How the COVID-19 pandemic changed the perspective about women and leadership in responding to crises

As happened elsewhere, the COVID-19 pandemic has significantly impacted Indonesia. It transcended public health, permeating through governance and diplomacy in nations worldwide. Moreover, the repercussions of the COVID-19 pandemic extend beyond national stability, permeating into the realms of security and economic conditions for the Indonesian populace. These profound impacts have heightened individual perceptions of the pandemic’s severity, subsequently influencing preventive behaviours on a broader scale.

With over two million cases, Indonesia’s healthcare system has been under immense strain. The sharp rise in the number of cases and fatalities has placed immense pressure on the healthcare system, causing unprecedented strains to its capacity. ¹ According to one study, commuting to work has a negative correlation to the spread of the pandemic. At the same time, the frequent visits to retail and leisure establishments, grocery shops, pharmacies, and parks significantly drove the rapid transmission. ²

With hindsight, managing COVID-19 pandemic in Indonesia necessitates a comprehensive understanding of the relationship between gender and power. This research note suggests that insights into the gendered foundations of political institutions, is an important tool to look into the COVID-19 situation in Indonesia.

Al-Ali (2020) delves into the gendered ramifications of the COVID-19 pandemic in the Global South by looking at the intersecting inequalities and heightened vulnerabilities experienced by marginalised populations. ³ It also examines various feminist initiatives and mobilisations to mitigate the crisis’s impacts. In Indonesia context, the “everyday leadership” of women during COVID-19 pandemic demonstrated meaningful departures from the traditional repertoires of essentialist gendered notions that prioritise men’s roles. This highlights the prerequisite to adopting more narratives on women’s leadership amid the gender-neutral discourses in politics and governance, particularly during the pandemic, as identified in the findings of Komnas Perempuan’s policy brief. ⁴

As mentioned above, this research note looks into the impacts of the COVID-19 pandemic and the responses to it, which reflect the ramifications of gender and power structure. Aside from the literature review, it includes several Zoom interviews with ten research participants comprised of activists who advocate the implementation of the “Women, Peace and Security agenda”, women in the government (community health centre /Pusat Kesehatan Masyarakat/ Puskesmas and in the Ministry of Women Empowerment and Child Protection); women in business sectors (one woman owner of a small-scale community-based industry, and one work in a multinational company); woman as a domestic worker, and LGBT activists. All of the interviews were done during the COVID-19 pandemic, focusing on the role of their resilience. The interviews shed light on the many facets of the pandemic’s repercussions.

Impacts of the COVID-19 pandemic

The first reported COVID-19 case in Indonesia emerged on March 2, 2020, approximately one month after the WHO declared it a Public Health Emergency of International Concern. ⁵ By March 31, 2020, Indonesia had reported 1.528 positive cases, 136 deaths, and 81 recovered cases. ⁶

As of November 21, 2023, Indonesia has recorded over 6.57 million cases of COVID-19 and over 150,000 deaths. The pandemic strained Indonesia’s healthcare system, particularly in densely populated areas and regions with limited resources.

In addition, the pandemic caused a severe economic downturn in Indonesia, with the country’s GDP contracting by 2.1% in 2020. The pandemic-related restrictions and lockdowns have disrupted supply chains, reduced tourism, and led to widespread job losses, particularly in the informal sector. The pandemic exacerbated poverty and inequality, pushing millions of Indonesians back into poverty.

\The pandemic has also had a profound social impact, disrupting education, social gatherings, and community life. School closures have affected the learning of millions of students (Huriani et al., 2021), ⁷ while social distancing measures have limited social interactions and increased feelings of isolation. The pandemic has also aggravated existing social issues, such as domestic violence and child protection concerns.

Government’s Weak Responses

Despite the fatality of cases, the Indonesian government has faced extensive criticism both domestically and, to some degree, internationally for their handling of the COVID-19 pandemic. Since the first dissemination of the pandemic in the area, the government’s reaction has been ambiguous, characterised by conflicting directives, inadequate implementation of physical separation and self-quarantine measures, and a feeble communication campaign. Indonesia’s response seemed to be in denial.

The government’s initial responses included encouraging prayer over tracing sources of viruses, providing prevention for vulnerable communities, and offering tourism discounts (up to 30%) to entice tourists to visit Indonesia instead of imposing strict travel restrictions like its neighbouring countries. ⁸ It was also reported that millions of dollars were allocated to pay social media influencers for tourism promotions instead of investing that money in healthcare services. ⁹

Criticised for a perceived lack of sense of emergency, the Indonesian government faced scrutiny for its slow and unclear policies, weak enforcement and misleading statements. ¹⁰ What was more concerning was the then Health Minister Terawan Agus Putranto’s dismissive attitude, which heightened concerns about the government’s management capabilities. ¹¹

The lack of responsiveness, preparedness, and weak health service system contributed to inadequate responses, leading to a rising number of cases and fatalities. ¹² COVID-19 response weaknesses included financial mismanagement, sectoral impacts, and a lack of transparency, leading to increased poverty, healthcare challenges, and economic instability. In addition, the government’s handling has resulted in public trust issues and an inability to control the virus’s spread, as the public criticised the government’s insufficient information and virus control measures. These actions raised concerns about the government’s ability to protect citizens, especially the vulnerable. ¹³

As well as the Health Ministry’s convoluted bureaucracy in delivering test kits and instruments to read PCR test samples, the absence of testing is one of the main criticisms against the Indonesian government. Indonesia has the fourth worst testing rate for the coronavirus among countries with a population of 50 million or more, according to data compiled by Worldometer, which places the testing rate at 36 per million individuals. It is only ranked higher than Ethiopia, Bangladesh, and Nigeria, with testing rates of 16, 18, and 19 tests per million people, respectively. ¹⁴ With 8,996 tests per million people, South Korea and Singapore are, in contrast, the nations that occupy the highest positions in the ranking. According to experts, the official mortality toll is significantly underestimated, and the number of cases in Indonesia ought to be substantially higher than what is currently reported.

Responding to critics, the Indonesian government has implemented various measures to address the pandemic and its impacts. Large-scale social restrictions (PSBB) are temporary restrictions on public activities to curb the spread of the virus. In the economic sector, the government applied the National Economic Recovery (PEN) program, a fiscal stimulus package to support businesses and individuals affected by the pandemic ¹⁵—and vaccination rollout nationwide to protect the population from COVID-19. Then, the Indonesian government implemented restriction policies for travel to and from countries in the red zone to break the chain of transmission of COVID-19. ¹⁶

Nevertheless, the government’s initial responses had put Indonesian citizens in danger instead of being vigilant and protective. There is a general outcry that the Jokowi administration had downplayed the pandemic, and its initial responses had failed to protect citizens, particularly those who are vulnerable.

Ineffective management of the pandemic in Indonesia has implications for women’s specific needs and challenges not being adequately addressed. The lack of gender-inclusive leadership hindered diverse perspectives in decision-making, limiting the effectiveness of management strategies. Women’s experiences and challenges may not have been fully considered, leading to a disproportionate impact on women and exacerbating gender inequalities. The inadequacy in managing the pandemic can be attributed to a failure to adopt gender-inclusive leadership, hindering the overall response and recovery efforts.

How Government’s Weak COVID-19 Responses Affected Women and Minority Groups

The inadequate government response to the pandemic has disproportionately impacted both women and minority groups. Studies have noted that women disproportionately experience the impacts of the pandemic due to the presence of systemic gender disparities.

With lockdowns and school closures, women in Indonesia, as in many other countries, have taken on a heavier burden of unpaid care work, including childcare and homeschooling. This research note identified the conditions where women experienced multiple vulnerabilities during COVID-19 pandemic, which affected their situations. A study by Yayasan Care Peduli (YCP) in 2020 found that women had less access to COVID-19 testing and treatment compared to men. ¹⁷ It shows that women have faced gender disparities in healthcare access and outcomes during the pandemic. This could be due to pre-existing gender inequalities in healthcare access.

Studies have shown that women are more vulnerable to the effects of COVID-19 in terms of their health, economic status, and social well-being. The economic uncertainty caused by the COVID-19 pandemic in Indonesia has had a disproportionately negative impact on women compared to men. Extensive research conducted by Chairani (2020) illuminates the intricate and far-reaching consequences of COVID-19 on women within the country. ¹⁸ The economic instability further intensified gender inequality in Indonesia, notably in employment and economic activities (Miranti, 2022; Supartinah, 2021). ¹⁹ Already carrying the burden of unpaid domestic labour, women have been disproportionately impacted by employment losses and worse quality of life (Supartinah, 2021). Women’s over-representation further compounds this inequality in sectors most heavily impacted by the pandemic, such as hospitality and retail.

In exchanged conversations during my research of Women, Peace, and Security Agenda implementation during the COVID-19 pandemic, for instance, women activists mentioned that the COVID-19 pandemic added more burden for women in domestic roles to assume the responsibilities often associated with financial management for their households, which sometimes made them feel “tired all the time” (Zoom interview with R.K., A.E., and M in 2020 and 2021).

Accordingly, some women faced a dilemma because they felt more burdened due to their positions as public servants, which needed leadership qualities, whilst on the other side, lacking support to “keep the house safe and fulfil the duties as a mother for their children” (Zoom interview with A.A. and C.P. in 2021). Nevertheless, some women actively seek ways to enhance their domestic economy while encountering significant constraints and limits, like long-distance relationships with spouses. This, too, had vulnerabilities towards domestic violence or emotional tensions (Zoom interview with A.S. in 2021 and 2020).

The COVID-19 pandemic also showed various pictures of women’s resiliency, ²⁰ as experienced by several female entrepreneurs and women who work in business sectors and face unique challenges. For instance, as a permanent staff member of private-owned companies, the problem is adjusting to structural deadlines whilst strategising to work from home. Since the company is multinational, workers also face the increasing threat of layoff (Interview with ASH 2021).

In another scenario, women who owned small-scale industries had more difficulty accessing financial support and adapting to new business models during lockdowns. An interview with a woman from an activist background who owns Small and Medium Enterprises (MSMEs) of batik craft in Garut District (West Java) identified the hardships that hindered the sustainability of programs run by village women (Phone interview with Z.H. in 2020 and 2021).

The COVID-19 pandemic also had a profound and wide-ranging impact on gender dynamics in Indonesia. Marginalised groups have disproportionately borne the brunt of this crisis, exacerbating existing inequalities and exposing the lack of a comprehensive and inclusive approach to the pandemic response. ²¹

For instance, minority groups often face barriers to accessing accurate and up-to-date information about the pandemic due to language barriers, cultural differences, and limited access to technology (Zoom interview with B in 2021). This lack of information led to misconceptions, non-compliance with public health measures, and increased vulnerability to the virus.

As an example, activists called out the media in Aceh, which identified and overlooked the challenges faced by minority groups during the COVID-19 pandemic, neglecting issues like education, child rights, and conflict management. ²² The media is regarded as often marginalising minority groups due to their divergent perspectives, and the interethnic and interreligious dynamics in Banda Aceh have not been promoted as a viable tourism destination.

Another example is exhibited in research by Kurawal (2022) on the extent to which the LGBTQ community is affected by the COVID-19 pandemic. ²³ One significant discovery in this study is that over 80% of the respondents from the LGBTQ community who participated in this survey reported a decline in income ranging from 25% to 50% during the pandemic’s lockdowns and restrictions. The LGBTQ community experiences a substantial decrease in income, resulting in at least 63% of individuals falling below the poverty threshold established by the BPS. LGBTQ organisations use survival measures in response to the economic ramifications of the COVID-19 pandemic. The participants in Kurawal’s study employed many strategies to sustain their livelihoods, including seeking financial assistance via borrowing, cohabitation with others, curtailing their food intake, and even cutting down on expenditures related to healthcare.

Kurawal’s study resonated with my online “conversations” with LGBTQ activists who supported the research process in 2020 and 2021, where the individual identified continuous feelings of isolation and always under stress (Zoom interview with P and B, 2020 and 2021). These activists felt distressed due to mobility restrictions, which affected their social lives that were already at risk. The above factors undoubtedly have a substantial influence on the well-being of those identifying as LGBTQ, particularly regarding their physical health and psychological state in crises.

The COVID-19 Task Force After heavy criticism, on March 13, 2020, Indonesia’s government established the Indonesian Task Force for COVID-19 Rapid Response to prioritise public health and safety (Rela, Z I. et al. 2022). ²⁴ The National Disaster Management Agency (BNPB) led the task force. It included representatives from the Ministry of Health, the Indonesian National Police (Polri), and the Indonesian National Armed Forces (TNI). These measures include the implementation of Large-Scale Social Restrictions through Regulation No. 21 of 2020, which aims to control the spread of COVID-19 and minimise its impact on the population. ²⁵

The task force was critical in Indonesia’s response to the COVID-19 pandemic. It helped to coordinate the government’s efforts, ensure that resources were allocated effectively, and provide information to the public. However, the task force has also been criticised for its lack of transparency and communication. ²⁶ In addition, its leadership was critiqued for lacking a gender perspective.

Although Indonesia has institutionalised gender mainstreaming as a strategy to integrate gender into national development policies, the North Sumatra Indonesian Women’s Association (HAPSARI) claimed the government ignored BNPB Head Regulation Number 13 of 2014, which regulates the obligation to address women’s experiences during disasters, despite it not being a legal reference. ²⁷ National regulations mandate gender mainstreaming in emergency and disaster response plans. However, women’s participation in the National Task Force is only 7%, compared to 12% in the Central Java Provincial Task Force. ²⁸ This situation was reflected in Salatiga City’s government personnel, who have a more outstanding gender balance but lack high-ranking positions.

The Gender Mainstreaming Working Group in Handling COVID-19 (Kelompok Kerja Pengarusutamaan Gender COVID-19/Pokja PUG COVID-19), which was established by government and civil society representatives from 21 provinces to enhance gender equality in managing the pandemic, also voiced advice to the Satgas. ²⁹ Its purpose is to ensure systematic and comprehensive implementation of gender mainstreaming policies in Indonesia’s Disaster Management.

Women activists from the Working Group argued that the state has Presidential Instruction No. 9 of 2000 about Gender Mainstreaming, Regulation No. 67 of 2011, and Law No. 23 of 2004, explicitly addressing domestic abuse prevention. These laws have been translated into Regional Regulations (PERDA) that address the safeguarding of women and children from acts of violence in every province. Regulation No. 13 of 2014 by the Head of the National Disaster Management Agency (BNPB) also requires the deliberate inclusion of women’s and girls’ perspectives in disaster response. However, these activists observed that the Perka failed to fulfil the statutory criteria for forming the Task Force for the Acceleration of Handling COVID-19 Decree No. 18 of 2020.

The COVID-19 Working Group emphasised the importance of disaggregated data on COVID-19 victims. The Ministry of Women’s Empowerment and Child Protection (KPPPA) launched the BERJARAK campaign, and the Presidential Staff Office (KSP) launched the Sejiwa Service.

Furthermore, the Working Group of women activists also noted that the initial policy of imposing physical restrictions, which was later expanded to include Large-Scale Social Restrictions (PSBB), coupled with diverse regional responses due to disparities in capacity and leadership, has led to several problems, such as economic difficulties, food scarcity, and a rise in gender-based violence.

In this particular context, the pandemic has also created distinct possibilities for women in the digital economy and micro, small, and medium companies (Miranti, 2022). ³⁰ Regarding public communication, female religious leaders have effectively used digital channels within the religious sphere to address the pandemic, leading to increased prominence and impact (Nisa, 2022). ³¹

Hence, considering these variables, it is logical for activists to propose the BNPB head regulation as a model for incorporating gender equality into emergency disaster response. This would ensure meaningful involvement in the management of COVID-19 pandemic and non-discriminatory protection for all people. Women activists believed that the inclusion of women and minority groups in decision-making processes would effectively address their specific requirements while preventing the marginalisation of vulnerable groups.

Conclusion

This research note explores the profound impact of the COVID-19 pandemic on Indonesia, extending beyond public health to affect government, diplomacy, security, and the economy. The pandemic has heightened awareness and influenced preventative behaviours on a larger scale. The healthcare system faced significant pressure, and the economic recession disrupted supply chain tourism and led to widespread unemployment, pushing millions into poverty. Societal cohesion eroded, impacting education events and exacerbating social problems like domestic abuse. Online interviews revealed both vulnerabilities and resilience among women.

The government’s inadequate responses, including vague orders and a lacklustre information campaign, have faced widespread criticism despite measures like Large-Scale Social Restrictions and the National Economic Recovery program. Diverting funds from healthcare to tourism campaigns exacerbated existing issues.

The ineffective pandemic response has consequences for women and minority groups, intensifying gender disparities and hindering minority groups’ access to information. The LGBTQ community experienced a substantial income decrease, impacting their physical and psychological well-being.

While the COVID-19 Task Force played a crucial role, concerns persist over openness, communication, and the gender inclusivity of the viewpoints. Advocates emphasise the need for incorporating women and minority groups in decision-making to address their distinct requirements and prevent further marginalisation.

In conclusion, the COVID-19 outbreak in Indonesia has exposed deficiencies in governance, public health, and societal structures. Significant advancements have been made, but effectively tackling the challenges requires a thorough and all-encompassing strategy that considers gender dynamics and the meaningful participation of marginalised groups.

Irine Hiraswari Gayatri
Irine Hiraswari Gayatri, PhD., Research Centre for Politics, Badan Riset dan Inovasi Nasional (BRIN), Indonesia. ORCID https://orcid.org/0000-0003-4349-4904 ;emails: hiragayatri@gmail.com ; irin001@brin.go.id

Banner: Surabaya, Indonesia – August 30, 2021: social worker “ibu pkk” is collecting food aid to increase the nutritional intake of children from underprivileged families during the Covid-19 pandemic. Photo Adam Maulan, Shutterstock