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Though described as the ‘world’s oldest profession’, prostitution is recognized by society neither as a valid form of employment nor an acceptable activity on the part of the customer. Prostitution has a long and varied history in Indonesia, starting before the colonial era, through decades of Dutch attempts to control the practice, to the institutionalization of many aspects of the industry during the Japanese Occupation and in the New Order period. In certain areas of Indonesia prostitution is regarded by parents as an acceptable form of work for their young daughters, while religious groups in general condemn the practice. The government and the police take a more ambivalent approach-arresting and prosecuting pimps and prostitutes who disturb public order, but protecting and managing official brothel complexes (lokalisasi) where thousands of young girls work as prostitutes. Some of the complexes provide ‘rehabilitation’ and training intended to shift sex workers out of the activity, but the impact of these programs appears to be minimal. Official figures put the number of prostitutes at about 71,000 nationwide, but to this number must be added the many free-lance sex workers and workers in various occupations who also sell sexual services, though they are not officially regarded as prostitutes.

This paper considers the historical record and the social setting of prostitution in Indonesia, in order to trace changing attitudes and approaches to prostitution over time, particularly with regard to issues of health and public order. The scale and mode of operation of the contemporary sex industry is examined, including case studies of particular cities and localities. Rough estimates are presented of financial turnover within the industry. The paper addresses a number of policy issues relating to the regulation of prostitution, the welfare of sex workers and the health risks arising from prostitution.