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ISSN 2744-1741 
Defense and Security Studies  Original Research 
Vol. 3, January 2022, pp.50-57 
https://doi.org/10.37868/dss.v3.id195 

This work is licensed under a Creative Commons Attribution License (https://creativecommons.org/licenses/by/4.0/) that allows others 
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 50 

 
 
Review of Indonesian government policy in procurement plan of 
Dassault Rafale fighter aircraft  
 
A. Wardana1, T. B.Cahyana2, H. Tahdi3, Y. H. Yogaswara4 
1,2,3,4 Faculty of Defense Technology, Indonesia Defense University, Indonesia 
 
 

*Corresponding author E-mail:  achmad.wardana@tp.idu.ac.id  

Received Aug. 16, 2022 
Revised Aug. 29, 2022 
Accepted Sept. 1, 2022 

Abstract 

Indonesia's decision to procure 4.5 generation Rafale fighter jets has been 
approved to replace obsolete aircraft, namely the US-made F-16 and the Russian-
made Su-27 and Su-30. The selection of Rafale was based on Indonesia's defense 
relationship with France which had existed for a very long time, besides that it 
was also based on the foreign policy adopted by Indonesia, namely the free and 
active policy shown from several defense equipment owned by Indonesia, not 
only from a particular country. This study aims to examine government policies 
in the plan to procure Dassault Rafale fighter aircraft for Indonesia. This study 
uses a descriptive qualitative approach through literature review from reputable 
national and international journals, ebooks, and online media by exploring or 
explaining more broadly the government policy issues in the plan to procure the 
Dassault Rafale fighter aircraft for Indonesia. The findings of this study indicate 
that Indonesia is still lagging behind Vietnam, Thailand, and Singapore in terms 
of the number of first-tier modern combat aircraft that are ready for combat. In 
addition, purchase of the Dassault Rafale aircraft must provide effectiveness to 
improve national defense and security by using a definitive combination of "high-
low" that can be adopted from the USAF (United States Air Force), and also 
Indonesia must be realistic in responding to the regional balance of power 
(ASEAN) through the realization of the MEF towards IEF. One important factor 
that needs to be considered in the procurement agreement is the existence of a 
strong policy and commitment from the government that emphasizes the transfer 
of technology (ToT) by sending human resources to study and do internships in 
the development industry. 

© The Author 2022. 
Published by ARDA. 

Keywords: Dassault Rafale, Combination high-low, Transfer of technology, MEF, 
IEF 

1. Introduction  
The process of globalization has touched various fields of human life, in the fields of education, 

socio-culture, economy, politics, defense and security. They are never separated from the effects of 
globalization. The transformation process that aims to make people around the world into a single society and 
interdependent on each other is growing rapidly due to the sophistication of information and communication 
technology. However, the occurrence of the globalization process as a process that will bring the world under 



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one control through one global power has resulted in the dominance of the world community by countries that 
have great powers that are able to take a role in the process. [1] For Indonesia as a developing country with an 
area that stretches from Sabang to Merauke and with the fourth largest population in the world, it has not been 
able to take advantage of the momentum properly. Indonesia's strategic position has been used by other 
countries in various forms, Indonesia is used as a consumer in trade for other countries' products, so that 
Indonesia is only used as a market. 

As an independent and sovereign country, it is fitting for Indonesia to increase its defense and security 
forces. In order to protect the sovereignty of the nation. Moreover, in recent times there have been frequent 
conflicts in the border areas due to illegal fishing by foreign vessels flagged by Vietnam, Malaysia, China and 
several other countries who consciously take natural resources and wealth. Indonesian sea. Besides that, the 
confrontation carried out by the Chinese state over the South China Sea dispute by sending several warships in 
the Indonesian maritime border area allowed an open war for the countries with an interest in it. This further 
emphasizes the importance of the strength of military weapons for the defense and security of the nation. 
Mainly to anticipate conflicts in the Southeast Asian region by strengthening the military weapons of the 
Indonesian National Army (TNI). 

Indonesia continues to strengthen its military defenses under the command of Defense Minister 
Prabowo Subianto. Recently, Indonesia entered into a contract to purchase one of the most sophisticated types 
of fighter aircraft in the world to improve defense and maintain Indonesia's air sovereignty. Airspace is one of 
the most important defenses in military defense. From the news on Defense Minister Prabowo's working visit, 
the Dassault Rafale multirole generation 4.5 from France is the strongest candidate, in addition to the hope to 
get an aircraft from the United States F-15EX. Indonesia will buy 42 Rafale aircraft and hopes to become the 
owner of 8 F-15EX. [2] 

The purchase of 42 Rafale fighter planes by Defense Minister Prabowo Subianto in early 2022 raised 
pros and cons. Apart from that, purchase of 6 Rafale type aircraft (36 planes will follow)  with representatives 
of Dassault Aviation in Jakarta, Thursday (10/2/2022). [3] Buying a new fighter aircraft is an optionstrategic 
political and military. This decision, of course, is not just a purchase for valor, but for the defense and security 
of the country. If it is not used to actively fight, then its existence must be effective in giving effects that affect 
the defense and security of the country. Therefore, this study aims to examine government policies in the plan 
to procure Dassault Rafale fighter aircraft for Indonesia. 

2. Research method 
This study uses a descriptive qualitative approach by exploring or explaining more broadly 

government policy issues in the plan to procure the Dassault Rafale fighter aircraft for Indonesia. The research 
focuses on the strategic plan for the procurement of the dassault rafale and the presence of the dassault rafale 
for Indonesia. Data collection is carried out through literature studies originating from reputable national and 
international journals, ebooks, and online media. 

The literature study in this study was conducted by searching and studying various literatures related 
to government policies in the plan to procure the Dassault Rafale fighter aircraft for Indonesia. Sources of data 
in this study are books, journals, website pages and other references that are considered relevant to the theme 
in this study. The author uses data analysis techniques with qualitative descriptive analysis strategies. 

3. Results and discussion 
3.1 Global Free Power Index 

The Global Free Power Index is one of the institutions that assesses the military strength of all 
countries in the world, indicators that assess a country's military strength include several aspects. Among them 
are geography, the number of troops, the strength of military weaponry on land, water and air. Until the 
military budget becomes an assessment aspect. According to several public releases, such as the Global Free 
Power Index, currently the Indonesian Air Force only has about 445 aircraft forces. This fleet consists partly 
of second-tier light fighter aircraft that are running down. Meanwhile, the total area of Indonesia that must be 



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covered is 1.9 million km2. This does not include important flash points, such as the South China Sea, Natuna 
waters, the Malacca Strait, and parts of the eastern region, which need more attention and fleets. [4] 

Table 1. Air Force comparison of several ASEAN (Source: GFP Index, 2022; processed data) 
Countries Total Aircraft Strength Fighter/Interceptors Dedicated Attack Transport Trainers
Indonesia 445 41 23 66 126 
Malaysia 144 26 12 18 39 
Thailand 496 74 18 50 130 
Singapore 224 100 0 9 36 
Vietnam 218 75 0 9 30 
Myanmar 280 55 21 26 93 
Philipines 182 0 25 21 24 
Cambodia 23 0 0 4 0 
Laos 32 0 0 1 4 

The data above shows that Indonesia's Total Aircraft Strength sub-indicator is at 445 which only loses 
to Thailand at 490, then on the Transport sub-indicator, Indonesia is superior compared to other ASEAN 
countries, namely 66. For matters of the number of first-tier modern fighter aircraft that are ready In combat, 
Indonesia is also still lagging behind Vietnam, Thailand, let alone Singapore. Indonesia's lack of hitting power 
in air defense, as the largest country in ASEAN, is quite a contrast to some of its neighbors. In terms of the 
number of air force personnel, Indonesia has an estimated 37,850 personnel, which is still less than Thailand 
with 47,000 personnel, whose area and total population differ greatly (270 million vs. 70 million), and is 
almost on par with Vietnam (95 million people). million people) with a total of 35,000 air force personnel. 

For this reason, as an effort to anticipate conflicts and attacks on a country, maintenance and renewal 
of the main weapon system for each country is very important. The modernization of military power is also 
influenced by advances in defense technology. This reflects alertness, valor as a nation (KSAU Marsda TNI 
Dr. Umar Sugeng Hariyono, S.IP, S.E, M.M.)  

3.2 Strategic Considerations  
Indonesia plans to purchase a number of major modern weapons systems (alutsista) in stages until 

2024, in order to fulfill the strategic plan for phase III of the TNI's Minimum Essential Force (MEF) program. 
Some of the defense equipment to be purchased include 8 units of multirole combat aircraft F-15 EX (United 
States) and 42 units of Dassault Rafale fighter aircraft (France). Although there are guidelines for posture, 
strategic plan and MEF, the procurement of defense equipment basically depends on the conditions of the 
strategic environment that continue to change dynamically. In addition, the procurement of defense equipment 
also has a contribution to defense diplomacy efforts with other countries of strategic value to the global 
political constellation. The purchase of these two fighter aircraft can also increase the deterrence effect for 
Indonesia in the region. Previously, Indonesia planned to procure Russian-made fighter aircraft, namely the 
Sukhoi Su-35, but the purchase plan was not forwarded by the Ministry of Defense and TNI Headquarters. 
The plan to purchase the Dassault Rafale & F-15 Ex is considered a wise step amid the United States' 
implementation of The Countering America's Adversaries Through Sanctions Act (CAATSA). CAATSA is a 
rule applied to impose sanctions in the form of sanctions and embargoes against countries that buy weapons 
from Russia, Iran and North Korea. [4] 

The addition of the main fighting force is a very important requirement for Indonesia. From the 
Global Firepower it is clear that Indonesia's air combat power is still relatively inadequate. Purchasing more 
precise fighter aircraft is the key word. If it is assumed that the purchase of Rafale fighter aircraft is in 
accordance with the plan, then the combat power of the Indonesian air force will increase from 461 units to 
503 units of defense equipment. [5] 



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3.3 Combination “High and Low” 
Buying a new fighter is a strategic political and military choice. The decision to operate it is not just a 

purchase with a certain ability for valor, but for military defense. If it is not used to actively wage war, then its 
presence must be effective in providing a deterrence, which also affects regional security and as part of the 
country's political tools. In concocting fighter aircraft postures, we can learn from the USAF example (United 
States Air Force), which uses the definitive combination of "high-low". The USAF does not rely on one type 
of advanced aircraft, but operates several types of fighter aircraft, designed for a specific mission and 
simplified into two. That is, those with high abilities (high) and those with abilities below (low). 

Table 2. Fighter Aircraft Category 

Fighter Aircraft High Capability Fighter Aircraft Low Capability 

GD F-111 Boeing F/A-18A atau F16 
Sukhoi Su-32FN/34 Dassault Rafale 
Sukhoi Su-27/30/33 Eurofighter Typhoon 
Boeing F-15K/SG LM F-16C 

LM F-22A Joint Strike Fighter F-35 

"High" fighter aircraft dedicated to air superiority (air-to-air combat). The specifications are very high 
speed above Mach 1.5, long range, sensitive advanced radar, advanced computer that can identify and track 
multiple targets at once, and can carry multiple air-to-air missiles. The main role of the "high" fighter aircraft 
is to clear the air combat zone of enemy fighters and air defense systems. This makes the combat area 
relatively safer for other vehicles, such as tactical bombers and helicopters, which are more vulnerable to 
attack by aircraft and anti-aircraft defense systems, from that function emerged the F-15 Eagle and now its 
successor is the F-22, the Su- 35, Su-57. However, of course this existence is very expensive and requires a 
high commitment with a long process. Therefore, the production of "high" class fighter aircraft is not as high 
as other classes, and the fleet is also specialized in the elite tier. While the high demand due to conflict 
persists, the solution is to design a second tier fighter, which has been reduced in specifications and is 
definitely cheaper. However, the line which was less sophisticated than the first tier was covered by a sizable 
quantity of the second tier fleet. 

For "low" fighter aircraft, its main role is to strike the ground with more air-to-surface. Air-to-air 
missiles still exist, but only as a limited support tool for self-defense. "Low" fighter planes will rely on their 
friends "high" fighter planes to guard and defend themselves from enemy threats. “Low” fighter designs are 
usually smaller and have a shorter cruising range. The maximum speed is lower, the radar is not as 
sophisticated as the “high” class, and the avionics are simpler. An example of a fighter of this category is the 
F-16 Fighting Falcon, then now there is the F-35. [6] 

3.4 MEF to IEF 
According to the Expert Staff Coordinator (Koorsahli) KSAU Marsda TNI Dr. Umar Sugeng 

Hariyono, S.IP, SE, MM, in his doctoral dissertation explained that the Indonesian Air Force is still far from 
the ideal number of aircraft fleet needs with a total of around 600 units. The plan to develop the power 
towards the Ideal Essential Force (IEF) for the period 2024-2039 requires at least 348 aircraft to be added. [7] 
Assuming the posture of the fighter aircraft is in the 30-40% range, it means that the Indonesian Air Force still 
needs more than 100 units of first-tier modern fighter aircraft (comparable to and above the F-16 
specifications) to reach the Ideal Essential Force (IEF). In practice, the air defense posture of each country or 
defense agency of course does not or cannot be exactly the same as the USAF's, due to financial constraints 
and so on. However, the basis of reference for the US setting the definition of high-low was because it had 
been actively fighting in various combat theaters outside its own territory. Of course, the Indonesian Air Force 



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is not required to have a 100% same definition of fleet posture, but the USAF approach can be adopted, 
according to the advantages of each type of aircraft that can be acquisition. [6] 

If Indonesia's current free-active policy tends to be oriented towards the US and allied defense 
equipment, the posture of its fighter aircraft can modify the USAF high-low , to then equalize its position with 
Thailand and approach or slightly exceed Singapore. The uniformity of the fighter aircraft fleet is very 
important, especially since the TNI is currently strengthening its Network Centric Warfare system. The 
strength of the Indonesian Air Force cannot be dominated, for example, fighter aircraft made in the US vs. 
Russia. This is because it will cause system conflicts in the field, in addition to disrupting the smooth 
interoperability of the three dimensions. Not only is it an up-to-date fighter specification, but the presence of 
an ideal fighter combination at the outermost air base, and cruising range (including response time) around 
flash points is imperative. [6] 

Plan A is a combination of F-15EX aircraft (not yet US approval), Rafale (bright, but not final), old F-
16s, and some Sukhois. However, Indonesia must also have a plan B. For example, the Rafale as the "high" 
aircraft and the F-16 "low". Then, another decade or two, the F-16 was dethroned by the Rafale, and the 
"high" role was filled by the F-15EX or F-35 and others. [6] 

3.5 Rafale Fighter Aircraft 
Secretary General of the Ministry of Defense Marsdya Donny Ermawan Taufano in the webinar 

'Welcoming the Rafale Plane', said that Indonesia currently only relies on 33 F-16 aircraft that are more than 
30 years old. Meanwhile, 16 Sukhoi Su 27 and Su 30 fighters are almost 20 years old. Under these conditions, 
it is the obligation of the Ministry of Defense to plan fighter aircraft that will serve in the 2030s and 2040s. 
The government's decision to choose the Rafale fighter is based on technical and non-technical considerations. 
Choosing products made in France is safer from US sanctions against Russia or better known as CAATSA 
(Countering America's Adversaries Through Sanction Act). This is inseparable from the military competition 
between the US and Russia. In addition, the certainty of technology transfer of the Rafale fighter is more 
secure than the previous two types of fighter aircraft. [8] Rafale is known as a versatile aircraft because it can 
be used for various missions. For example, interdiction (ban), aerial reconnaissance (air reconnaissance), 
ground support (ground support), anti-ship strike (anti-ship attack) and nuclear deterrence mission (nuclear 
prevention mission). 

Dassault Rafale fighter specifications: 
1. Generation 4.5 aircraft. 
2. Maximum speed 1.8 Mach or 750 knots. 
3. Maximum altitude 50,000 feet. 
4. Has an 'Active Electronically Scanned Away' radar. 
5. Has a wingspan of 10.9 meters, length 15 .30 meters and 5.30 meters high. 

Armament Specifications Dassault Rafale: 
1. The MICA combat and self-defense missile. 
2. Meteor long range rocket. 
3. High Agile and Manouvrable Munition Extended Range equipped with GPS and infrared. 
4. Aircraft-brake-powered air missiles. 
5. SCALP long range missile. 
6. AM39Excocet anti-ship missile. 
7. Laser guided bombs with warheads ranging from 500-2,000 pounds. 
8. Internal gun with 2,500 rounds/minute Nexter30M791 mm 

In addition, for special missions, the Rafale can deliver MBDA nuclear missiles. With the addition of 
the main combat defense equipment in the form of the Rafale type fighter aircraft, it is certain that the combat 



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power of the Indonesian air force is the strongest in Southeast Asia for now. However, it must still be noted 
that the very large area of the air boundary with the four Sector Commands (Kosek) of the National Air 
Defense Command (Korhanudnas) which includes: Jakarta, Makassar, Medan and Biak is not sufficient. The 
current number and posture of the main combat defense equipment can only support a maximum of 30 units 
per Korhanudnas. Seeing the development of the global geopolitical situation which is full of uncertainty after 
the start of the Russian invasion of Ukraine, the Indonesian government needs to consider the fulfillment of 
the main combat defense equipment which is relatively adequate, sophisticated and modern. Thus, the 
sovereignty of Indonesia's airspace is not easily threatened and violated by foreign parties and is protected 
from enemy attacks if at any time there is a war between Indonesia and other countries. 

3.6 Transfer of Technology (ToT) 
Transfer of technology is one way to eliminate the limitations that hinder mastery of technology and 

towards increasing mastery of technology. The policy is a strategy in developing the capacity of human 
resources so that their productivity will increase even more. Increased human productivity will produce 
quality and competitive products. [9] 

In the contract for the purchase of 42 Rafale aircraft made by Dassault, a memorandum of 
understanding (MoU) of the Offset and ToT Program cooperation between Dassault and PT DI was also 
made. The Dassault Rafale aircraft procurement contract agreement should emphasize the transfer of 
technology (ToT) by sending human resources to study and do internships in the development industry. In 
addition to HR offsets, there is also a need for an offset scheme for the production of aircraft components in 
Indonesia by the national industry, namely PT Dirgantara Indonesia (PT DI). As a strategic national asset, PT 
DI requires continuity between human resources and facilities that are recognized by authority globally. PT 
DI's business portfolio consists of aircraft (airplane and helicopter), aircraft services (maintenance, overhaul, 
repair and alteration), aerostructure (parts and sub assemblies, assemblies tools and equipment), engineering 
services (communication technology, simulator technology, information technology). solution, design center) 
should focus on optimizing the national aviation system as a provider and supporter of commuter aircraft and 
TNI defense equipment. The development strategy must prioritize the importance of the independence of the 
nation and the mastery of technology by the nation's own children. For this reason, the government needs to 
include elements of science and technology for human resource development in the defense equipment 
spending agreement. 

It must be admitted that the human resources we currently have are still limited, both in terms of 
quality and quantity. HR is the main component in determining the success of R&D work. The limited quality 
and quantity of technology experts will only shackle the R&D function. R&D is a bridge that connects science 
and technology with human interests. Therefore, R&D agencies must be supported by qualified technology 
experts and in sufficient numbers. Every effort and effort must be made to increase the number of transfer of 
technology (including Transfer of Technology/ToT) of a general nature, or military, in accordance with the 
demands of the required disciplines. [10] 

The development of the defense technology industry does require a strong commitment from the 
government. This commitment is certainly related to the development of the defense industry, including the 
offset policy in it, as an effort towards Indonesia's defense independence. The government holds the main 
control in the development and implementation of offset policies because the support of funds, human 
resources, and political will is very much needed. However, if this policy is carried out optimally, we will see 
an independent Indonesia and talk a lot on the international stage. [11] In addition, the role of academics can 
help maximize the absorption and dissemination of knowledge that can help smooth the transfer of knowledge 
needed to support technology transfer. In addition, influential factors in technology transfer include 
production facilities, managerial capabilities of human resources, and government commitment in transfer 
projects. technology. In technology transfer, a large investment is needed to prepare the required production 
support facilities. Investment is needed to support the success of the technology transfer process. The success 



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of technology management in a country depends on the political commitment of the government to be able to 
increase mastery of certain technologies, such as making regulations that support the achievement of mastery 
of technology, and other supports such as financial support aimed at the success of technology management in 
the context of mastering certain technologies. [12] 

Defense Minister Prabowo's military diplomacy, which has been active for the past year, must be able 
to produce concrete results. It must no longer run aground, such as the planned acquisition of the Su-35 and 
the development of KFX/IFX, where almost a decade has been wasted, swallowing the bitter pill of defense 
equipment politics and the complexities of aerospace technology. The issue of the balance of power in 
ASEAN and the potential conflict between the South China Sea and China are definitely part of Indonesia's 
ammunition, in lobbying for defense equipment needs to other strong democratic countries, such as the US 
and its allies. The successive governments must also faithfully guard this vision and commitment. [6] 

4. Conclusions 

Based on the results of the analysis, conclusions can be drawn in this study as follows. The existence 
of Indonesia, which is in the Southeast Asian region as well as bordering the Pacific Ocean, makes the country 
characterized by the archipelago must have a military force that is capable of dealing with various external 
threats. Especially in the Southeast Asia region. So that the strength of military weapons for a country is very 
important to anticipate various threats that have the potential to come to disturb the security and peace of a 
country. 

Fighter aircraft Dassault Rafale that has been carried out by the Ministry of Defense so that its 
existence becomes effective in formulating defense postures, the USAF approach (United States Air Force) 
the definitive combination of "high-low" can be adopted according to the advantages of each type of aircraft 
that can be acquired. In fulfilling its defense equipment, Indonesia must also be realistic in responding to the 
balance of regional power, namely ASEAN. The realization of the MEF towards IEF must adapt, for example, 
to the air power of three strong neighboring countries, such as Vietnam, Thailand and Singapore. Thus, the 
sovereignty of Indonesia's airspace is not easily threatened and violated by foreign parties and is protected 
from enemy attacks if at any time there is a war between Indonesia and other countries. 

The Dassault Rafale aircraft procurement contract agreement should emphasize the transfer of 
technology (ToT) by sending human resources to study and do internships in the development industry. In 
addition to HR offsets, there is also a need for an offset scheme for the production of aircraft components in 
Indonesia by the national industry. This policy does require a strong commitment from the government. The 
government holds the main control in the development and implementation of offset policies because the 
support of funds, human resources, and political will is very much needed. if this policy is carried out 
optimally, we will see an independent Indonesia and speak a lot on the international stage. 
 
Declaration of competing interest 
The authors declare that they have no any known financial or non-financial competing interests in any 
material discussed in this paper. 

Funding information 
No funding was received from any financial organization to conduct this research. 

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[2] T. P. Sorongan, "Prabowo Borong 42 Jet Tempur Rafale", CNBC Indonesia, 2022. 
[3] F. C. Farisa, "Deretan Alutsista yang di beli Prabowo". Kompas, Indonesia, 2022. 
[4] A. Fitri, P. Dalam N. Kepakaran, S. Pertahanan, P.Penelitian B.Keahlian Sekjen, DPR RI, 2022. 



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[5] Mujiburrahman, "Menakar Kekuatan TNI AU Pasca Kontrak Pembelian Rafale", Politik dan Keamanan 
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[6] D. Toruan, "Menanti Kombinasi Maut Jet Tempur Indonesia", Armory Reborn 6, 2021. 
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