ministry of Communication andInformatics Republic of Indonesia, without a transparent and accountableconsultation to the owner of the website.

1

Purpose and Objective
In response to such situation, in 2012, LGBTIQ activists began
advocating Human Rights of LGBTIQ in the area of Internet management.
These activists include Institut Pelangi Perempuan (IPP), Ourvoice (OV),
Arus Pelangi and Gamacca. The social movement and process of advocacy
against cyber-homophobia and the decision to close LGBTIQ websites inIndonesia then become a movement introduced as “Queering Internet
Governance in Indonesia.”
IPP in collaboration with organizations mentioned above initiate
exploratory research in relation to Human Rights of LGBTIQ and theinternet governance in Indonesia.
Exploratory research is conducted to observe a problem that has
not yet been able to be clearly identified in terms of situation andexistence. More often than not, such case appears when we have nothad enough knowledge on conceptual difference and articulation of facts
in exploratory relation.1 IPP conducts the research in cooperation withEROTICS (Exploratory Research on Internet and Sexuality) in Indonesia2.
EROTICS has been conducted in several countries in the world including
Brazil, Lebanon, India, USA and South Africa. The EROTICS global
network is working under the coordination of Association for Progressive
Communication (APC),3 an international organization working inresearch, policy advocacy, and campaign of Internet Rights as part of
Human Rights. The result of this research is expected to serve as one of
the materials in developing the discourse of Human Rights of LGBTIQ ininternet governance in Indonesia.
The objectives of this research are to:• Explain the role of internet in advancing the Human Rights of2

1

Shields, Patricia and Rangarjan, Nandhini. 2013. A Playbook for REsearch Methods:
Integrating Conceptual Frameworks and Project Management. Stillwater, OK: New
Forums Press.

2

EROTICS: Sex, Rights and the internet, http://www.genderit.org/resources/erotics-sexrights-and-internet-study

3

Association for Progressive Communication www.apc.org

Queering Internet Governance in Indonesia

••

LGBTIQ and LGBTIQ online activism in Indonesia.
Articulate LGBTIQ advocacy in integrating Human Rights of LGBTIQ
in internet governance or queering the internet governance inIndonesia.
Articulate challenges of LGBTIQ movements in Indonesia both inoffline and online spaces in order to map the relation between thetwo.

Several questions explored in this research include:
1. How is the role of internet in promoting Human Rights of LGBTIQ
and advancing the LGBTIQ movement in Indonesia?
2. How is the situation of online discrimination and violence against
LGBTIQ in the context of Law and Human Rights?
3. What are the strategies of advocacy selected by LGBTIQ movement
in queering internet governance in Indonesia, and what are theways and roads taken?

3Part I

Research MethodologyThe research uses qualitative and exploratory design method, which
limits the study to identification of ideas, thoughts and knowledge
in relation to the issue. This methodology is selected to provide
better understanding on a situation. In addition, this research is design not
to give final answer but to build hypotheses on what has been happening
in relation to a certain situation. These hypotheses will become questions
describing two or more inter-connected variables. Follow up researchis necessary to further study the findings of this exploratory research.4
Both approaches are used to collect information on online advancement
and ignorance of Human Rights of LGBTIQ in relation to practices andpolicies in offline spaces. Exploratory research with qualitative method
requires a natural setting. Hence, researcher needs to build rapport withinformants. Trust building starts with online communication, inquiry andcorrespondence followed by direct interview. The method is used to
explore data in relation to meaning, value, and experience of informant.
This study also employs data collecting technique through EROTICS
global survey, which was launched on March 8, 2013 by the APC. The
reason for employing this technique is to disclose various challenges
faced by sexual rights activists in using the internet at the global level.
This survey was distributed worldwide in EROTICS focus countries namely

44

Exploratory, Descriptive and Causal Research Design http://www.monroecollege.edu/
AcademicResources/ebooks/9781111532406_lores_p01_ch03.pdf

Queering Internet Governance in Indonesia

India, Lebanon, South Africa, Brazil, USA, and Indonesia. Indonesian
respondents of the global survey include activists of sexual rights andHuman Rights of LGBTIQ, Women Living with HIV/AIDS, Muslim feminists
based in Islamic Boarding School (pesantren), anti-trafficking in person
activists, National Commission on Anti Violence Against Women (Komnas
Perempuan), academics working on the issue of gender and sexuality andother activists of sexual rights. In addition, in-depth interview to exploreand verify data has also been conducted. This data collection technique
is considered appropriate for the research as it facilitates exploration ofexperience of various actors. As much as 11 activists consist of 3 females
and 8 males participate in the interview. Some of them are LGBTIQ
activists and activists of internet rights and internet governance as well as
women’s rights activists. The gender gap of people we interviewed really
represents the limited participation of women or transgender activists
who are quite active in voicing for the internet or communication andinformation technology rights. Men remain dominant in the interview.
Three (2 men and 1 woman) of the 11 in-depth interview informants werealso the EROTICS Indonesia survey respondents.
After conducting survey and in-depth interview, the team also organizedfocused group discussion by inviting research respondents and involving
other civil society organizations such as Satu Dunia, ICT Watch, Institutefor Criminal and Justice Reform, National Commission on Anti-Violence
Against Women (Komnas Perempuan), HIVOS South East Asia Region,
division of research of the London School of Public Relations Jakarta, andindividuals who are active in information and communication technology.
The FGD was aimed to clarify and consult the result of research.
The secondary data is obtained through library study, peer-reviewed
journal, bulletin, newspaper articles and other related documents.

5

Part I I

Terms and Concepts
Bullying is the use of power, threat or force to abuse, intimidate
or aggressively force domination over the other. The act is often
committed repeatedly and becomes a habit. One of the most important
requirements for bullying is perception and unequal social and physicalrelation. The behavior employed to affirm domination may include verbal
harassment and physical attack directed repeatedly toward certain
target. Rationalization of such act often comes from differences in class,race, religion, gender, sexuality, appearance, behavior, power, size andability (Ericson, 2001).
Bullying consists of four types of harassment namely emotional, verbal,
physical, and cyber bullying committed through medium of technology(Brank, 2012). They who have become target of bullying may suffer fromemotional and behavior problem that can last longer. Bullying also causes
isolation, depression, anxiety, and vulnerability toward diseases (Kipling,2013). There are evidence that bullying increases the risk of suicide (Kim,
2008).
CEDAW (Convention on Elimination of All Forms of Discrimination
Against Women) 5, CEDAW was adopted in 1979 by UN General Assembly.
It is considered as international instrument on the rights of women.

5

6

Look at the websites of UN Women http://www.un.org/womenwatch/daw/cedaw/cedaw.htm

Queering Internet Governance in Indonesia

The convention consists of a preamble and 30 articles which define
discrimination of women and instill national agenda of action to end
discrimination. Indonesia has ratified CEDAW through Act No.7 Year 1984on Ratification of Convention on Elimination of All Forms of Discrimination
Against Women.
Coming Out, a colloquial terms to define an act of revealing sexual and/or
gender identity of the LGBTIQ.
Cyber-homophobia, cyber bullying and hate speech against certain nonheterosexual sexual orientation and gender identity that looks ‘different’
from the crowd. The target of this homophobic attack is not always
directed to those clearly identified as having different sexual and gender
identity but also against heterosexuals that operates against the social
norms. Based on the data issued by United Nations Educational Scientificand Cultural Organization (UNESCO), homophobic bullying is the second
biggest bullying in the world.6
Discrimination, refers to The Yogyakarta Principles7. Discrimination isdefined in the Yogyakarta Principles on the Application of International
Human Rights Law in relation to Sexual Orientation and Gender Identity.
The Principles are aimed at applying binding international human rights
standards to address human rights violations based on sexual orientationand gender identity. The Principles were developed and adopted in
Yogyakarta at Universitas Gadjah Mada on November 6-9, 2006 by aninternational group of legal experts, including judges, academics, aformer UN High Commissioner for Human Rights, UN Special Procedures,
members of treaty bodies, NGOs and others. The document contains 29
principles adopted unanimously by the experts, which are directed at State
6

Look at website http://www.unesco.org/new/en/education/themes/leading-the-international-agenda/health-education/homophobic-bullying/, on Cyber Bullying

7

The Yogyakarta Principles www.yogyakartaprinciples.org

7

implementation, along with other recommendations for UN bodies andhuman rights mechanisms, regional and sub-regional intergovernmentalorganisations, courts, national human rights institutions, NGOs, the mass
media and others.
Principle 2 of the Yogyakarta Principles namely The Rights to Equality
and Non Discrimination asserts that “Discrimination on the basis ofsexual orientation or gender identity includes any distinction, exclusion,
restriction or preference based on sexual orientation or gender identity
which has the purpose or effect of nullifying or impairing equality before
the law or the equal protection of the law, or the recognition, enjoyment
or exercise, on an equal basis, of all human rights and fundamental
freedoms. Discrimination based on sexual orientation or gender identity
may be, and commonly is, compounded by discrimination on othergrounds including gender, race, age, religion, disability, health andeconomic status.”
Homophobic bullying is hatred against sexuality and non-heteronormative sexual orientation. The target of homophobic bullying is notalways those considered as different in terms of sexual orientation andgender identity but also heterosexual whose gender expression seems
different from the accepted norms and existing social construction.
Homophobic bullying is the second largest case of bullying in the world
based on the report of United Nations Educational Scientific and Cultural
Organization (UNESCO).8
Homophobic bullying is “a moral savagery and serious violation against
human rights and society health crisis,” exclaimed UN Secretary General
Ban Ki-moon.

8

8

Look at the following website http://www.unesco.org/new/en/education/themes/
leading-the-international-agenda/health-education/homophobic-bullying/, on Cyber
Bullying.

Queering Internet Governance in Indonesia

Homosexuality and Transgender are not mental disorder. In May 17, 1990,
World Health Organization has eliminated homosexuality from the list ofmental illness and/or deviance that was once included in International
Classification of Disease. Ever since, WHO and other International
Organization has positioned community of LGBTIQ as equal and asconsequence entitled of the same rights. Then May 17 is commemorated
as the International Day Against Homophobia, Biphobia, and Transphobia(IDAHOBIT).9 At the National Level, the Ministry of Health of the Republicof Indonesia in the Guideline for Classification and Diagnosis of Mental
Illness in Indonesia 2nd Edition of 1983, (PPDGJ II) and the PPDGJ III (1993)
have revoked homosexuality from the list of mental illnesses.10 In 2012,
the American Psychiatric Association board of trustees approved thelatest proposed revisions to the Diagnostic and Statistical Manual of Mental
Disorders, what will now be known as the DSM-5. This marks a historic
milestone for people who are transgender and gender non-conforming,as their identities are no longer classified as a mental disorder.11
Human rights, sexual orientation and gender Identity. On June 17,2011 the UN Human Rights Council adopted a resolution titled “Humanrights, sexual orientation and gender identity”, which expressed grave
concern about acts of violence and discrimination committed against
individuals because of their sexual orientation and gender identity. This
resolution reaffirms Universal Declaration of Human Rights ratified by
the Government of Indonesia through enactment of Act No. 39 Year 1999
on Human Rights. The resolution requested the UN High Commissioner

9International Day Against Homophobia, Biphobia, and Transphobia (IDOHOBIT)
https://end.wikipedia.org/wiki/International_Day_against_homophobia_biphobia_
and_transphobia.

10 Homosexuality is not a Sexual Deviation http://nasional.kompas.com/
read/2009/11/11/13081144/homoseksual.bukan.penyimpangan.seksual11

APA Revises Manual : Being Transgender is No Longer Mental Disorder http://thinkprogress.org/lgbt/2012/12/03/1271431/apa-revises-manual-being-transgender-is-no-longer-a-mental-disorder/9

for Human Rights to prepare a study documenting discriminatory laws
and practices and acts of violence against individuals based on theirsexual orientation and gender identity. The study12 was published in
December 2011 and presented to the Human Rights Council in March 2012
and contains a list of strong recommendations to Member States. The
report affirms that States have a duty under international law to protect
the human rights of all persons, including those who are lesbian, gay,bisexual, transgender and intersex.
Human Rights and Business, On June 16 2011, The Human Rights Councilof the UN issued Guiding Principles on Business and Human Rights. For the
first time ever, there is a global standard to prevent and mitigate risks ofimpact of business toward human rights.13
In the Chapter of State Duty to Protect Human Rights, it is stated that
“States must protect against human rights abuse within their territory and/or jurisdiction by third parties, including business enterprises. This requires
taking appropriate steps to prevent, investigate, punish and redress suchabuse through effective policies, legislation, regulations and adjudication.”
In Chapter of Corporate Responsibility to Respect Human Rights, it isstated that, “Business enterprises should respect human rights. This meansthat they should avoid infringing on the human rights of others and should
address adverse human rights impacts with which they are involved.”
Then on June 16, 2011, the Human Rights Council of the UN issued a
Resolution Number A/HRC/RES/17/4 on Human Rights and Transnational
Corporation as well as other Business Enterprise14

12 http://www2.ohchr.org/english/bodies/hrcouncil/docs/19session/A.HRC.19.41_English.
pdf
13 Business and Human Rights http://www.ohchr.org/EN/ISSUES/BUSINESS/Pages/BusinessIndex.aspx
14 UN Human Rights Council, Resolution: Human Rights and Transnational Corporations
and other Business Enterprises, A/HRC/RES/17/4/ adopted on June 16, 2011. http://business-humanright.org/sites/default/files/media/documents/un-human-rights-council-resolution-re-human-rights-transnational-corps-eng-6-jul-2011.pdf

10 Queering Internet Governance in Indonesia

Human Rights on the Internet, on July 5, 2012, the Human Rights Councilof UN has adopted Resolution on Promotion, Protection and Enjoymentof Human Rights in Internet.15 The resolution was supported by 70
member countries of the Human Rights Council including China, Brazil,
Nigeria, Ukraine, Tunisia, USA, England and Indonesia. The resolution
basically affirms its operating principle in paragraph 1 by stating that“human rights owned by individual in offline world should also be protected
in online spaces”.
The basic principles of human rights in relation to Internet include
privacy, freedom of expression, rights to receive information, protectionof culture, languages and diversity, and rights for education (Kurbalija,2012).
Article 19 Universal Declaration of Human Rights:
Everyone has the right to freedom of opinion and expression; thisright includes freedom to hold opinions without interference and toseek, receive and impart information and ideas through any media
and regardless of frontiers16.
The 1945 Constitution of Republic of Indonesia (UUD 1945) mentioned
in Article 28 C that “every person shall have the right to develop him/herself
through the fulfillment of his/her basic needs, the right to get education andto benefit from science and technology, arts and culture, for the purpose of
improving the quality of his/her life and for the welfare of the human race”17.
ICT, (Information and Communication Technology)

15 UN Human Rights Council, Resolution: The promotion, protection and enjoyment of
human rights on the Internet, A/HRC/20/L.13, adopted on 5 July 201216 Article 19 of the Universal Declaration of Human Rights, http://www.un.org/en/documents/udhr/
17 1945 Constitutions Article 28C paragraph 1 https://www.mpr.go.id/pages/produk-mpr/
uud-nri-tahun-1945/uud-nri-tahun-1945-dalam-satu-naskah

11

Internet Governance, World Summit on Information Society on Internet
Governance stated that Internet Governance is development andapplication by government, private sectors, civil society, in their respectiveroles, principles, norms, regulations, decision making, procedures, andprograms shaping the evolution and use of internet (Kurbalija, 2012).
LBT, Lesbian, Bi-sexual and Transgender
Pesantren, Islamic boarding school
Queer, was once recognized as slang for homosexual and other “bad”
things utilized to attack homosexuals. Recently, the term is used asumbrella term for both identification and traditional sexual culturalmodel for the study of gay and lesbian. Little is known about the factthat Queer includes not only gay and lesbian but also cross dressing,hermaphroditism, gender ambiguity and corrective gender surgery.
The main projection of Queer theory is to identify participants fromcategory of gender and sexuality, non-permanent identities—they shallnot be categorized nor labeled. This is so because identity consists ofvariety of components and to categorize them into in one the singularcharacteristics is wrong (Buttler, 2004).
Queer theory is branch of critical science that emerged in early 1990s,
which includes LGBT and Feminist studies. Queer theory includes the
textual and theoretical analysis of the “queerness” itself. The Queer
theory was developed to include the feminist challenges on the ideas thatgender is an essential part of oneself and through the gay/lesbian casestudies on behavior that are constructed socially from attitude and sexual
identity. These gay/lesbian studies focus on questions about natural andartificial behavior in respecting homosexual behavior. Queer theory
expands its focus to also include various identity diversity and sexual

12 Queering Internet Governance in Indonesia

activities that are often classified as normative and deviant categories18
The Queer theory does not only question and criticize citizenship.
It is also intended to deconstruct the meaning of being a citizen andrepresent concepts as exclusive practices of definition on who is included
and excluded from the category of marginal in the society (Payne andDavies 2012).
Queering internet governance, Queering internet governance moved
from experience and awareness that internet is a subject/actor that plays
an important part as political and public sphere in social transformation.
Internet as a political and public sphere is influenced by multi-stakeholder
with diversity and various gender identity and sexual orientation hence
it will make the content and policy on internet in need of a continous
advocacy process. IPP develops the concept as a way to build theory
based on experiences and research result, and it is open for falsificationand verification. The promotion of this theory will benefit the organizationin developing strategy and advocacy to fight cyber-homophobia, including
the blockage of LGBTIQ websites.
Sexuality is central aspect of humanity including sex, gender identity,
sexual orientation, eroticism, pleasure, intimacy and reproduction.
Sexuality is experienced and expressed in mind, fantasy, believe, attitude,
values, behaviors, practices, roles and relationships. While sexuality
covers all aspects and dimension, not all can be expressed. Sexuality is
influenced by interaction of biological, psychological, social, economy,
politics, and cultural, historical, religious, and spiritual factors. In addition,according to WHO, sexual rights has been included in Human Rights
and other international documents and consensus. Include in these
documents are the rights for every people to be free from discrimination,
violence and coercion in order for them to be able to:18 Queer Theory https://www.princeton.edu/~achaney/tmve/wiki100k/docs/Queer_theory.html

13

1)
2)
3)
4)
5)
6)

Earn the highest standard of sexual health which includes accessto sexual and reproductive health services;
Look for, accept and deliver information related to sexuality,
sexuality education and respect toward the integrity of the body;
Choose their spouse;
Decide to become sexually active or not within a consensus based
relation;
Marry based on consensus;
Decide on willingness or unwillingness as well as where and whento have children; and Achieve safe and fulfilling sexual life. 19

Violence, according to the Declaration on the Elimination of Violence
Against Women20, which was first proclaimed by the UN General
Assembly on December 20, 1993, in Article 1 the definition of Violence
Against Women is any act perpetrated on the basis of sexual difference,
which will bring implication or cause suffering on women physically,sexually or psychologically, including threats on those acts, arbitrary acts
or deprivation of liberty, either in public or in personal space.

19 WHO Sexual and Reproductive Health http://www.who.int/reproductivehealth/topics/
sexual_health/sh_definitions/en/
20 Declaration on the Elimination of Violence Against Women. http://www.un.org/documents/ga/res/48/a48r104.htm

14 Queering Internet Governance in Indonesia

Part IV

Findings
Situation of LGBTIQ in Indonesia and Internet GovernanceIndonesia is known as a country with the largest Muslim population
and also a country rich in culture, ethnicity, religion, and race. The
population is more than 250 million people with diverse background of
sexuality. Diversity has become the signature of the culture of Indonesia
since hundreds of years ago. The fluid and diverse sexuality is evident incultural practices of the people of Indonesia, which includes dance andother artistic expressions. Among the representations of homosexual
practices are warok and gemblak in East Java and the acknowledgement
and existence of Bissu21 (transgender) in the social structure of South
Sulawesi. These people are acknowledged because of their spirituality
and because of their role as religious leader and as medium between
human and his/her Creator in the tradition of Buginese in South Sulawesi.
On May 17, 1990, the World Health Organization (WHO) has erased
homosexuality from the Classification of Mental Disease (deviation).
Ever since, WHO and other International Organization has positioned
community of LGBTIQ as equal and as consequence entitled of the samerights. Then May 17 is commemorated as the International Day Against
Homophobia, Biphobia, and Transphobia (IDAHOBIT). At the National
Level, the Ministry of Health of the Republic of Indonesia in the Guideline
for Classification and Diagnosis of Mental Illness in Indonesia 2nd Edition of
1983, (PPDGJ II) and the PPDGJ III (1993) have revoked homosexuality fromthe list of mental illnesses. In 2012, the American Psychiatric Association
21 Bissu https://id.wikipedia.org/wiki/Bissu

15

(APA) board of trustees approved the latest proposed revisions to the
Diagnostic and Statistical Manual of Mental Disorders, what will now beknown as the DSM-5. This marks a historic milestone for people who aretransgender and gender non-conforming, as their identities are no longer
classified as a mental disorder.22
The Reform Era in Indonesia, which began in 1998 has opened up democracy spaces and efforts to enforce human rights. This democracy spaceis also celebrated by the LGBTIQ to voice Human Rights of LGBTIQ as partof Universal Human Rights. Several civil society organizations emerged tosupport Human Rights of LGBTIQ. In Indonesia, the movement is marked
with the appearance of several organizations openly identify themselves
as LGBTIQ organization. The work on different issues in various platforms
starting from self-organized groups to larger organizations to facilitateawareness raising on the issue of Human Rights of LGBTIQ in Indonesia,
open spaces for expressions, provide counseling and trauma healing for
LGBTIQ experiencing violence and discrimination and initiate publications
to spread knowledge on LGBTIQ. Since 2012, 23 LGBTIQ organizations
have been succeeded in writing and publishing annual report on Human
Rights violation against LGBTIQ.23 At the same year, Yulianus Rettoblaut(transgender activists) and Dede Oetomo (gay activists) participated in
the selection of commissioner of National Commission on Human Rights(KOMNAS HAM) although they did not gain political support.
The LGBTIQ movement was also involved in the development of the
Yogyakarta Principles. The Yogyakarta Principles contain legal and humanrights principles in relation to sexuality and gender identity formulated
by legal and human rights experts as well as LGBTIQ activists fromaround the world in 2006 in Yogyakarta, Indonesia. The Principles havebecome a benchmark of international legal standards regarding sexual
22 APA Revises Manual : Being Transgender is No Longer Mental Disorder http://thinkprogress.org/lgbt/2012/12/03/1271431/apa-revises-manual-being-transgender-is-no-longer-a-mental-disorder/
23 Report on the Situation of LGBTIQ Human Rights in Indonesia 2012, Abandonment of
Sexual Orientation and Identity Based Human Rights, We Refuse to be Quiet, Indonesia LGBTIQ Forum.

16 Queering Internet Governance in Indonesia

orientation and gender identity, and were launched as a global charter ofrights for LGBTIQ people. In 2011, the UN Human Rights Council adopted
a resolution on* Human Rights, Sexual Orientation and Gender Identity*.
This resolution, adopted on June 17, 2011 affirms human rights principles
apply to issues of sexual orientation and gender identity. It reaffirms the
Universal Declaration of Human Rights ratified by the government ofIndonesia through Act No. 39 Year 1999 on Human Rights. The resolution
also expresses grave concern about acts of violence and discrimination
based on sexual orientation and gender identity. The UN report mandated
by the resolution affirms that States have a duty under international
law to protect the human rights of all persons, including those who arelesbian, gay, bisexual, transgender and intersex.
The growth of LGBTIQ movements in Indonesia and their involvement
at international level advocacy is inseparable from the growth of theinternet. The entire movement is supported and facilitated by thegrowth in communication technology, which allows high speed transfer
in information and communication through access of internet coming toIndonesia in 1990 through Paguyuban Network. In further development,internet also becomes a space of contestation of social and political issues
in Indonesia. Hence, aside from facilitating the advancement of Human
Rights of LGBTIQ, the internet also expands discrimination and violenceagainst the group.
Simultaneously, the violent and intolerant groups appear. These
groups have been posing threats to LGBTIQ and HIV/AIDS activists since
2000. In 2010, Islamic Defender Front (FPI) and other similar Muslim
organizations rallied to close meetings related to Human Rights of
LGBTIQ by using violence. In March 2010, International Conference of
Association of LGBTI (ILGA) Regional Asia IV in Surabaya, was closed bycommunity organizations carrying Islamic symbols. Not long after, in April
2010 the meeting between Transgender Activists and the KOMNAS HAM
was closed by similar organizations.24 Threat and attack toward LGBTIQ
24 Human Rights Watch World Report 2011 for Indonesia http://www.hrw.org/world-report-2011/indonesia-0

17

community continue until today and the community has not received
any proper protection from the government. Alongside the progress of
the use of the internet, threats against LGBTIQ also appear online. Bothonline and offline threats are interconnected and contra-productive tothe effort of protecting the Human Rights of LGBTIQ in Indonesia.
The following are initial findings on the interaction of internet withLGBTIQ community. The first part of the findings describes the roleof Internet in promoting Human Rights for LGBTIQ, the second partdescribes the act of discrimination and ignorance against the group, andthe third part explore the efforts of LGBTIQ movements in integrating
human rights of LBTTIQ with queering internet governance in Indonesia.

A. Internet is Strategic Media to Promote and Enforce Human
Rights of LGBTIQ
There are at least three purpose of enjoying the internet existence by
the LGBTIQ movement, firstly, to use the internet to provide a safe media
of communication to organize the group; secondly, to be used as media
to disseminate advocacy and education; thirdly, facilitate extension of
spaces of advocacy, not only with regards to the issue of LGBTIQ but
also to other Human Rights issues including women, environment anddiscrimination. The third use is translated into the development of portal.
The following is the detail of the findings:
1. Safe Media of Communication to Organize LGBTIQ
For LGBTIQ community exposing their gender identity and sexual
orientation is not as easy as their heterosexual counterparts. It happens
because the state has not acknowledged their identity and there is nolegal protection on violence and discrimination based on gender identity
and sexual orientation. The perspective of the society and religious
interpretation toward the group also provide additional constraint for
LGBTIQ to openly speak about their identity. In this situation, internet
becomes one of the strategic choices for LGBTIQ to interact and build
their safe space.

18 Queering Internet Governance in Indonesia

Institut Pelangi Perempuan (IPP)/Women Rainbow Institute25, a youth
organization of lesbian, bi-sexual, and transgender based in Jakarta uses
ICT as a medium for community organizing. IPP started to organize the
LBT group via mailing list in 2005. The mailing list soon became one of thecommunity media facilitating the emergence of LBT youth movement inIndonesia. One year later (2006), one of the members of the mailing list
with expertise in ICT transformed the mailing list into online discussion
forum through www.satupelangi.com. In 2007, the online discussion
forum expanded the coverage of its activities and transformed the website
into an organization website by the name of www.pelangiperempuan.
or.id. The website publishes feature articles, e-book, and CD magazine on
the rights of young LBT. The online discussion facilitate by the previous
website remain. The discussion mostly occurs between IPP organizers
and the community of young LBT. The “contact” tab provides space forvisitors of the website to leave message and forward the message to
IPP email address. Visitors of the website contact IPP in order to extent
their network, consult IPP, or participate in their activities by becoming
volunteers at IPP. The following is the example of two emails coming in
October and November 2013, through the “contact” tab at the website:
Email from Neni (pseudonym), private employee.
Subject: Introduction
Dear administrator of the website of IPP. I am a middle-aged woman,
and I’m 50 years old. I work as an employee in one of the companies
in Jakarta. I began to feel that I am a bisexual when I reached this age.
I have husband and children but I am also attracted to persons of thesame sex. Through this forum, although I may not be young, I would
like to ask whether or not I can participate in your communities andactivities.
Yours,
Neni - Jakarta
25 IPP website www.pelangiperempuan.or.id

19

Email from Ina (pseudonym), student, Yogyakarta.
Good afternoon, I am Ina, as student from Yogyakarta. I am reallyinterested in joining IPP. Do you have branch or representative office in
Yogyakarta? I would like to visit your office and share my experience.
Thanks.
The above emails show that internet provide a safe space tocommunicate and interact with the community in particular network.
Encouraged by the need to create safe space, IPP that was legally
registered in 2006, facilitate offline meetings. Through exchanges ofphone number and email via mailing list, member of the mailing list
started to conduct informal meetings in a group of 3 to 5 persons. The
member of this group is increasing from time to time. They choose
several cafes and public spaces in Jakarta as meeting point. They discuss
issues related to experience of young LBT and design activity to mobilize
and empower young LBT community in Jakarta. The meetings indirectly
serves as support group for young LBT which turned into badminton, film
and dancing clubs.
In addition to sport and art club, IPP also facilitates regular discussion
and training involving activists from Human Rights and feminist network.
The discussion session is later named Kongkow Lez and Lez School,(Manaf, 2011). Kongkow Lez is a forum focuses on the discussion of theissue of lesbianism including reproductive health, religious interpretation,homosexuality from psychological perspective, lesbianism from legal
perspective, and other feminist issues. The kongkow (hang out) invites
medical professional, psychologist, religious leaders, activists, feminists,
movie director, writers, academics and other resource persons. Someof them include well-known names such as Dr. Musdah Mulia, Rev.
Ester, Ninuk Widyantoro, Dr. Lukas Mangindaan (RIP) from Universitas
Indonesia, Ratna Batara Munti, Yeni Rosa Damayanti, Clara Ng, Danny
Yatim and several others. Meanwhile, Lez School or the school of the

20 Queering Internet Governance in Indonesia

lesbian organizes training series covering three main curriculums: Human
Rights, LGBTIQ and Feminism. Similar movements are also initiated byother LGBTIQ organizations in Indonesia.
2. Internet as Safe Media for Education and Advocacy
Technology is a mere tool. So, no matter what their ideology andinterest, technology will be able to help them. For feminist, technology
is not just a tool. Technology is knowledge. If people can spread
racism, sexual harassment, and exploitation of women throughcommunication technology, we will make something to prevent themto happen, also through the use of technology. Hence, because we see
technology as knowledge and education, the impact will be positive
for awareness. (Mariana Ammiruddin, Yayasan Jurnal Perempuan)News and publications from mainstream media more often than not
are discriminative against LBT in Indonesia. IPP encourages publicationof independent media voicing the aspiration of the LBT communities.
In 2007, IPP started to launch digital publication in a form of e-book, CD
Magazine, and digital comic book. These publications serve as media
facilitating the voice of LBT and are safe to be accessed by the community.
The choice to publish digital media is IPP’s answer to the need of senseof safety of the community. Printed publication is not entirely helpful as
members of the community are sometimes afraid to carry and read the
publication. They are afraid that their parents, co-workers, and friends willcatch them reading IPP publication and question their sexual orientationand gender identity. The concern is specifically high among young LBT
who decide not to come out to their family and community just yet. IPP
then initiate digital publications that are accessible via internet or throughCD. This approach is proven to be effective in maintaining the privacy andsecurity of the LBT community to access information related to lesbiansexuality.

21This finding also shows that the rights of information must be fulfilledsimultaneously with the right of privacy especially for young LBTs wholive in the environment where their parents, friends, school-mate, coworkers are mostly homophobic.
Digital publication also helps to bring education and advocacy materials
from national to international level. In 2010, IPP published comic on
Yogyakarta Principles26 in Bahasa Indonesia. In 2011, IPP published theEnglish version. This comic rendered true stories of young LBT in Jakarta
and analyze the story using the Yogyakarta Principles. The publication ofthis comic book is aimed to make information more accessible to young
LBT and to help them understand legal and Human Rights terms quotedin Yogyakarta Principles. The format of comic book is also chosen to
respect privacy of the respondents whose stories become the basis of
26 Yogyakarta Principles Comic Book can be downloaded at: http://www.pelangiperempuan.or.id/buku/komik-yogyakarta-principles/

22 Queering Internet Governance in Indonesia

the creation of the comic book.
IPP print and publish the Yogyakarta Principles comic in digital format.
The distribution of the comic book in its digital version receives positive
responses from readers as it is private, accessible, fast and cheap. ICT isable to accelerate the distribution of information, which in turn will beable to accelerate movement by cutting the cost. ICT also has the potential
to change the direction of political information by cutting conventional
participation and lead the formation of new forms of participation thatis cheap and inventive which will lead into a significant increase in thelevel of participation (Leizerov, 2000). Bonchek (1995; 1997) stated thatby lowering the cost of communication and coordination, ICT facilitate
the formation of group, recruitment and retention while increasing
contribution and political participation.
The support for the distribution of the comic book comes frominternational and national network. Pesantren-based Muslim feminist
organization discussed the comic of Yogyakarta Principles as part oftheir sexuality education materials for young students studying at thepesantren. In February 2011, IPP presented the Yogyakarta Principles
comic in 55th UN Commission on the Status of Women (CSW) in New York,USA. The LGBT organization in Belgium called Rainbow House and Tel
Quel Jeunes in cooperation with Secretary of State in Brussels translated
the comic book into French and Dutch and launched the comic at thecommemoration of International Day Against Homophobia, Biphobia andTransphobia (IDAHOBIT) on May 17, 2012. The initiative is intended to makethe comic as one of the media of Human Rights education for LGBTIQ in
Belgium. In conclusion, the Yogyakarta Principles comic is accessible tovarious individuals from different region and countries due to the helpof the internet. At this point, internet has facilitated the expansion of
space to advocate the discourse of Indonesian Young LBT at national andinternational level.

23

3. Creating LGBTIQ Portal in Connection with other Human Rights Issues
We consciously and politically choose internet as medium of our
movement. I feel that internet gives me more freedom and it can reachout to wider audience. It also allows us to enter different holes that wehave never realized before. Through internet we can meet LGBT, nonLGBT, those who are aware of this issue, etc. And they all appear andinteract at our website. (Hartoyo, Ourvoice)
History of LGBTIQ activism records Ourvoice (OV) as one of thepioneers in dissemination of information on LGBTIQ. Ourvoice (OV) isan NGO working to enforce the rights of diversity of sexual and gender
identity in Indonesia. It is an exclusive organization with members limited
to lesbian, gay, bi-sexual and transgender (LGBT) and heterosexuals whoare interested in supporting the organization with ratio of 75% LGBT and
25% heterosexual.27
OV was initiated by a group gay activists on November 5, 2007. OV
started to build community in 2007. Founders of OV explained that theirintense communication and meetings are facilitated by internet. In March
2009, OV registered themselves and started to conduct activities bothonline and offline. On the internet, OV works to build alternative media tosupport LGBT activists from all over Indonesia to participate in discussions
and to publish their work. This alternative media was then turned into
news portal for LGBTIQ under www.ourvoice.org (now it becomes www.
suarakita.org) in 2009. In addition to providing information related to
LGBTIQ, the OV also provides information related to other Human Rights
issues including news on prosecution of Shia followers, feminist issues,pluralist issues, and other relevant issues. Until July 11, 2013, the numberof visitors of the OV website has reached 308.335 and the average daily
hit is 300 to 400 visitors.

27 Our Voice www.suarakita.org

24 Queering Internet Governance in Indonesia

Activists of OV use internet as political choice for them to conduct theiractivities in order to assure faster transmission and wider coverage. They
also recruit member and volunteers through internet chat room. The
organization not only reaches activists of Human Rights of LGBTIQ but
also gays from different backgrounds including students, professionals,
artists, and so on. They also reach out to those who are not LGBTIQ.
The progressive actions of OV show the connection between ICT andpublic participation to promote collective identities and perceptions
among individuals with similar concerns. ICT enables to serve as common
ground and build collective identities from a more fluid population andallows the organizers to mobilize the population for a collective action(Arquilla dan Ronfeldt 2001; Myers 2000; Brainard dan Siplon 2000). From
the EROTIC Global Survey data, it is known that 47.05% of the respondents
said that they will have difficulties to work or to do their daily activities
without the internet.

B. Abandonment of Rights of LGBTIQ on the Internet
On the one hand, internet supports the visibility of LGBTIQ movements
and facilitates the advocacy of Human Rights of LGBTIQ. On the other
hand, for those who do not have respect for the movement, internet isa powerful tool to preserve sexual and gender identity based violenceand discrimination that has been going on for a long time at offline
realms. These practices are also committed by the state throughinternet governance by undermining Human Rights of LBGT in regulating
pornographic content which in practice also include closing down website
with LGBTIQ contents. In addition, homophobic bullying through ICT isalso committed by individual, organization and the state.
1. Institutionalization of Sexual Orientation and Gender Identity Based
Discrimination and Criminalization in State Law and Regional Law
The 1945 Constitutions, the Government of Indonesia guarantees theright of every people in Indonesia with no discrimination in any kind,25

including discrimination based on gender identity and sexual orientation.
This guarantee is then strengthened by the ratification of Universal
Declaration of Human Rights through the enactment of the Law Number
39 of 1999 on the Ratification of the Universal Declaration of Human
Rights.
In regards to the criminalization of LGBTIQ in Indonesia, Local
Government of Palembang, South Sumatera, enacted By-Law No. 2 Year
2004 on Eradication of Prostitution. Article 8 of the Regional Law statedthat homosexuals, lesbians, sodomy and sexual harassment are regarded
as act of prostitution.28
Then in 2008 the government of Indonesia decided to enact Act No.44
Year 2008 on Pornography or Act on Pornography29. In Paragraph 1 of
the General Definition, Pornography is pictures, sketches, illustration,
photograph, writing, sound, voice, animated picture, moving picture,
cartoon, conversation, body movement or any form of message throughvarious forms of communication and/or performance in public, whichcontains element of perversion, and sexual exploitation that violates themoral norm in the community. In the elucidation of Anti-Pornography Act
article 4 (1a), homosexuality is defined as deviant sexual behavior. As aconsequence, all forms of media and publication related to the issue of
LGBTIQ are considered carrying pornographic content. The interpretation
makes LGBTIQ community vulnerable to criminalization30, although thestate does not explicitly mention the existence of LGBTIQ as illegal.
On March 3, 2014, the Ministry of Communication and informatics
officially launched a press release of a Ministerial Regulation on the
28 Hukum online on the Palembang bylaw number 2 of 2004 on Eradication of Prostitution http://www.hukumonline.com/lt5117268acb06/node/lt4a0a533e31979/sodomi,tindak-pidana-atau-bukan.
29 The Law Number 44 of 2008 on Pornography http://www.kemenag.go.id/file/dokumen/442009.pdf
30 Position paper of the Penal Code Reform Number #2/2007 on the Pornographic andPorn-like action in the Bill of Penal Code. Jakarta: lembaga studi dan advokasi masyarakat (ELSAM) by Syahrial Wiryawan Martanto and Wahyu Wagiman http://docs.
perpustakaan.elsam.or.id/ruu_kuhp_files/briefing/13.pdf

26 Queering Internet Governance in Indonesia

Control of Negative-content internet website, which regulates internet
content relating to pornography, gambling, and other illicit behavior31.
In the Chapter 1 of the general Definition Article 1 paragraph 2 defines
pornography as act that refers to the Law on Anti-Pornography, howeverin the elucidation they also include homosexuality as a deviant act ofsexual intercourse.
The draft of Ministerial Regulation (herein afterwards is mentioned
as ‘draft’) states that the blocking of negative-content internet sites,in which herein forward is referred as Blocking, is an act taken to stop
the people from accessing information from negative-content websites.
According to the draft, the objective of this Ministerial Regulation is to
give Government a reference on what is defined as negative-content
websites and collective role in handling the problem; protecting the
public interest from internet content with negative and/or damaging
impact. While the scope of this draft is the definition of negative-content
website; the government and people’s roles in handling negative-content
websites; responsibility of Internet Service Provider in handling negativecontent websites; procedure for blocking and unblocking the blocked
negative-content websites.32
First, the Law shall regulate this internet governance policy; andsecondly since it is regulated by the law, the restriction only applies tocriminal-related issues. So the word illegal in the ministerial regulationis very dangerous, the perpetrator shall be criminally sanctioned not
because it is illegal. It’s two different things. Since this relates closely
31 Siaran Pers Tentang Uji Publik RPM Yang Mengatur Tata Cara Pemblokiran Konten
Internet Negatif http://kominfo.go.id/index.php/content/detail/3879/Siaran+Pers+No.+24-PIH-KOMINFO-3-2014+tentang+Uji+Publik+RPM+Yang+Mengatur+Tata+Cara+Pemblokiran+Konten+Internet+Negatif+/0/siaran_pers
32 Position Paper 1/2014 tentang Menolak Rencana PerMen Sensor Sapujagat 2013-2014,
Indonesian Media Defense Litigation Network (IMDLN) dan Institute for Criminal Justice Reform (ICJR), oleh Supriyadi Widodo Eddyono & Anggara, http://icjr.or.id/data/
wp-content/uploads/2014/06/Position-Paper-Hukum-Internet-1-bloking-dan-Filtering-internet_Final.pdf

27

to the Law then it is the law enforcement officers who are entitled todetermine whether it is illegal or not. For example is the perpetrator
is indicted, then it is recommended to close down the website, it
should not be the responsibility of the Ministry of Communication andInformatics, it should be law enforcement agency/officer to do thetask at the very least the prosecutor should do it. Or the decision ismade through court’s decision, we can establish another institution as
mandated by the law, but it will not be the Ministry of Communication
and Informatics. (Erasmus, ICJR, participant of FGD for EROTICS
Indonesia Research)
2. National Program Controlling Internet Content Affecting Gender
Identity and Sexual Orientation based Discrimination
One of the implementations of the Law on Anti-Pornography is toestablish program within the Ministry of Communications and Informatics
to oversee pornographic contents, which also include the homosexual
content in the internet. In 2009, Ministry of Communication andInformatics established collaboration between Civil Society Organizations,
Academics and Internet Industry to launch Program Internet Sehat dan
Aman (INSAN)/ Program of Decent and Safe Internet. Include in the
program is a Trust Positive program,33 utilized by ISP to regulate internet
content in Indonesia especially to filter pornographic, gambling and otherillegal contents upon request from the authority.
The screening of internet content is done by the Blocking Service
Provider on the order of the Ministry of Government Institution throughthe instruction of Directorate General of Informatics Application under
the coordination of the Ministry of Communications and Informatics.
Ministry of Communications and Informatics then receives report on
negative-content websites; the public delivers the report to the Ministryby sending copy of the report the Directorate General through email and/or web-based reporting platform. The communication/report from the
33 Trust Positif http://trustpositif.kominfo.go.id/

28 Queering Internet Governance in Indonesia

public can be considered as an emergency report if the report is relatedwith the rights to privacy, child pornography, and negative impact tothe people and/or other specific request. The report has to go throughan assessment by mentioning the website address, the type of negative
content, the type of violation and remarks; the authorized official conveys
the report to the Minister and Directorate General, by attaching the listof website address and result of assessment; the Directorate General willconduct a continuous monitoring on the website
There are 7 key actors in internet screening in Indonesia, andNawala is the only one used by other ministry for their own purpose(Yamin, Nawala—Blocking Service Provider, FGD participant of the
EROTICS Indonesia Research).
The Blocking Service Provider should at least meet the criteria:
registered as Electronic System Provider; has Indonesian’ legal entity
status; placed its data center in Indonesia; has transparent andaccountable operational Procedure.
The Internet Service Provider shall block the websites enlisted in
TRUST+Positif. The blocking can be categorized self-managed blocking
or blocking using blocking service provide. Should the internet service
provider fails to block the websites then a sanction against it will be
imposed. The internet service provider that has blocked the websites
as mandated by the relevant legislation is considered to have met therequirements.34 The establishment of INSAN and Trust Positif might
restrict access and management of LBTIQ content websites as aconsequence of putting homosexuality the same as pornography.
34 Position Paper 1/2014 tentang Menolak Rencana PerMen Sensor Sapujagat 2013-2014 ,Indonesian Media Defense Litigation Network (IMDLN) dan Institute for Criminal Justice Reform (ICJR), oleh Supriyadi Widodo Eddyono & Anggara, http://icjr.or.id/data/
wp-content/uploads/2014/06/Position-Paper-Hukum-Internet-1-bloking-dan-Filtering-internet_Final.pdf

29

3. Blockade of LGBTIQ Websites by Private Sector and the State
Interpretation of homosexual as pornography in Act on Pornography
causes obstruction in LGBTIQ websites. In April 2011, one youngtransgender activist report to IPP that she could not access link of
Yogyakarta Principle Comic Book in the ILGA website, www.ilga.org.
When she was trying to access the link, appeared a notification read,“the sites that you are about to access is unavailable due to pornographic
content”.

The website of International LGBTIQ Human Rights Commission(IGLHRC), www.iglhrc.org was also closed. Starting May 2011, three ISPs
in Indonesia namely Telkomsel, IM2 Indosat and Lintasarta are closing
down LGBTIQ websites.
In July 2013, OV websites (www.ourvoice.org currently changes into
www.suarakita.org) was also blocked without prior notification to OV.
According to Suara Kita activists www.ourvoice.org had difficulties to beaccessed due to blocking by certain ISPs. this blocking was done without
providing transparent, clear and accountable explanations from the

30 Queering Internet Governance in Indonesia

ISPs to OV. If user tries to access the website through provider XL, thefollowing message will appear on screen:“Respectful Costumer, complying to the state law, the website thatyou are trying to access is no longer accessible. We are sorry for theinconvenience. Please try again later.” Below the notification there isa sign read “ACCESS CLOSED” with larger font that is signed with thelogo of Ministry of Communication and Information.

4. Cyberhomophobia toward LGBTIQ by Individual and Community
Organization“Homophobic bullying is a moral savagery and serious violation
against human rights and community health crisis” (the UN Secretary
General, Ban Ki-Moon).35

35 Secretary-General, in Message to Event on Ending Sexuality-based Violence, Bias, Calls
Homophobic Bullying ‘a Moral Outrage, a Grave Violation of Human Rights’ http://
www.un.org/News/Press/docs/2011/sgsm14008.doc.htm.

31

In addition to limitation on homosexual content on the internet byprivate sector and the state, LGBTIQ community also experience cyberhomophobia when they express their gender identity and convey theiridea on sexual orientation online. Cyber-homophobia or homophobic
bullying and hatred against non-heterosexual gender identity and sexual
orientation on the internet are commonly happening. The targets are notalways people with ‘seemingly’ different sexual orientation and gender
identity, but also against heterosexual people with gender expressionthat look contradictory with the common public construction. Basedon the data issued by the UNESCO, homophobic bullying is the second
common bullying all over the world. The OV activists who often write
about the issue of LGBTIQ at their own FB account receive different kindsof bullying from intimidation to death threats. The following is one of
their testimonies:“My heart is broken from all the bullying. I am devastated when they
continue to say, “Hey you faggot, you will go to hell from spreadingthese news.” Some of them even said, “Hey you, I will kill you if you
continue talking about this!” something like that. Sometimes I think,
are they serious? I began to feel afraid that one day people will stopme on the street or at some place and do harm on me. I mean, that
could happen, right??! “ (Supriyatna, Ourvoice)
Supriyatna never reports such intimidation and threats to law enforcers
because he does not who to contact or where to go. He also does not
who to go to for protection against such threats. He does not know any
lawyers of advocates that might want to help him. Moreover, he feelsthat the protection provided by the law for people like him must be very
limited. Supriyatna is also worry that he might face further discriminationand intimidation or even act of violence from law enforcers. The online
threats are also psychologically devastating for LGBTIQ activists andmovements.

32 Queering Internet Governance in Indonesia

The Association for Progressive Communications (APC), which launched
EROTICS (Exploratory Research on Internet and Sexuality) global survey,
echoed the same situation. EROTICS also distributed the survey to networkof activists and human rights organizations in Indonesia and through thissurvey they have discovered
data in the context of sexual
rights and the internet. The
objective of this survey isto reveal challenges facedby activists of sexual rights
in using internet at global
level. Twelve respondents
said that they experience
intimidation when talking
about the issue of LGBTIQ
and people living with HIV/
AIDS, religious freedom andreproductive health. The
intimidation includes attack
on social media or via email.
The fact is highlighted by
64,70% of respondents sayingthat internet does not protect
their privacy and safety morethan actual meetings and http://www.apc.org/
interaction does. Only 35,29% said that internet is useful for advocacy
work in the issue of sexual rights as it allows members to maintain theirprivacy and safety. Some of the respondents said that they feel insecureand afraid to advocate sexual rights directly at offline realms. Although
the intimidation occurs on the internet, it also affects their daily life.
Cyber-homophobia has also become one of the habits at one of33

the largest Internet forum in Indonesia named Kaskus36. Kaskus is anabbreviation of Kasak-Kusuk (gossiping). The company was founded
in 1999 in the United States by two Indonesians studying in Seattle.
Kaskus has more than 4.5 million registered users. Most of them camefrom adolescence and adults who live in Indonesia or abroad. Kaskus isvisited by at least 900.000 visitors, with more than 15,000,000 page views
everyday. As of July 2012, Kaskus has already had around 601.000.000 of
posting.37
Members of Kaskus also known as Kaskusers invent the term “Maho”(manusia homo or homosexual person) to refer to homosexuals and they
deliver sexist and degrading jokes about gays at this forum. The term

36 Kaskus http://www.kaskus.co.id/
37 about Kaskus https://id.wikipedia.org/wiki/kaskus

34 Queering Internet Governance in Indonesia

“maho” is further associated with anything that is considered abnormal,
ugly, weird, deviant and sick. They even come up with several avatars to
describe “maho” on Kaskus.
I like to play online game, and in that place (Kaskus) I felt like I
was discriminated against by the use of the word Maho and Hode,where men shouldn’t use women character and vice versa. They callcross gender as Hode (in Kaskus Dictionary: Hoax Detected or female
character played by male)38 (Emmy, Transgender, FGD participant of
EROTICS research).
38 Kaskus Dictionary http://support.kaskus.co.id/kamus-kaskus/kamus_kaskus.html

35

Some people preserve Cyber-homophobia through social media
channels like Facebook or Twitter. One FB group blatantly identify
themselves as Anti-Homosexual Community.39

Below are some of the comments users of this group:

I hate gay people. Homosexual is the behavior of dog.

39 https://www.facebook.com/pages/Komunitas-Anti-Homoseksual/149990501703182

36 Queering Internet Governance in Indonesia

Ibn Abbas delivered the message of Prophet Muhammad who said
that, “Anyone who commit the act of the people of Prophet Luth(homosexual), then kill those who commit the act and his spouse.”
Cyber-homophobia is also committed by individuals. One of them is
Fahira Idris. Fahira Idris is a politician running for Regional Representatives
Council representing Jakarta Province. She is also one of the persons
participated in campaigning homophobia through her personal twitter
account below:

In his campaign since 2008, Rey who is coming from #Bandung
always convinces Lesbian, Gay, and Transgender that: “we can be
cured” #LGBT
For Lesbian, Gay, and Transgender who wish to return to normal,
you can read the book entitled “Tuhan Tidak Pernah Iseng” (GodNever Fools Around) by Zemarey Al-Bakhin (rey) #LGBT
Fahira Idris is also the winner of polling entitled The Most Inspiring
Twitter in 2010. She earned this award through her courage in criticizing
FPI and build dialogue as well as delivering people’s critics toward FPI.40
In 2005, she was also awarded The Most Favourite Inspiring Woman by
40 Refer to the following website http://www.suarapembaruan.com/home/fahira-fahmi-idris-islam-mengajarkan-damai/74

37

one of the media. In January 2013, Fahira is once again selected as 1 of
the 8 Inspiring and Informative Women on Twitter by Fimela.com.41 Until
December 2013, her twitter account has 136,055 followers.
Fahira Idris often portrays herself as moral guardian in order to win
vote in General Election 2014. Her role as public figure and the awards andacknowledgement she received move her up the ladder and reward her
with even bigger public attention. Hence, her statement on rehabilitationof LGBT is very influential to public opinion in Indonesia, although it is only
delivered via Twitter.

C. Involvement of LGBTIQ Movement in Indonesia in Queering
Internet Governance at National and Global Level
This social movement can be regarded as collective effort to build new
governance. They have concerns and gain motive and strength throughdissatisfaction of contemporary life while aspiring for new scheme oflife (Blumer, 1939). Taking into account the strategic role of internet inadvancing Human Rights of LGBTIQ and in facing the challenge cyberhomophobia and blockade of LGBTIQ sites, several LGBTIQ organizationsin Indonesia started to get involve in advocating queering the governanceof internet both at national and international level.
Queer was once recognized as slang for homosexual and other “bad”
things utilized to attack homosexuals. Recently, the term is used asumbrella term for both identification and traditional sexual culturalmodel for the study of gay and lesbian. Little is known about the factthat Queer includes not only gay and lesbian but also cross dressing,hermaphroditism, gender ambiguity and corrective gender surgery. The
main projection of Queer theory is to identify participants from categoryof gender and sexuality, non-permanent identities—they who are notable to be categorized into certain group. This is so because identity
consists of variety of components and to categorize them into in one the

41 Fimela.com

38 Queering Internet Governance in Indonesia

singular characteristics is wrong (Buttler, 2004).
Queer theory is branch of critical science that emerged in early 199s,
which includes LGBT and Feminist studies. Queer theory includes the
textual and theoretical analysis of the “queerness” itself. The Queer
theory was developed to include the feminist challenges on the ideas thatgender is an essential part of oneself and through the gay/lesbian casestudies on behavior that are constructed socially from attitude and sexual
identity. These gay/lesbian studies focus on questions about natural andartificial behavior in respecting homosexual behavior. Queer theory
expands its focus to also include various identity diversity and sexual
activities that are often classified as normative and deviant categories.
The Queer theory does not only question and criticize citizenship.
It is also intended to deconstruct the meaning of being a citizen andrepresent concepts as exclusive practices of definition on who is included
and excluded from the category of marginal in the society (Payne andDavies 2012).
Queering internet governance moved from experience and awarenessthat internet is a subject/actor that will play an important part as politicaland public sphere in social transformation. Internet as a political andpublic sphere is influence by multi-stakeholder with diversity and various
gender identity and sexual orientation hence it will make the content andpolicy on internet in need of a continous advocacy process. IPP develops
the concept as a way to build theory based on experiences and research
result, and it is open for falsification and verification. The promotion of thistheory will benefit the organization in developing strategy and advocacy
to fight cyber-homophobia, including the closing of LGBTIQ websites.
World Summit on Information Society on Internet Governance statedthat Internet Governance is development and application by government,
private sectors, civil society, in their respective roles, principles, norms,
regulations, decision making, procedures, and programs shaping theevolution and use of internet (Kurbalija, 2012). In regards to the queeringof internet governance, LGBTIQ as part of the civil society has their39

citizen’s rights to intervene in internet governance.
The EROTICS (Exploratory Research on Sexuality and the Internet)
research was initiated by Association for Progressive Communication in2008 as exploratory steps to bridge the gap between measures of policy
in regulating content and practices on the internet and the actual daily life
practices including variety of experience and concerns toward internet
users when they are practicing their sexual rights.
Started in 2012, IPP in cooperation with Association for Progressive
Communication (APC) began a research and EROTICS Indonesia
advocacy network. Queering internet governance on Indonesia began by
responding the situation of violation of rights of freedom of informationand freedom of expression on the internet for LGBTIQ in Indonesia by
establishing EROTICS Indonesia network (advocacy and research networkon rights to internet and sexuality) organized by IPP and APC.
The consolidation to discuss the issue of sexual rights and internet
rights in Indonesia began in July 2012. The meeting discussed thediscourse of right to internet, internet governance and digital privacy.
Academics, activists of civil society organizations including LGBTIQ
organization, Rights of Sex Workers, Pesantren based Feminists, Young
Feminist Community, Women Living with HIV/AIDS, Anti Child and Women
Trafficking, National Commission on Anti-Violence against Women andseveral other organizations participated in the consolidation meeting.
The discourse of integrating internet rights as part of rights of womenand Human Rights of LGBTIQ became a starting point of collaborationof EROTICS Indonesia network in conducting research and advocacy of
sexual rights in internet governance in Indonesia.
The Queering of internet governance becomes very important, thusin August 2012, EROTICS Indonesia conducted a follow up consolidation
meeting involving women’s organizations and LGBTIQ organizations
namely Solidaritas Perempuan (Solidarity for Women), IPP and Arus
Pelangi to conduct meeting with organization working on the issue of

40 Queering Internet Governance in Indonesia

safe and responsible use of ICT namely ICT Watch.42 This organization
was established in 2002 and has ever since become initiator of Decent
Internet in Indonesia which later become one of the members/networks
of Internet Sehat dan Aman (INSAN)/Healthy and Safe Internet, a program
initiated by Ministry of Communication and Informatics. The meeting
discussed issues on internet governance in Indonesia especially regarding
the closing of LGBTIQ websites in Indonesia. Through this meeting, thenetwork gained information on the existence of an association establishedin 1996 to organize ISPs in Indonesia and to facilitate governance andmanagement of internet industry by the name of Asosiasi Penyelenggara
Jasa Internet Indonesia (APJII)/Association of Internet Service Providers
Indonesia.43
Learning that APJII is able to facilitate negotiation between civil society
organizations and ISP, the network initiated meeting with APJII on
September 24, 2012. The meeting was attended by LGBTIQ organizations
namely Arus Pelangi and IPP, ICT Watch, detik.com, Lembaga Studi dan
Advokasi Masyarakat (ELSAM)/Institute on the Study and Advocacy ofCommunity as well as other ICT activists. The meeting was located at APJIISecretariat in Cyber Building, South Jakarta. The objective of this meetingis to discuss the issue of blockade of LGBTIQ websites in Indonesia
and to ask for the help of APJII to work with ISP to open the access to
the websites of LGBTIQ organizations. The issue of transparency andaccountability of the closing of the sites was not clearly explained in the
consolidation meeting. However, one of the results is that the provider
agreed to re-open IGLHRC website in November 2012. Unfortunately, thewebsites of ILGA remain inaccessible until today.
On November 1, 2012, the Indonesia Internet Governance Forum was
declared for the first time in Indonesia history. The Internet Governance
Forum is a multi-stakeholders forum to facilitate dialogue on policy and

42 ICT watch http://ictwatch.com/id/
43 http://www.apjii.or.id/41

issue related to internet governance. The forum unites all stakeholders
in the debate regardless of whether they represent government, private
sector, or civil society. All of them involve in a more equal, open andinclusive process of discussion. Declaration of Internet Governancein Indonesia44 was launched in the forum. The Declaration that was
signed by representatives of all stakeholders clearly mentioned Internet
Governance that take into account transparency, accountability andvalues of Democracy and Human Rights.
The network of EROTICS Indonesia in cooperation with LGBTIQ group
including IPP, Ourvoice Indonesia, Arus Pelangi, National Commission
on Anti Violence against Women (Komnas Perempuan), Solidarity for
Women, Peace Women Across the Globe Indonesia and academics from
Department of Sociology University of Lampung participate in Indo IGF
2012. The network is established in order to provide space to speak basedon the perspective of Human Rights of LGBTIQ in relation to the closingof LBTIQ websites. The women’s groups also have a chance to voice their
aspiration regarding online harassment against women.
As time goes by, more LGBTIQ sites are closed. In relation to theblockade of the website of Ourvoice in 2013, the secretary of theorganization repeatedly sees the XL provider to ask for explanation. Finally,
through official letter, the Customer Service of XL, PT XL Axiata provided
explanation that the site was closed in compliance with the regulationof Ministry of Communication and Informatics as www.ourvoice.org is
included in the list of Trust Positif and as a service providers, XL has tocomply with government regulation.
Ourvoice then sent Short Message Service (SMS) to Office of Public
Relation of Ministry of Communication and Informatics and the office
replied by saying that they do not order blockade toward Ourvoicewebsite. The logo of the Department of Communication and Information

44 Deklarasi Tata Kelola Internet Indonesia http://id-igf.or.id/?p=127

42 Queering Internet Governance in Indonesia

is assigned to mark blockade. 45
Several months later, the activists of Ourvoice tried to advocate theissue. However, they still could not receive the answer from relevant
parties and their website remains inaccessible until today. Finally, OV
decided to change their name of their news portal to www.suarakita.org
starting August 2013. The change in the name is caused by their hope tomake the website of the organization up and running again and because
they have not yet been able to build stronger alliance to advocate thecase.
At international level, IPP as facilitators of EROTICS Indonesia46 wasinvolved in Internet Governance Forum (IGF) in Bali, Indonesia, on 22 –25 of October 2013. EROTICS Indonesia invited the Chairperson of the
National Commission on Human Rights (Komnas HAM), Siti Noor Laila todeliver the speech and response on the closing down of LGBTIQ website
in Indonesia. Komnas HAM is a state owned independent institution
working to study, protect research, monitor, investigate, and mediate any
problem related to Human Rights. The presence of Komnas HAM at theforum allowed the discussion of the Human Rights of LGBTIQ in relation
to the internet governance. It has become one of the political steps inqueering internet governance in Indonesia. Komnas HAM was expected
to be able to facilitate discussion between civil society organization andgovernment and private sector with regard to the closing of LGBTIQ
website in Indonesia.
Basically, internet must be managed using principle of Human
Rights. However, in reality there are many cases of human rights
violation in the use of Internet. For instance, criminalization of
freedom of expression, victimization of victims when they express
45 Refer to website of Voice of Human Rights ‘Kendali Internet di Republik Hari Ini’ :http://www.vhrmedia.com/new/berita_detail.php?id=3438
46 EROTICS Indonesia www.eroticsindonesia.net

43themselves and their opinion, and other violations related to rights
to information. The role of Komnas HAM in this case is to conduct
study and monitor existing cases while facilitating meetings between
related stakeholders in internet governance in Indonesia including
the government, private sector, and the community. In relation to
the closing of several LGBT websites, through Asia Europe Meeting(ASEM) in Korea in 2012, we suggest the government to announce theblockade to the public if and only of the government actually wants toclose down the website. Secondly, if people think that the rights havebeen violated they can take necessary legal action through civil law
or arbitrage. (Siti Noor Laila, Chairperson of Komnas HAM period
2013-2014)
The challenge in queering internet governance in Indonesia is that
there remains a lot of individuals and LGBTIQ activists who are looking at
the issue as mere ICT problem. Hence, some of them suggest to simply
moving to different provider and/or domain or hosting. There are notmany of them who see the discourse as part of the issue of Human Rights
to Internet. Lack of leadership and resources among LGBTIQ to challenge
patriarchy and sexism in the area of Internet governance in Indonesia
become one of the main challenge.
“On the hand, the internet activists are not fully aware of sexual
rights. On the other hand, those who are working on the issue of sexual
rights are not knowledgeable on the issue of internet governance.
Hence, there has to be one or two organizations working on the issueof sexuality that can also focus themselves to advocate freedom of
information. People working on the issue of rights to internet usuallyskip the issue of sexuality. They only focus on general issues affecting
wider public (Syaldi Sahude, ICT and Rights to Internet Activists,
Aliansi laki-laki baru/New Men Alliance)

44 Queering Internet Governance in Indonesia

Part V

Analysis Conclusion andRecommendation
CONCLUSION
Based on the above findings, it can be concluded that:
1. Internet is a strategic media for promotion and enforcementof Human Rights of LGBTIQ. Therefore, it is important for thegovernment to govern the internet based on principles of humanrights which include respect toward sexual orientation and gender
identity. Internet gives the opportunity for LGBTIQ community to get
to know each other at online space without worrying about stigma
and violence they usually experience in offline realm (Friedman 2007:
791). They can liberate themselves from social, political and economic
boundaries. However, Friedman also asserted that building online
community will not resolve long term conflict related to accountability
and representation yet is able to provide support structure that is notnecessarily manifest offline (Friedman 2007: 803).
Based on the experience of IPP and Ourvoice, this safe space has
been transformed into a space for them to organize themselves, raiseawareness and promote education. The space has also become room
for advocacy at national and international level. One of the evidence
is Yogyakarta Principle Comic published by IPP that is available online
and has been able to penetrate boundaries of distance and manage

45

2.

to travel to international forums including 55th UN Commission on
the Status of Women (CSW) in New York and being translated into
different languages. News portal established by Ourvoice was also
succeeded in linking the issue of Human Rights of LGBTIQ to larger
human rights issues and in gaining support both from and outside of
the community.
Taking into account the strategic role of the internet, protection
for LGBTIQ is important to ensure the sustainability of LBGBTIQ
movement on the internet. The protection will be able to manifest
by integrating Human Rights of LGBTIQ and Rights to Internet atthe level of Internet Governance, or queering the governance ofinternet. Some of the efforts to protect human rights of internet
users have been put forward by the Human Rights Council of theUN through key resolution on promotion, protection and practiceof human rights on the internet. The resolution operates based onprinciple stated in paragraph 1 that “human rights of individuals attheir offline realms should also be protected at online spaces”. The
resolution gain full support from more than 70 member and nonmember countries including China, Brazil, Nigeria, Ukraine, Tunisia,
USA, England and Indonesia.
Government shall take efforts to promote and protect the gender
identity and sexual orientation rights at the offline and online levelby referring to the Resolution of Human Rights Council of the
UN: Human Rights, Sexual Orientation and Gender Identity, that
was adopted on 16 June, 2011. This resolution reaffirms Universal
Declaration of Human Rights ratified by the Government of Indonesia
through enactment of Act No. 39 Year 1999 on Human Rights. The
resolution requested the UN High Commissioner for Human Rights to
prepare a study documenting discriminatory laws and practices andacts of violence against individuals based on their sexual orientationand gender identity. The study was published in December 2011 andpresented to the Human Rights Council in March 2012 and contains a

46 Queering Internet Governance in Indonesia

list of strong recommendations to Member States. The report affirmsthat States have a duty under international law to protect the humanrights of all persons, including those who are lesbian, gay, bisexual,
transgender and intersex.
At the National level, in the Indonesia’s 1945 Constitutions, Article
28C Paragraph 1, it clearly states that: “Every person shall have theright to develop him/herself through the fulfillment of his/her basic
needs, the right to get education and to benefit from science andtechnology, arts and culture for the purpose of improving the quality of
his/her life and for the welfare of the human race.”
It is also important to revisit and reinterpret the existing legislationto accelerate the provision of protection on LBT’s rights. One of thereintepretation on the existing laws is the reintepretation of womenas subject of the law in the Law Number 7 of 1984 on the ratificationof Convention on the Elimination of Discrimination Against Women.
Women here should not be limited to heterosexual women, but itshould be expanded to Lesbian, bisexual and transgender women.
This reintepretation is in line with the transformation on the definitionof women according to Komnas Perempuan, which does not limit towomen from biological perspective but also from social construct.
Therefore the Law Number 7 of 1984 can also be used to protect the
LBT citizens in the context of discrimination on the internet.
The protection also includes the protection of LBTIQ’s freedomof expression from any form of screening without proper judiciary
process, because according to the legal system of Indonesia,
any ministry or anyone in this case also includes the Ministry ofCommunication and Informatics who perform screening shall
implement the act in accordance with the Law and judiciary process
as stipulated by the Law. This is also in line with the provision in
Article 19 paragraph 3 of the International Convenant on the Civil
and Political Rights and Article 28J of the 1945 Constitutions, inwhich restriction shall be made and stipulated by the law. The main47

issue with content restriction is the absence of further regulationin the Law. The restriction within the draft is too wide hence itwill create loophole for violations of rights under the freedom ofgetting information access category. The restriction on content in
the draft is not in line with any protection of human rights. Basicallythe regulation on internet censorship as stipulated in the Ministerial
Regulation will not be sufficient in getting the articulation on theregulation of internet censorship. Ministerial regulation should haverestrictions, based on relevant laws where the content should only
contain the provisions of how to implement the laws. The content
should not be deviated from the spirit of the Law.
Even though the censorship policy is a violation of rights to accessand hence it is also a human rights violation, for greater national
interest such as law enforcement, the right can be restricted.
Since internet censorship is one of the restrictions of one’s humanrights, the regulation about it should also be in a form of a Law. The
restriction will also ensure that there should be sufficient amount ofoversight and guarantee the legality of the censorship policy.47
3.

Establishment of discrimination based on gender identity andsexual orientation require swift response from the state and the
support from the community to stop discrimination. National laws
and the bylaws criminalizing homosexual bring negative impact tothe freedom LGBTIQ to express their gender identity and sexual
orientation through the internet. Act on Anti-Pornography Article 4(1a) defined homosexual as deviant sexual behavior. As a consequence,
all forms of media and publication related to LGBTIQ area considering
as carrying pornographic content. The criminalization among others

47 Position Paper 1/2014 tentang Menolak Rencana PerMen Sensor Sapujagat 2013-2014 ,Indonesian Media Defense Litigation Network (IMDLN) dan Institute for Criminal Justice Reform (ICJR), oleh Supriyadi Widodo Eddyono & Anggara, http://icjr.or.id/data/
wp-content/uploads/2014/06/Position-Paper-Hukum-Internet-1-bloking-dan-Filtering-internet_Final.pd

48 Queering Internet Governance in Indonesia

is manifest in blockade of websites containing information related to
Human Rights of LGBTIQ. Some of those websites are International
LGBTIQ Association (ILGA), www.ilga.org, International LGBTIQ
Human Rights Commission (IGLHRC), www.iglhrc.org, and portal
OurVoice www.ourvoice.org. There was no prior notification to theadministrator before the access to the website was closed by the ISP.
Criminalization toward homosexual has a strong potential to turn into
criminalization of LGBTIQ community. According to Anupama Roy inIndian Journal of Gender Studies “Towards a Practics of Democratic
Citizenship”“structure is established as hierarchy in the context ofsexuality and is legitimized by social institution such as marriage andfamily” (2007: 6). When discussing about citizenship of LGBTIQ, they
become invisible because there are no institution to legitimize theiridentity and often times they look like the “subjects of criminal law”
(Roy 2007: 9)
4.

Establishment of INSAN, a network of civil society organization
formed to support Program of Decent and Safe Internet launchedby Ministry of Communication and Informatics has the potential
to criminalize LGBTIQ. In response to such situation, a consultative
meeting of network of civil society in Indonesia was set. In the meeting,
ICT Watch conveyed that INSAN does not have legal legitimization
to regulate internet content. At that time the policy is still in theprocess of being translated into Ministerial Decree on Control ofInternet Sites with Negative Content. In the process, the regulation
on internet content refers to Act No.44 on Anti-Pornography that will
legitimize criminalization of LGBTIQ on the internet. Similarly, Donny
BU, one of the activists of ICT Watch asserted that:
So, if we are looking at the ILGA website and the website
of Ourvoice, we can see that the management of internet
in Indonesia is a mess. So, when Ministry of Communication49

ad Informatics called to close down all negative websites in
preparation for Ramadan for instance, if you are not closing
these websites it means to you work against the government.
This will later poses you to government sanction which will lead
into withdrawal of license. Who is not afraid of that?!
The Ministry wants us to govern the content in the truest
sense. It means that they want to make this decent and safeinternet program as platform to encourage as much positive
content as possible. So, I can understand the essence. They wanta legal umbrella to legalize this program in order to assure thegrowth of positive content and to suppress negative content.
And this of course remains in line if it is directed toward
encouraging positive content instead of blocking website. If it isfor the purpose of encouraging positive content, ICT Watch will
support. (Donny BU, ICT Watch)
The role of the state, in this case Ministry of Communication
and Informatics, violates Human Rights in Business Sectors quoted
in Guiding Principles on Business and Human Rights issued by the UN
Human Rights Council on June 16, 2011. The document is a global
standard established to prevent and mitigate impact of businesstoward human rights. In the Chapter of State Duty to Protect Human
Rights, it is stated that “States must protect against human rights
abuse within their territory and/or jurisdiction by third parties, including
business enterprises. This requires taking appropriate steps to prevent,investigate, punish and redress such abuse through effective policies,
legislation, regulations and adjudication.”
Referring to the same document, ISP as part of business sector
should comply to principles in the Chapter Corporate Responsibility to
Respect Human Rights, it is stated that, “Business enterprises should
respect human rights. This means that they should avoid infringing on
the human rights of others and should address adverse human rights

50 Queering Internet Governance in Indonesia

impacts with which they are involved.”
The implementation of discriminatory legislation happens
simultaneously with cyberhomophobia/transphobia that continues
to happen and is getting worse in online sphere. Systematically thisviolation is perpetrated by groups within society and politicians.
Homophobic bullying against LGBTIQ is perpetrated not only
by individual user, but also worse, it is organized in a Facebook
group, among others the Anti-Homosexual Community where they
name and degrade homosexuality in Kaskus, as well as degradingstatement coming from politician that belittle the LGBTIQ in the social
media. The state and the people are not yet sensitive to protect andrecuperate LGBTIQ’s wound and to provide them with security andfreedom from any cyber homophobia/transphobia.
The cyber-homophobia/transphobia cases shall be treated as
any other crime perpetrated in a real world. The LGBTIQ shouldbe able to use the Penal Code as legal basis to take actions against
the perpetrators of cyber-homophobia and take them accountablein penal responsibility. The Penal Code Article 335 on Extortion andThreats: “any person who unlawfully forces another by force, by anyother battery or by an offensive treatment aimed either against theother person or against a third party, to do, to omit or to toleratesomething shall be punished a maximum imprisonment of one year”
The Law on Information and Electronic Transaction48 Chapter VII
on Prohibited Actions as stipulated in Article 2 as follows:(3) Any person who intentionally and does not have the rightto distribute and/or transmit and/or to make the electronic
document and/or information available to public that has
insulting content and/or defamation nature;(4) Anyone who intentionally and does not have the right todistribute and/or transmit and/or make electronic information
48 Undang-Undang Republik Indonesia No.11 Tahun 2008 tentang Informasi dan Transaksi
Elektronik http://www.kemenkumham.go.id/attachments/article/113/uu11_2008.pdf

51

accessible to public the electronic document and/or information
with extortion and/or threat content to others.
These legal basis can be used by the LGBTIQ to fight against cyberhomophobia/transphobia and criminally proceed the perpetrator
in accordance with the Chapter XI on Penal Provision Article 45
Paragraph 1 of the same law :Anyone to commit elements in Article 27 paragraph (1), paragraph(2) , paragraph (3) or paragraph (4) might be punished withimprisonment approximately 6 (six) years and/or fine as much as
Rp. 1,000,000,000,- (One billion Rupiah)
Hence, legal protection of Human Rights of LGBTIQ must be
enforced in policies in Indonesia by referring to existing regulationand Human Rights document both at national and international level.
5.

Advocacy to Integrate Human Rights of LGBTIQ in Internet
Governance has not yet received adequate support from thepeople and the state. Although most LGBTIQ organizations havestarted to be involved in the issue of and advocacy forum on internet
governance, the idea of integrating Human Rights of LGBTIQ to theinternet governance is still considered new by the network of ICT
advocates. On the other hand, the LGBTIQ communities are not yetaware of internet governance. The situation challenged the cause
of integrating Human Rights of LGBTIQ to internet governance inIndonesia. The discourse on sexuality and rights to internet remain
new in Indonesia. Moreover, there is a gap in knowledge where someof the advocates of rights to internet are not aware or knowledgeable
in the issue of rights related to gender identity and sexual orientation.
Hence, one of the strategies of queering the internet governanceis to build network supporting to connect sexual rights and rights
to internet to human rights in general. This includes ending cyber-

52 Queering Internet Governance in Indonesiahomophobia experienced by activists working for the enforcementof Human Rights of LGBTIQ in Indonesia.
The movement of LGBTIQ and rights to internet must be
understood as a part of human rights and the advocates of both
movements must be open to collaboration and mutual understanding
on enforcing internet governance which respect human rights
including rights of LGBTIQ.
6.

UN regards to the birth of LGBT rights resolution, Internet andHuman Rights, Business Sector and Human Rights, and to consider
the importance of integration of the three resolutions in realizing thequeering of internet governance, an advocacy to multi-stakeholders
for the acceleration of Human Rights Convention based on sexual
orientation, gender, internet, and business and human rights as the
4th human rights generation is needed.

Recommendation
Based on our research and conclusion, there are some recommendations
for the accelerated fulfillment of the LGBTIQ human rights in internet
governance, as follow:
For Ministry of Communication and Informatics Republic of Indonesia:• In composing internet governance policies, including the draft of
Ministerial Regulation on Negative Internet Content Management,
it uses and integrates the national and international human rights
and law documents, as followed:
1) 1945 Constitutions in Article 28C Paragraph 1 states that: Every
one shall have the right to develop him/herself through thefulfillment of his/her basic needs, the right to get education andto benefit from science, technology, arts and culture, for the
purpose of improving quality of his/her life and for the welfareof the human race.

53

•

•

2) Law Number 7 of 1984 on the ratification of the Convention
on the Elimination of Discrimination Against Women.
3) Law Number 12 of 2005 on the Ratification of Civil and Political
Rights.
4) Article 19 of the Universal Declaration of Human Rights:
Everyone has the right to freedom of opinion and expression;
this right includes freedom to hold opinions without interference
and to seek, receive and impart information and ideas throughany media and regardless of frontiers.
5) Employ UN Human Rights Council Resolution No.A/HRC/
RES/17/19 Year 2011 on Human Rights, Sexual Orientation and
Gender Identity
6) Resolution No. A/HRC/Res/20/8 year 2012 on Promotion,
Protection and Fulfillment of Human Rights on the Internet.
7) Resolution of the UN HRC Number A/HRC/RES/17/4 on Human
Rights and Transnational Corporation and other businesscorporations, which was enacted on June 16, 2011.
To involve more civil society, individuals and LGBTIQ human rights
organizations in formulating all internet governance policies
including the composition of Ministerial Regulation on Negative
Internet Content Management.
Apply principle of transparency and accountability on issuingpolicy and implementing blockade.

For Members of Legislative:• Conduct Judicial Review on:1) Law Number 11 of 2008 on Electronic Information andTransaction2) Law Number 44 of 2008 on Anti Pornography• Formulate specific regulation which includes cyber-homophobia
as a part of cyber-crime based on Article 335 of the Penal Codeof Indonesia (KUHP) on Extortion and Threats or the Law on

54 Queering Internet Governance in Indonesia

Information Technology on the Prohibited Acts in Article 27
paragraph 3 and 4 on insult and threat on electronic media
For Police of Republic of Indonesia• Provide legal services for LGBTIQ community in non-discriminative
manner while the community reports act of cyber-homophobia
as a part of cyber-crime acknowledged in Article 335 of the Penal
Code of Indonesia (KUHP) on Extortion and Threats or the Law
on Information Technology on the Prohibited Acts in Article 27
paragraph 3 and 4 on insult and threat on electronic media
For National Commission on Human Rights (Komnas HAM):• Continue to support integration of Human Rights of LGBTIQ tointernet governance• Monitor and investigate cases of blockade of websites promoting
Human Rights of LGBTIQ.
• Play its role as mediator between LGBTIQ community withother members of civil society, private sectors, Human Rights
organizations, and government to accelerate integration between
Human Rights of LGBTIQ and internet governance.
• Play its role in monitoring state policy related to Human Rights of
LGBTIQ, internet governance and its policies, related laws such as
Act on Pornography, Act on Information and Electronic Transaction,
and Discriminative Bylaw such as the Bylaw of Palembang, South
Sumatera Province No. 2 Year 2004 on Eradication of Prostitution
based on:a) 1945 Constitutions in Article 28C Paragraph 1 states that: Every
one shall have the right to develop him/herself through thefulfillment of his/her basic needs, the right to get education andto benefit from science, technology, arts and culture, for the
purpose of improving quality of his/her life and for the welfareof the human race.

55b) Law Number 7 of 1984 on the ratification of the Convention
on the Elimination of Discrimination Against Women.
c) Law Number 12 of 2005 on the Ratification of Civil and Political
Rights.
d) Article 19 of the Universal Declaration of Human Rights:
Everyone has the right to freedom of opinion and expression;
this right includes freedom to hold opinions without interference
and to seek, receive and impart information and ideas throughany media and regardless of frontiers.
e) Employ UN Human Rights Council Resolution A/HRC/Res/20/8
year 2011 on Human Rights, Sexual Orientation and Gender
Identityf) Resolution No. A/HRC/Res/20/8 year 2012 on Promotion,
Protection and Fulfillment of Human Rights on the Internet.
g) Resolution of the UN HRC Number A/HRC/RES/17/4 on Human
Rights and Transnational Corporation and other businesscorporations, which was enacted on June 16, 2011.
For Internet Service Provider (ISP) and Assosiasi Penyelenggara Jasa
Internet Indonesia (APJII)/Association of Internet Service Provider
Indonesia and Blocking Service Provider:• To do their business by aking into account Human Rights principles
as mandated in the Resolution of the UNHRC Number A/HRC/
RES/17/4 on Human Rights and Transnational Corporation andother Business Corporations, which was adopted in July 6, 2011
For Researchers:• Develop further research related to abandonment of Human
Rights of LGBTIQ in Internet Governance.
For Individual LGBTIQ:• Improve knowledge and skill to protect themselves and their

56 Queering Internet Governance in Indonesia

community both online and offline.
For Activists of Human Rights of LGBTIQ:• Improve knowledge and skill to protect themselves and theircommunity both online and offline.
• Improve knowledge and skill in relation to advocacy of internet
governance.
• Be more open to collaborate with Rights to Internet movement
to accelerate integration between Human Rights of LGBTIQ andinternet governance.
For activists and network of Rights to Internet and ICT:• Improve knowledge and perspective on Human Rights of LGBTIQ• Assist LGBTIQ movement to become more ICT literate• Be more open to collaborate with Human Rights for LGBTIQ
movement to accelerate integration between Human Rights of
LGBTIQ and internet governance.
• Integrate Human Rights of LGBTIQ at every work of advocacy on
Rights to Internet and Internet Governance57

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63About the Authors
Kamilia Manaf
Kamilia Manaf since the age of 23 years
active in feminist and young lesbians movementin Indonesia. She is currently completing a studyof Communication science. One of the foundersof Institut Pelangi Perempuan (IPP) Women’s
Rainbow Institute, an organization of young
women lesbian, bisexual and transgender ofIndonesia. She worked as a radio journalist in
the Women’s Journal Foundation. In 2008 she
was elected as one of board members of theInternational LGBTI Association (ILGA) Asia forthe representation of LGBT youth in Asia. The
biggest LGBT community website of Asia, Fridae.com, chose Kamilia
Manaf as one of the “LGBT People to Watch 2010”. Currently active as
coordinator of EROTICS Indonesia (Network, Riset and Advocacy on
Sexuality and the Internet in Indonesia). She occasionally provide training
in digital security and self defense boxing for women human rights
defenders, LGBT and other marginalized groups in Indonesia.
Her poems and short stories published on Women’s Journal and Pelangi
Perempuan, a collection of poems and short stories of young lesbians
Indonesia. One of the Yogyakarta Principles comic conceptor (LGBT humanrights education media for young people) which published by IPP and has
been translated into English, Dutch and French by international networkof LGBT. Her book titled “Kami Tidak Bisu” or “We Are Not Silent” about
the journey of young lesbian community in Indonesia published in 2011.

64 Queering Internet Governance in Indonesia

Dewi Nova Wahyuni
Since 15 years ago, Dewi Nova worked withwomen’s rights organizations in Indonesia,
Thailand and the Philippines. Humanitarian work
began as a counselor for survivor of violence andin several conflict areas such as Poso, Aceh andEast Timor with National Commission on Women’s
Rights in Indonesia. Furthermore Dewi worked
on anti human trafficking movement with Global
Alliance Against Trafficking in Women (GAATW)
in Bangkok. In 2013 Dewi worked with the Asian
Women in Co-operative Development Forum(AWCF) in Phillipines and continue Forum of Cooperative Movemenet
Development Indonesia until present. One of the founders of collective
community Perempuan Berbagi association of volunteers to support
survivor of violence in South Tangerang City, Banten, and one of board
members of Institut Pelangi Perempuan (IPP) young lesbian bisexual andtransgender organization and in Setara Institute who worked for freedomof religion / belief.
Dewi wrote “Berdiri di Atas Kaki Sendiri” (Stand on Its Feet) struggle ofsurvivor Ahmadiyah (Pustaka Setara, 2012), and “Akses Perempuan pada
Keadilan” (Women’s Access to Justice)” experience of women in Sumatra
and Java for justice (Hivos and the European Union, 2011). Poetry book
“Burung-Burung Bersayap Air” published by Jaringan Kebudayaan Rakyat
on 2010, collection of short stories “Perempuan Kopi” (Coffee Woman)published by Air Publisher on 2012 and “Menulis Tubuh” or “Writing theBody” on the collection of short stories of Women Journal on 2013.

65

Ikram Baadila
Ikram Baadilla was born in Ambon on
June 2, 1961 completed bachelor degreein the Department of Sociology, Facultyof Social and Political Sciences, Gadjah
Mada University, and holds a Master ofCommunity Nutrition and Family Resourcesscience, Faculty of Agriculture, Bogor
Agricultural University, Indonesia. Since
1989 until now as a lecturer in the Department of Sociology, Faculty ofSocial and Political Sciences, University of Lampung, Indonesia. Active asa social activist in the Women’s and Children’s Advocacy Institute Bandar
Lampung (1998-2000), DAMAR Women’s Advocacy Institute Bandar
Lampung (2000-2004l), Organizational Development and ResearchInstitute (2004-present). One of the founders of the Association DAMAR
Bandar Lampung and board members of Institut Pelangi Perempuan(IPP) in Jakarta.
Paper with title “Rape” (a theoretical and empirical studies) publishedby ELSAPA 1998. He wrote books titled “Corruption’s Danger to Society”
published by the Anti-Corruption Committee (Komite Anti Korpusi/KoAK)
2002 and “Dark Room of Local Governmental Budget” published on
2004 by Koak. Active as facilitator to promote Gender Mainstreaming on
Education System (2003-present), as speakers, facilitators to promote
Human Rights, including the rights of LGBTIQ, and also as a researcher onsocial conflict as well as social conflict resolution. Active in regional andnational meetings, also various network for strengthening civil society.

66 Queering Internet Governance in Indonesia

Institut Pelangi Perempuan is a non-governmental organization as
the center of activities and information for young Lesbian, Bisexual
Women and Transgender in Indonesia. IPP uses the strategy called“Edufuntainment” (Education, Fun and Entertainment) as the tool for
promoting and struggling for LGBTIQ rights. Creating youth friendly,
safe and informal space such as dance, boxing and badminton club foryoung LBT women are some of the activities which were provided by IPP
for organizing and mobilizing the community. IPP was founded on 2006
by the collaboration of feminists, artists, human rights activists as well as
young LBT women.
Website : www.pelangiperempuan.or.id
Email : pelangiperempuan@gmail.com

6768 Queering Internet Governance in Indonesia