DISERTASI PRINSIP KESATUAN HUKUM NASIONAL…. RUSDIANTO S. RINGKASAN
Penelitian ini berjudul “Prinsip Kesatuan Hukum Nasional Dalam Pembentukan Produk
Hukum Pemerintahan Daerah Otonomi Khusus Atau Istimewa”. Isu hukum dalam penelitian ini
ialah:
1. Ratio legis pemberian status otonomi khusus atau istimewa kepada pemerintah daerah di
dalam negara kesatuan.
2. Prinsip pembagian wewenang kepada pemerintahan daerah yang diberikan status otonomi
khusus atau istimewa.
3. Pengawasan pembentukan produk hukum pemerintahan daerah otonomi khusus atau
istimewa.
Sesuai dengan isu hukum yang dikaji, maka penelitian ini merupakan penelitian hukum
yang bersifat normatif dengan menggunakan pendekatan perundang-undangan (statute
approach), pendekatan konseptual (conceptual approach), pendekatan sejarah (historical
approach), pendekatan perbandingan (comparative approach) dan pendekatan kasus (case
approach).
Bahan hukum yang digunakan adalah bahan hukum primer, bahan hukum sekunder serta
terdapat juga bahan non-hukum. Langkah-langkah penelitian ini adalah menetapkan isu hukum,
menentukan aturan hukum yang relevan, menganalisis dan menginterpretasikannya untuk
diatarik kesimpulan dari hasil argumentasi yang dibangun guna memberikan jawaban atas isu
hukum.
Dari hasil penelitian terhadap isu hukum yang dikaji dan dianalisis dapat ditemukan
DISERTASI PRINSIP KESATUAN HUKUM NASIONAL…. RUSDIANTO S. - Pemberian otonomi khusus (sifat khusus) atau keistimewaan (sifat istimewa) terhadap
pemerintahan daerah di Indonesia disebabkan oleh alasan-alasan sebagai berikut:
1. Alasan sejarah suatu daerah yang berbeda dengan kesejarahan daerah lainnya. Alasan
sejarah merupakan alasan yang paling dominan dalam pemberian status otonomi khusus
atau keistimewaan.
2. Alasan perbedaan sistem kehidupan sosial dengan sebagain besar wilayah lainnya di
negara itu sehingga dalam rangka menjaga persatuan dan keutuhan bangsa/negara, maka
solusi politik yang terbaik ialah melalui pemberian otonomi khusus atau keistimewaan.
Termasuk dalam pengertian perbedaan sistem kehidupan sosial ialah perbedaan ras
(etnik), bahasa, maupun agama dari penduduk asli suatu daerah dengan daerah lainnya.
3. Alasan perjanjian internasional. Dalam konteks perjanjian internasional sebagai alasan
dalam pemberian otonomi khusus atau keistimewaan terhadap suatu daerah, dapat
diklasifikan menjadi 2, yaitu: pertama, perjanjian internasional dibentuk dalam kondisi
damai yang disebabkan adanya alasan kesejarahan dan perbedaan sistem kehidupan sosial
pada suatu daerah yang dilakukan secara damai. Kedua, perjanjian internasional dibentuk
karena adanya konflik atau adanya tuntutan merdeka dari suatu daerah.
- Berdasarkan alasan-alasan pemberian (pengakuan) status otonomi khusus atau keistimewaan
oleh sebuah negara kesatuan terhadap satuan pemerintahan daerah tertentu di negaranya
sebagaimana dijelaskan di atas, maka ratio legis pemberian (pengakuan) status otonomoi
khusus atau keistimewaan terhadap pemerintahan daerah di negara kesatuan, yakni
DISERTASI PRINSIP KESATUAN HUKUM NASIONAL…. RUSDIANTO S. 1. Prinsip unity in diversity,yaitu prinsip persatuan dalam keberagaman. Dalam prinsip ini,
persatuan dan keutuhan bangsa/negara merupakan hal yang paling utama. Persatuan dan
keutuhan bangsa tidak dapat dikorbankan melalui kebijakan otonomi simetris tanpa
mempertimbangkan adanya keberagaman sejarah atau perbedaan sistem kehidupan sosial
maupun potensi suatu daerah.
2. Prinsip keadilan (the principle of justice), yaitu pemberian (pengakuan) otonomi khusus
atau istimewa kepada suatu daerah dikarenakan adanya kesenjangan kehidupan atau
kesenjangan pembangunan dibandingkan dengan daerah lainnya.
3. Prinsip desentralisasi asimetris (asymmetric decentralization/devolution), yaitu
pemberian (pengakuan) otonomi khusus atau istimewa kepada suatu daerah yang
didasarkan pada keberagaman dan potensi yang dimiliki oleh suatu daerah.
4. Prinsip pengakuan konstitusional (constitutional recognition), yaitu pemberian
(pengakuan) status otonomi khusus atau keistimewaan yang didasarkan karena adanya
pengakuan oleh konstitusi. Artinya, pemberian status otonomi khusus atau keistimewaan
terhadap suatu daerah sangat dimungkinkan jika konstitusi suatu negara menungkinkan
untuk itu.
- Dalam praktik penyelenggaraan otonomi khusus atau otonomi teritorial (territorial
autonomy) di dunia, setidaknya terdapat 5 (lima) prinsip pembagian wewenang kepada
satuan pemerintahan daerah yang bersifat khusus, yaitu: 1) prinsip subsidiaritas; 2) prinsip
kapasitas administratif; 3) prinsip proporsionalitas; 4) prinsip efisiensi ekonomi; dan 5)
DISERTASI PRINSIP KESATUAN HUKUM NASIONAL…. RUSDIANTO S. - Terdapat beberapa perbedaan prinsip pembagian wewenang yang diterapkan pada
masing-masing satuan pemerintahan daerah yang bersifat khusus atau istimewa di Indonesia. Akan
tetapi, terdapat satu prinsip pembagian wewenang yang sama dalam pola pembagian
wewenang kepada DIY, Aceh, dan Papua, yaitu didasarkan pada prinsip subsidiaritas
dengan jenis/sifat wewenang yang dibagikan ialah wewenang khusus (exclusive
competence).
- Dalam praktik penyelenggaraan otonomi khusus atau otonomi teritorial di Tiongkok dan
Finlandia, mekanisme pengawasan produk hukum pemerintahan daerah yang bersifat khusus
diatur secara eksplisit dalam hukum dasar atau undang-undang otonomi khususnya, baik
prosedur pengawasan maupun tolok ukur pengawasannya.
- Dalam undang-undang yang mengatur kekhususan atau keistimewaan di Indonesia, terdapat
ketidakseragaman mekanisme pengawasan terhadap perda eksklusif. Adanya
ketidakseragaman terhadap mekanisme pengawasan perda eksklusif akan menyebabkan
terjadinya ketimpangan dan ketidakadilan terhadap daerah-daerah yang telah diberikan
(diakui) status otonomi khusus atau istimewa. Secara umum, mekanisme pengawasan
terhadap perda eksklusif dilakukan melalui pengawasan oleh Pemerintah Pusat dan
pembatalan oleh Mahkamah Agung. Sejauh ini, mekanisme pengawasan perda eksklusif
disamakan dengan mekanisme pengawasan terhadap perda biasa. Bahkan, tolok ukur
pembatalan perda eksklusif pun disamakan dengan tolok ukur pembatalan perda biasa.
Dari hasil analisis sebagaimana diuraikan di atas, sebagai masukan dikemukakan suatu
saran tentang perlunya mekanisme pengawasan dan tolok ukur pembatalan qanun, perdais,
DISERTASI PRINSIP KESATUAN HUKUM NASIONAL…. RUSDIANTO S. perda eksklusif tersebut seharusnya tidak disamakan dengan mekanisme pengawasan perda biasa
dan rumusan “bertentangan dengan peraturan perundang-undangan yang lebih tinggi” tidak
boleh digunakan sebagai tolok ukur pembatalan perda eksklusif. Perda eksklusif seharusnya
hanya diuji dengan undang-undang eksklusif (exklusiv formell gesetz) dan peraturan pelaksanaan
eksklusif (exklusiv verordnung satzung) sebagai tolok ukur pembatalan. Undang-undang yang
mengatur kekhususan atau keistimewaan suatu daerah harus mengatur secara eksplisit mengenai
mekanisme pengawasan dan tolok ukur pembatalan perda eksklusif.
Untuk mencapai maksud di atas, diperlukan penyempurnaan terhadap: (i) ketentuan Pasal
18 B ayat (1) UUD NRI Tahun 1945 yakni dengan menggunakan rumusan yang bersifat
deklaratif dan sekaligus prospektif; dan (ii) ketentuan mengenai pembentukan dan pengawasan
perda khusus dalam undang-undang yang mengatur kekhususan dan keistimewaan seyogyanya
diatur secara rigid dan eksplisit dalam rangka menjaga eksklusifitas perda khusus tersebut,
termasuk pengaturan mengenai kewenangan Mahkamah Agung dalam melakukan uji materiil
DISERTASI PRINSIP KESATUAN HUKUM NASIONAL…. RUSDIANTO S. SUMMARY
This research entitled “Principle of Unity of the National Law in Forming of Laws of
Territorial Autonomous Regional Government”. The legal issues in this research are:
1. Ratio legis of giving of territorial autonomy status to the local government in a unitary state.
2. The principle of the division of competence to the local government granted territorial
autonomy status.
3. Monitoring the establishment of laws of territorial autonomy of local government.
Based on explanation above, this study was normative research by using statute approach,
conceptual approach, historical approach, comparative approach and case approach.
Legal source were the primary legal materials, secondary legal materials and there are
also non-legal materials. The steps of this study were to establish the legal issues, determine the
relevant legal rules, analyze and interpret it in order to provide answers to legal issues.
Based on the result of this research, it found that:
- Granting territorial autonomy to the local government in Indonesia caused by reasons as
follows:
1. The history of a region that was different from other historical areas. The history reason
was the most dominant in the granting of territorial autonomy status.
2. The differences system of social life among the other regions in the country, to maintain
the unity and integrity of the nation / state, then the best political solution was through the
provision of territorial autonomy. The terms of differences system of social life consisted
DISERTASI PRINSIP KESATUAN HUKUM NASIONAL…. RUSDIANTO S. 3. The international agreement, it classified into two in the granting territorial autonomy.
First, international agreements formed under conditions of peace due to historical reasons
and differences system of social life in a relatively peaceful area. Second, an international
agreement established because of a conflict or their demand for independence of a region.
- Based on granting territorial autonomy as explanation above, the legislative ratio of
territorial autonomy status to the regional government in a unitary state, which were based
on:
1. The principle of unity in diversity, which was the principle of unity in diversity. In this
principle, unity and integrity of the nation / state was the most important thing. Unity and
integrity of the nation could not be sacrificed through symmetrical autonomy policies
without considering their historical diversity or differences in the social life of the system
and the potential of a region.
2. The principle of justice, namely providing territorial autonomy to the region due to the
gaps of life or development gap compared to other regions.
3. The principle of asymmetric decentralization / devolution, namely providing territorial
autonomy to a region which was based on the diversity and potential of the region.
4. The principle of constitutional recognition, namely providing territorial autonomy status
based on the recognition by the constitution. It meant that the granting of territorial
autonomy status to an area was very possible if the constitution of a state allowed it.
- In the implementation of territorial autonomy in the world, there were at least five (5) the
principle of division of competence to the special administrative regional government unit,
DISERTASI PRINSIP KESATUAN HUKUM NASIONAL…. RUSDIANTO S. principle of proportionality; 4) the principles of economic efficiency; and 5) the principle of
residual function on local government.
- There were several different implementations in the principle of division of competence to
each unit of special administrative regional government in Indonesia. However, there was
one principle of division of competence in the same pattern of distribution of competence to
Yogyakarta, Aceh, and Papua, which was based on the principle of subsidiarily with the type
of shared competence was exclusive competence.
- In the implementation of territorial autonomy in China and Finland, the monitoring
mechanism of local government legal products that were special autonomy addressed
explicitly in the basic law or statute of territorial autonomy.
- In laws that regulated the territory in Indonesia, there was a variation on the monitoring
mechanism of the exclusive local regulation. Their uniformity to the exclusive local
regulation oversight mechanisms would lead to inequality and injustice towards areas that
had been given the territorial autonomy. In general, the monitoring mechanism of the
regulation was done exclusively through supervision by the central government (executive
and executive review supervision) and cancellation by the Supreme Court (judicial review).
So far, the monitoring mechanism of exclusively local regulation equated with regular
monitoring mechanism of the regulation. In fact, the benchmark cancellation exclusive
regulation was equated with the usual benchmarks cancellation regulations.
Based on explanation above, the researcher suggests that there is necessity to oversight
mechanism and benchmarks cancellation perdais, qanun, perdasus, and perdasi which are
DISERTASI PRINSIP KESATUAN HUKUM NASIONAL…. RUSDIANTO S. be equated with ordinary local regulation and oversight mechanisms formula "contrary to the
higher laws and regulations" should not be used as an exclusive measure of cancellation
exclusive local regulations. Exclusive local regulations should only be tested with exclusive
legislation (Exklusiv formel gesetz) and the implementation of regulations exclusively (Exklusiv
verordnung satzung) as a measure of cancellation. Laws that regulate the specificity or privileges
of an area should be set explicitly on the monitoring mechanism and benchmarks cancellation
exclusive local regulation.
To achieve the purpose above, it needs improvements to: (i) the provisions of Article 18
and paragraph (1) the Constitution of the Republic of Indonesia Year of 1945 using a formula
which is declarative and prospective simultaneously; and (ii) provisions regarding the
establishment and oversight of exclusive local regulations on the laws that govern territorial
autonomy should be regulated rigid and explicit in order to maintain the exclusivity regulations
exclusivity, including arrangements regarding the authority of the Supreme Court to conduct a
DISERTASI PRINSIP KESATUAN HUKUM NASIONAL…. RUSDIANTO S. ABSTRACT
This reseacrh focused as follows: (1)Ratio legis of giving of territorial autonomy status to the local government in a unitary state; (2) The principle of the division of competence to the local government granted territorial autonomy status; and (3) Monitoring the establishment of laws of territorial autonomy of local government.
This research found as follows: (1) the provision of territorial autonomy status to the local government in a unitary state can be based on historical reasons, the reasons for differences system of social life, and / or reasons of international agreements. Legislative ratio of giving territorial autonomy status, which was based on the principle of unity in diversity, the principle of justice, the principle of asymmetric decentralization, and the principle of constitutional recognition. (2) In the implementation of territorial autonomy in Indonesia, the principle of division of competence that was applied was the principle of subsidiarity and the principle of residual function on local governemnt. The type of competence given to the territorial autonomy was exclusive and concurrent competence extanded. (3) The monitoring mechanism and benchmarks cancellation exclusive local regulation were equated with the monitoring mechanism and benchmarks cancellation usual regulations. While in practice the implementation of territorial autonomy in the world, monitoring and benchmarking the cancellation of exclusive local regulations specifically regulated by law and distinguished by the mechanism of supervision and the benchmarks of usual local regulation.
The reserach recommends to undertake improvements to: (i) the provisions of Article 18B paragraph (1) the Constitution of the Republic of Indonesia Year of 1945, for instance using a formula that is retroactive and prospective simultaneously; and (ii) provisions regarding the establishment and oversight of exclusive local regulations on the laws that govern territorial autonomy should be regulated rigid and explicit in order to maintain the exclusivity regulations exclusivity, including arrangements regarding the authority of the Supreme Court to conduct a judicial review the exclusive local regulation.
