The allocation of seats in the House of Representatives (DPR) among provinces and the delineation of DPR electoral districts for the 2009 General Election did not fully adhere to the principle of equal suffrage. As a result, some provinces and electoral districts were underrepresented, while others were overrepresented. For example, based on its population, South Sulawesi should have been allocated 19 DPR seats but received 24 seats. Conversely, Riau, which should have received 13 seats based on its population, was allocated only 11 seats.
Such disparities are inconsistent with the principle of equal suffrage in democratic elections and should be corrected to align with Article 27(1) of the 1945 Constitution. The total number of DPR seats—560—can be maintained and established as a fixed number for future elections.
The allocation of the 560 DPR seats among provinces should be carried out proportionally according to each province’s population, with a minimum allocation of three seats per province. To uphold the principle of equality, seat allocation should employ a quota-based method through the following steps:
- Calculate each province’s seat quota and allocate a minimum of three seats to every province.
- Recalculate quotas after deducting the population equivalent of three national seat quotas from each province’s population. Provinces that do not meet the minimum quota threshold are excluded from this calculation, after which full quotas are allocated.
- Distribute any remaining seats based on the largest remainders.
In addition to equal suffrage, electoral district delimitation should also be guided by the principles of territorial integrity, territorial continuity, and community cohesion. Since the electoral districts used in the 2009 Election did not fully comply with these principles, electoral districts should be redrawn based on a revised seat allocation that better reflects equal representation.
Simulations of electoral district formation using district magnitudes of 3–6, 3–8, and 3–10 seats indicate that several regencies and municipalities may need to be divided or regrouped in order to satisfy these principles and improve representation.
Based on its recalculation of the 560 DPR seats and the redesign of electoral districts according to the principles of equal suffrage, territorial integrity, territorial continuity, and community cohesion, Perludem recommends the following:
First, electoral legislation should explicitly state the principle of equal suffrage and clearly define the seat-allocation method to ensure that the distribution of DPR seats among provinces remains constitutionally compliant. Likewise, the law should explicitly incorporate the principles of equal suffrage, territorial integrity, territorial continuity, and community cohesion in the formation of electoral districts, together with a clear delimitation methodology.
Second, seat allocation and electoral district delimitation should be based on population census data collected every ten years. Accordingly, evaluations of seat allocation and district boundaries should be conducted every two election cycles. Responsibility for these evaluations should be assigned to a special committee established by the DPR or by the DPR upon recommendation of the government.
Third, the primary principles guiding electoral district formation should be equal suffrage, territorial integrity, territorial continuity, and community cohesion—not merely administrative boundaries. Electoral districts should be designed to strengthen the relationship between constituents and their elected representatives or prospective representatives. Therefore, electoral district boundaries need not be limited to regency or municipal borders and may extend to the sub-district (kecamatan) level when necessary to uphold these principles.
For access to the electoral district simulation data and appendices, please submit a request via email to [email protected].
