PRINSIP KESATUAN HUKUM NASIONAL DALAM PEMBENTUKAN PRODUK HUKUM PEMERINTAHAN DAERAH OTONOMI KHUSUS ATAU ISTIMEWA Repository - UNAIR REPOSITORY

  

RINGKASAN

  Penel itian ini berjudul “Prinsip Kesatuan Hukum Nasional Dalam Pembentukan Produk Hukum Pemerintahan Daerah Otonomi Khusus Atau Istimewa”. Isu hukum dalam penelitian ini ialah:

  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

  ), pendekatan perbandingan (comparative approach) dan pendekatan kasus (case

  approach 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 bahwa:

• - pemerintahan daerah di Indonesia disebabkan oleh alasan-alasan sebagai berikut: 1.

  

Pemberian otonomi khusus (sifat khusus) atau keistimewaan (sifat istimewa) terhadap

  Alasan sejarah suatu daerah yang berbeda dengan kesejarahan daerah lainnya. Alasan sejarah merupakan alasan yang paling dominan dalam pemberian status otonomi khusus

  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.

• - 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 didasarkan pada:

  

Berdasarkan alasan-alasan pemberian (pengakuan) status otonomi khusus atau keistimewaan

  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

  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.

• - autonomy ) di dunia, setidaknya terdapat 5 (lima) prinsip pembagian wewenang kepada

  

Dalam praktik penyelenggaraan otonomi khusus atau otonomi teritorial (territorial

  satuan pemerintahan daerah yang bersifat khusus, yaitu: 1) prinsip subsidiaritas; 2) prinsip kapasitas administratif; 3) prinsip proporsionalitas; 4) prinsip efisiensi ekonomi; dan 5) prinsip urusan pemerintahan sisa bagi pemerintahan daerah.

• - 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 competence ).

  

Terdapat beberapa perbedaan prinsip pembagian wewenang yang diterapkan pada masing-

• - 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 praktik penyelenggaraan otonomi khusus atau otonomi teritorial di Tiongkok dan

• - 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.

  

Dalam undang-undang yang mengatur kekhususan atau keistimewaan di Indonesia, terdapat

  Dari hasil analisis sebagaimana diuraikan di atas, sebagai masukan dikemukakan suatu saran tentang perlunya mekanisme pengawasan dan tolok ukur pembatalan qanun, perdais, perdasus, dan perdasi yang bersifat eksklusif. Oleh karena itu, mekanisme pengawasan terhadap 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 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 maupun uji formil terhadap perda khusus.

  

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. 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:

• - follows: 1.

  

Granting territorial autonomy to the local government in Indonesia caused by reasons as

  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 of race (ethnicity), language, and religion.

  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, namely: 1) the principle of subsidiarity; 2) the principle of administrative capacity; 3) the principle of proportionality; 4) the principles of economic efficiency; and 5) the principle of residual function on local government.

• - each unit of special administrative regional government in Indonesia. However, there was Yogyakarta, Aceh, and Papua, which was based on the principle of subsidiarily with the type of shared competence was exclusive competence.

  

There were several different implementations in the principle of division of competence to

• - mechanism of local government legal products that were special autonomy addressed explicitly in the basic law or statute of territorial autonomy.

  

In the implementation of territorial autonomy in China and Finland, 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.

  

In laws that regulated the territory in Indonesia, there was a variation on the monitoring

  Based on explanation above, the researcher suggests that there is necessity to oversight mechanism and benchmarks cancellation perdais, qanun, perdasus, and perdasi which are exclusive. Therefore, the mechanism of supervision of the exclusive local regulation should not 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 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 judicial review the exclusive local regulation.

  

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 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.

  Key words: Territorial Autonomy, Principle of Division of Competence, and Exclusive Regional Regulation.