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ADLN - Perpustakaan Universitas Airlangga

  

ADLN - Perpustakaan Universitas Airlangga

F E K IL IK A N DAN FEIJGUASAAH TAKAH P E R TA N IA N SE C A R A A B SE N TE E DAN FERMASALAHANNYA SKRIPSI OLEH CHRISTIAN SUGIANTO

  No, 038111299

UNIVERSITAS AIRLANGGA. SURABAYA

FAKULTAS HUKUM

  1987 P E J J IL IK A N DAN PE K G U A SAA N TAKAH P E R T A N IA N S E C A R A A B S E N T E E DA1J PERMASALAHANM YA

  S K R I P S I DIAJUKA3J Ul'ITUK MELEMGKAPI TUGAS DAN MEMEinJHI S Y A R A T - SYARAT K E N C A P A I GELAR SARJAWA HUKUM CLEH C H R I S T IA N SUGIAH TO N o . 0 3 8 1 1 1 2 9 9 U W IV E R SI-TA S A IR LA N G G A SURABAYA FA K U LTA S HUKUM 1 9 8 7

  

ADLN - Perpustakaan Universitas Airlangga

  

ADLN - Perpustakaan Universitas Airlangga

k a t a p e e g a :: t a r

  D e n g a n s e l e s a i n y a p e n u l i s a n s k r i p s i i n i s e y a p a n -

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  j a t k a n r s a s y u k u r k e h a d i r a t T u h a n Y a n g K a h a E s a , b a h w a a k h i r n y a s t u d i s a y a p a d a P r o g r a m S t u d i S t r a t a S a t u . (S * i) F a k u l t a s Hukum U n i v e r s i t a s A i r l a n g g a t e l a h d a p a t oaya s e - l e s a i k a n . B e r h u b u n g d e n g a n b e r a k h i r n y a s t u d i s a y a i n i p a t u t - l a h k i r a n y a u c a p a n t e r i m a k a s i h y a n g t a l u s s a y a s a m p a i k a n k e p a d a D e k a n F a k u l t a s Hukum U n i v e r s i t a s A i r l a n g g a b e s e r t a se m u a s t a f , p a r a G u r u B e s a r , p a r a d o s e n d a n a s i s t e n ; B e g i t u p u l a u c a p a n y a n g sa m a s a y a s a m p a i k a n k e p a d a B a p a k W i s n u S u s a n t o , S . H . s e l a k u D o s e n P e m b i m b i n g d a n P e - n g u j i s k r i p s i . B e r k a t k e t e k u n a n , k e s u n g g u h a n d a n k e s a b a r - a n b e l i a u , a k h i r n y a p e n y u s u n a n s k r i p s i b e r h a s i l s a y a s e l e - s a i k a n ; P e r a s a a n y a n g sa m a j u g a s a y a s a m p a i k a n k e p a d a B a p a k S o e d a l h a r , S . H . d a n B a p a k E m a n , S . H . s e l a k u d o s e n - d o s e n p e n g u j i . K o r e k s i - k o r e k s i b e l i a u s u n g g u h s a n g a t b e r a r t i . S e b a g a i p e n d a m p i n g s e t i a d a l a m m e n i t i k e h i d u p a n i n i a d a l a h i s t e r i k u t e r c i n t a . S em u a p e n g o r b a n a n m u , s e g a l a p e - n g e r t i a n m u , m e m p u n y a i a r t i b e s a r b a g i k e b e r h a s i l a n s t u d i s a y a d a n m a s a d e p a n p u t e r a - p u t e r i k i t a . A k h i r n y a , k e p a d a T u h a n Y a n g M a h a E s a , a a y a p a n j a t - k a n d o a , s e m o g a s e n a n t i a s a m e n g a n u g r a h k a n s e g a l a r a k h m a t k a s i h - s a y a n g d a n a m p u n a n u n t u k a y a h - b u n d a t e r c i n t a . i i i

  B e g i m u A lm a L S a t e r F a k u l t a s H ok u m U n i v e r s i t a s A i r - l o n g g a , s e in o g a d i k a u t e t a p j s y a d a n a b a d l .

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ADLN - Perpustakaan Universitas Airlangga

  

ADLN - Perpustakaan Universitas Airlangga

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  r u m u s o i i o y a ........................................................... ......... 1 2 . P e n j e l a s a n J u d u l .......................................... ......... 5 3 . A l a s a n P e m i l i h a n J u d u l ...................................... 6 4 . T u j u a n P e n u l i s a n .......................................... ......... 7 5 * I J e t o d o l o g i ........................................................... ......... 7 6 . P e r t a n g g u n g j a w a b a n S i s t e m a t i k a . . .

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ADLN - Perpustakaan Universitas Airlangga

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  I V : P 2 J .:iL IK A K DAI.' PEHGUASAAN TAiJAH P E R T A - HJAN SEC AHA A B S E N T E E , P E K J t f AL A K A ffilY A , DA1I C A R A -C A R A I-.IENGATASIIIYA 1 • P e m i l i k a n / P e n g u a s a a n T a n a h P e r t a n i u n S e c a r a A b s e n t e e ............................................... 2 5

  2* L a n ^ k u h - l a n g k a h . Y a n g D it c r r .p u h P e m e r i n -

  t a h Iv le n a ju C a t u r T e r t i b P e r t a n a h a n . 3 5 3 . H a m b a t a n -h a m b a t a n D a n C a r a - c a r a L e n g -

  40 a t a a i n y a ................................................................

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  BAB I PEIIDAHULUAN 1# P e m a a a l a h a n : L a t e r b e l a k a n g d o n r u m u s a n n y a U n d a n g - u n d a n g U o m o r 5 T a h u n 1 9 6 0 , L e m b a r a n K e g a r a T a h u n 1 9 6 0 N o m o r 1 0 4 * t e n t a n g P e r a t u r a n D a s a r P o k o k - p o k o k A g r a r i a , a t a u s e r i n g d i s e b u t d e n g a n U n d a n g - u n d a n g P o k o k A g r a r i a d a n l e b i f r d i k e n a l d e n g a n s i n g k a t a n UUPA a d a l a h s e b u a h u n d a n g - u n d a n g p r o d u k n a s i o n a l y a n g t e l a h d i u n d a n g - k a n p a d a t a n g g a l 2 4 S e p t e m b e r 1 9 6 0 . B i s a h k a n n y a UUPA s e ~ k a l i g u s a e b a g a i p e n g g a n t i " A g r a r i s c h e W e t ” d a n a t a u " A g r a - r i s c h e B e s l u i t " ( S t b . 1 8 7 0 - 1 1 8 ) y a n g m e r u p a k a n h ukum a g r a r i a p r o d u k k o l o n i a l

  . 1

  U n d a n g - u n d a n g P o k o k A g r a r i a (U U PA ) m e r u p a k a n k e r a n g - k a d a s a r p e r u n d a n g - u n d a n g a n a g r a r i a I n d o n e s i a y a n g h a n y a n e m u a t g a r i s - g a r i s b e s a r a t a u p o k o k - p o k o k m a s a l a h s a j a . O l e h k a r e n a i t u , m a s i h p e r l u d i j a b a r k a n l e b i h l a n j u t d a - l a m b e r b a g a i p e r a t u r a n p e r u n d a n g - u n d a n g a n . M i s a l n y a , UU N o . 5 6 / P r p / 1 9 6 0 , LN 1 9 6 0 - 1 7 4 , t e n t a n g P e n e t a p a n B a t o s ilu k s im u m L u a s T a n a h P e r t a n i a n , PP K o . 2 2 4 / 1 9 6 1 , L N 1 9 6 1 - 2 8 0 , y a n g m e n g a t u r p e l a k s a n a a n t a n a h d a n p e m b e r i a n g a n t i k e r u g i a n , PP N o . 4 / 1 9 7 7 , L N 1 9 7 7 - 5 , y a n g m e n g a t u r p e m i - l i k a n t a n a h p e r t a n i a n s e c a r a g u n t a i ( a b s e n t e e ) b a g i p a r a B o e d i H a r s o n o , Hukum A g r a r i a I n d o n e s i a - K i m p u n a n P e r a t u r a n - p e r a t u r a n H u k u n T " T a n a h E .i a - n b a t a n , J'ak a r ¥ a t 1 $ 8 6 , s n

  

ADLN - Perpustakaan Universitas Airlangga

  2

  p e n s i u n a n p e g a v a i n e g e r i , d a n p e r a t u r a n p e r u n d a n g —u n d a n g a n l a i n n n y a y a n g m e n y a n g k u t n r i s a l a h p e r t a n a h a n a d a l a h s e b a g a i p e t u n j u k p e l a k s a n a a n ( j u k l a k ) U U F A . B e r b a g a i m acam p e r a t u r a n p e r u n d a n g -u n d a n g a n y a n g m e­ n y a n g k u t p e r t a n a h a n p a d a p r i n s i p n y a n e n g a t u r s t r u k t u r p e m i - l i k a n / p e n g u a s a a n d a n d i s t r i b u s i a t a s t a n a h .

  U n d a n g - u n d a n g F o k o k A g r a r i a (U U F A ) a t a u UU N o . SI I 9 6 0 , LN I 9 6 0 - 1 0 1* t e n t a n g P e r a t u r a n D a s a r F o k o k - p o k o k A g r a r i a a d a l a h u n d a n g - u n d a n g p r o d u k n a s i o n a l m e m p u n y a i t u - j u a n p o k o k , y a i t u : a . m e w u ju d k a n p e n y u s u n a n hukum a g r a r i a n a s i o n a l y a n g m e r u p a k a n s a r a n a u n t u k t e r c a p a i n y a m a s y a r a k a t a d i l d a n m akm ur b e r d a s a r k a n P a n c a s i l a d a n UUD 1 9 ^ 5 ; b . m e n g a d a k a n k e s a t u a n hukum ( u n i f j k a s i ) d a n k e s e d e r h a - n a a n d a la m hukuiri p e r t a n a h a n ; p c . m e m b e r i k a n k e p a s t i a n hukum h a k a t a s t a n a h . D e n g a n b e r l a n d a s k a n p a d a p a s a l 3 3 a y a t ( 3 ) UUD 1 9 ^ 5 > m e n y a t a k a n : "B u m i d a n a i r , d a n k e k a y a a n a l a m y a n g t e r k a n - d u n g d i d a la m n y a d i k u a c a i o l e h N e g a r a d a n d i p e r g u n a k a n u n ­ t u k s e b e s a r - b e s a r k e m a k m u r a n r a k y a t ” , m aka d a la m r a n g k a m e n - c a p a i t u j u a n t e r s e b u t , P e m e r i n t a h R I ( d a l a m h a l i n i , D i r e k - t o r a t J e n d e r a l A g r a r i a - D e p a r t e m e n D a la m N e g e r i ) b e r u p a y a a n t a r a l a i n t e l a h m e l a r a n g p e m i l i k a n t a n a h p e r t a n i a n s e c a r a a b s e n t e e ( S u n d a ; g u n t a i ) , y a i t u p e m i l i k a n t a n a h p e r t a n i a n

  2

  

ADLN - Perpustakaan Universitas Airlangga

  3 y a n g l e t a k n y a d i l u a r d a e r a h k e c a r .a t a n t e m p a t t i n g g a l p e - p i l i k n y a ,

  3 T i n d a k a n p e l a n g g a r a n t e r s e b u t b e r d a a r k a n k e t e n t u -

  o n p a s a l 1 0 a y a t ( 1 ) UUPA, y a n g m e n y a t a k a n bahvva p e m i l i k t a n a h p e r t a n i a n d i w a j i b k a n m e n g e r j a k a n a t a u m e n g u s a h a k a n s e n d i r i t a n a h n y a s e c a r a a k t i f s e h i n g g a d a p a t d i c e g a h c a r a - c a r a y a n g c e n d e r u n g p a d a t i n d a k p e m e r a s a n . A s a s " t a n a h p e r t a n i a n w a j i b d i k e r j a k a n s e c a r a a k t i f

  8

  o l e h p e r a i l i k n y s e n d i r i " m e r u p a k o n s u a t u a s a s y e n g p a d a d e w a a a i n i m e n j a d i l a n d a o a n u p a y a p e r u b a h a n - p e r u b a h a n d a - l a m s t r u k t u r p e r t a n a h a n y a n g s e d a n g d i l a k s a n a k a n o l e h n e - g a r a - n e g a r a d i s e l u r u h d u n i a , u t a m a n y a d i n e g a r a - n e g a r a y a n g e e d a n g b e r k c m b a n g , y a i t u d i . A s i a d a n A f r i k a . ^ P e r u b a h a n - p e r u b a h a n s t r u k t u r p e r t a n a h a n t e r s e b u t

  3

  l e b i h d i k e n a l d e n g a n i t i l a h " L a n d r e f o r m " a t a u " A g r a r i a n - r e f o r m " y a n g p e l a k s a n a a n n y a d i I n d o n e s i a k i n i s e d a n g d i - g i a t k a n k e m b a l i d a n d i m a s u k k a n d a l a m R e n c a n a P e m b a n g u n a n L im a T a h u n ( R e p e l i t a ) . S a l a h s a t u o b j e k l a n d r e f o r m a d a l a h p e m i l i k a n d a n p e n g u a s a a n t a n a h p e r t a n i a n s e c a r a a b s e n t e e ( g u n t a i ) y a n g p a d a p r a k t e k n y a c e n d e r u n g d a n m e n g a r a h p a d a s i s t e m p e m e r a s a n ( e c p l o i t a t i o n de l f Homme p a r l 'H o m m e ) d a n J e l a s b e r t e n t a n g a n d e n g a n k a i d a h - k a i d a h l u h u r P a n c a s i l a

  3

  e b a g a i i d e o l o g i IT e g a r a R e p u b l i k I n d o n e s i a d a n f a l s a f a h h i d u p b a n g s a I n d o n e s i a . ^

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ADLN - Perpustakaan Universitas Airlangga

  4 S e j a k p e l a k s a n a a n R e p e l i t a I I I ( 1 9 7 9 / 1 9 8 0 - 1 9 8 4 / 8 5 ) P e m e r i n t a h R e p u b l i k I n d o n e s i a t e l a h m e n c a n a n g k a n p r o g r a m

  3

  p e m b a n g u n a n b i d a n g a g r a r i a y a n g d i k e n a l d e n g a n " c a t u r t e > t i b p e r t a n a h a n " . P r o g r a m k e r j a t e r s e b u t m e m p u n y a i r u a n g X i n g k u p a t a u m e m p u n y a i j a n g k a u a n y a n g b e r s i f a t n a s i o n a l d a n r e g i o n a l . rtC a t u r t e r t i b p e r t a n a h a n " y a n g m e r u p a k a n s a - s a r a n p e m b a n g u n a n n a s i o n a l b i d a n g p e r t a n a h a n t e r s e b u t m e - l i p u t i i

  1

  # t e r t i b h uk um p e r t a n a h a n ;

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  . t e r t i b a d m i n i s t r a s i p e r t a n a h a n ; 3 * t e r t i b p e n g g u n a a n t a n a h ;

  4

  . t e r t i b p e m e l i h a r a a n t a n a h d a n l i n g k u n g a n h i d u p . ^ D e n g a n l a t a r b e l a k a n g p e r m a s a l a h a n s e p e r t i t e r s e b u t d i e t a s , m a k a d a p a t d i s u s u n r u m u s a n s e b a g a i b e r i k u t :

  1

  # a p a k a h p e n g e r t i a n , m a k s u d d a n t u j u a n p e m i l i k a n d a n p e n g u a s a a n t a n a h p e r t a n i a n s e c a r a a b s e n t e e ( g u n t a i ) d a n d a s a r h u kum s e b a g a i l a n d a s a n ? ; 2 . a p a k a h y a n g d i m a k s u d " t a n a h p e r t a n i a n u n t u k p e t a n i p e n g g a r a p " d a n " h a k a t a s t a n a h m e m p u n y a i f u n g s i s o - s i a l " ? ; 3 . p e r m a s a l a h a n p e m i l i k a n d a n p e n g u a s a a n t a n a h p e r t a ­

  36081*8

  n i a n a b s e n t e e d a n c a r a - c a r a m e n g a t a s i n y a ; H a m b a t a n - h a m b a t a n d a n l a n g k a h - l a n g k a h y a n g d i t e m p u h o l e h P e m e r i n t a h m e n u j u " C a t u r T e r t i b P e r t a n a h a n ” .

  a t u r a n P e r u n d a n g a n A g r a r i a , K O R P R I T k . I J A T l S , S u r a b a y a , T 5 7 5 , h . S

  

ADLN - Perpustakaan Universitas Airlangga

  5 2 . P e n . j e l a s o n J u d u l J u d u l s k r i p s i : P E K I L I K A N DAK PENGUASAAK TATAH P E R T A lilA N SECARA ABSENTEE DAK P B H H A S A L A H A m A " P e m i l i k a n d a n P e n g u a s a a n T a n a h " , m a k s u d n y a s e b i - d a n g t a n a h p e r t a n i a n y a n g d i h a k i b e r d a s a r k a n h a k m i l i k d a n a t a u h a k - h a k l a i n n y a . " T a n a h * * s e b a g a i m a n a p e n g e r t i a n d a l a m p a s a l 1 a y a t ( 4 ) j o . p a s a l 4 a y a t ( 1 ) U U P A , y a n g b e r a r t i b a g i a n p e r m u - k a o n b u m i y a n g d a p a t d i h a k i o l e h s e s e o r a n g . " T a n a h P e r t a n i a n 1* a d a l a h t a n a h a t a u s u a t u l a h a n y a n g d a p a t d i t a n a m i t a n a m a n p a n g a n d a n a t a u t a n a m a n k e r a s ( k o p i , t e b u , k a r e t , d l l . ) * T a n a h p e r t a n i a n i n i m e r u p a k a n l a h a n b a s a h a t a u k e r i n g y a n g b e r u j u d a r e a l p e r s a w a h e n ' a t a u p e r k e b u n a n . " P e r m a s a l a h a n n y a , a r t i n y a s e g a l a s e s u a t u y a n g t e l a h d a n a t a u r a u n g k i n a k a n t e r j a d i d a n c a r a - c a r a m e n g a t a s i n y a . J a d i , " P e m i l i k a n d a n P e n g u a s a a n T a n a h P e r t a n i a n S e - c s x a A b s e n t e e * * m e n g a n d u n g p e n g e r t i a n b a h v /a t a n a h p e r t a n i a n y a n g d i m i l i k i / d i k u a s a i o l e h s e s e o r a n g a t a u k e l u a r g a b e r d a - e a r k a n h a k m i l i k a t a u h a k - h a k a t a s . . t a n a h l a i n n y a , d a n t a ­ n a h t e r s e b u t t e r l e t a k d i l u a r b a t a s d a e r a h k e c a m a t a n t e r n - p a t t i n g g a l p e m i l i k n y a . ^

  ^ B o e d i H a r s o n o , O p . c i t . f h* 7 5 9

  

ADLN - Perpustakaan Universitas Airlangga

  6

  3 * A l a s a n P e m i l i h a n J u d u l B e r t o l a k p a d a l a n d a s a n p o k o k U n d a n g - u n d a n g P o k o k A g r a r i a ( U U P A ) , y a i t u p a s a l 3 3 a y a t ( 3 ) UUB 19b$ y a n g b e r - b u n y i : "B u m i d a n a i r , d a n k e k a y a a n a la m y a n g t e r k a n d u n g d i d a la m n y a d i k u a s a i o l e h N e g a r a d a n d i p e r g u n a k a n u n t u k s e b e s a r - b e s a r kem ak rou ran r a k y a t 11, m aka s e g a l a b e n t u k t a t a - g u n a t a n a h h a r u s " b e r t u j u a n y a n g m e n g a r a h p a d a k e s e j a h t e r a - a n d a n k e m a k m u ra n r a k y a t b a n y a k , O l e h k a r e n a i t u , s e t i a p p e m i l i k a n t a n a h , p e n d a y a g u n a a n n y a h a r u s j a u h d a r i m a k s u d y a n g m e n g a n d u n g u n s u r - u n s u r p e m e r a s a n o l e h g o l o n g a n e k o n o - m i k u a t ( t h e h a v e ) t e r h a d a p g o l o n g a n e k o n o m i l e m a h a t a u p e t a n i p e n g g a r a p ( t h e h a v e n o t ) . A p a l a g i j i k a y a n g m e n j a d i k o r b a n a d a l a h r a k y a t p e d e s a a n y a n g n o t a b e n e m a s i h t e r g o l o n g r a k y a t g o l o n g a n e k o n o m i l e m a h . S e d a n g m e r e k a y a n g m e r a i l i k i t a n a h p e r t a n i a n t e r l e t a k d i l u a r d a e r a h k e c a m a t a n t e m p a t t i n g g a l n y a . T e r h a d a p t a n a h a b s e n t e e p e l a k s a n a a n p e n g g a r a p - a n a t a u t e k n i s p e n g o l a h a n d a n p e n g e l o l a a n n y a sa m a s e k a l i t i d a k e f f i s i e n . D e n g a n s u s a h - p a y a h p e t a n i - p e n g g a r a p m e n g e r j a k a n t a ­ n a h p e r t a n i a n y a n g b u k a n m i l i k n y a s e n d i r i . P e t a n i - p e n g g a r a p h a n y a s e m a t a - m a t a m e n g h a r a p u p a h d e n g a n s i s t e m b a g i h a s i l , s e w a , a t a u s i s t e m l a i n y a n g l e b i h p a r a h l a g i , B e r h u b u n g d e n g a n i t u , p e m i l i k a n t a n a h p e r t a n i a n s e - c a r a a b s e n t e e i n i h a r u s s e g e r a d i a k h i r i k a r e n a t i d a k s e s u - a i l a g i d e n g a n s i s t e m e k o n o m i p e r t a n i a n d a n t e k n o l o g i p e r ­ t a n i a n d a la r a a l a m p e m b a n g u n a n d i N e g a r a P a n c a s i l a i n i .

  

ADLN - Perpustakaan Universitas Airlangga

  7 D i s a m p i n g i t u , p e m i l i k a n t a n a h p e r t a n i a n s e c a r a a b s e n t e e i n i p e n g e l o l a a n p a s c a - p a n e n t e r h a d a p h a s i l y a n g t e l a h d i - c a p a i p a s t i t i d a k s e s u a i d e n g a n p e t u n j u k - p e t u n j u k P e m e r i n ­ t a h ( D e p a r t e m e n P e r t a n i a n ) . O l e h k a r e n a i t u , p e m i l i h a n j u d u l s k r i p s i i n i s a y a a n g g a p t e p a t s e k a l i u n t u k d i b a h a s * *+. T u j u a n P e n u l i s a n P e n u l i s a n s k r i p s i i n i m e m p u n y a i t u j u a n s e b a g a i b e - r i k u t : a . u n t u k r a e l e n g k a p i p e r s y a r a t a n k u r i k u l u m p a d a p r o g r a m s t u d i s a r j a n a a t a u p r o g r a m s t u d i s t r a t a s a t u ( S i ) d i F a k u l t a s Hukum U n i v e r s i t a s A i r l a n g g a ; b * u n t u k s t u d i m e n g e n a i b e b e r a p a f a k t o r p e n y e b a b p e m i ­ l i k a n t a n a h p e r t a n i a n s e c a r a a b s e n t e e , d i s a m p i n g s e g i - s e g i p o s i t i f d a n n e g a t i f y a n g d i t i r a b u l k a n ; c . u n t u k i k u t - s e r t a m e n c a r i k a n j a l a n k e l u a r s e h i n g g a f a k t o r - f a k t o r n e g a t i f d a p a t d i h a p u s d a n f a k t o r p o ­ s i t i f d a p a t d i t i n g k a t k a n . ? • M et o d o l o g i a . P e n d e k a t a n m a s a l a h P e m b a h a s a n d a la m s k r i p s i i n i s a y a m e n g g u n a k a n p e n ­ d e k a t a n y u r i d i s f o r m a l , a r t i n y a p e n d e k a t a n y a n g m e - n i t i k b e r a t k a n p a d a p e r a t u r a n p e r u n d a n g - u n d a n g a n y a n g i b e r l a k u ; b . S u m b e r d a t a

  8 D a t a y a n g d i p e r o l e h d a la m p e n y u s u n a n s k r i p s i i n i i a l a h b u k u -b u k u l i t e r a t u r , c a t a t a n - c a t a t a n k u l i a h , S u r a t K a b a r , d a n b u k u - b u k u l a i n y a n g e r a t k a i t a n n y a d e n g a n j u d u l s k r i p s i ; c . P e n g u r n p u la n d a n p e n g o l a h a n d a t a B u k u - b u k u l i t e r a t u r , d a n l a i n - l a i n s u m b e r d a t a k e - p u s t a k a a n , d i k u m p u l k a n , d i p e l a j a r i s e c a r a s i s t e m a t i s . H a s i l t e l a a h t e r s e b u t d i s u s u n d a la m b e n t u k s k r i p s i i n i ; d . A n a l i s i s d a t a D a la m m e m b a h a s d a n m e m e c a h k a n s e m u a p e r m a s a l a h a n p e n u l i s a n i n i s a y a m e n g £ u n a k a n m e t o d e d i s k r i p t i f - a n a l i s i s . M a k s u d n y a , m e m b e r i k a n k e j e l a s a n t e r h a d a p f a k t a y a n g e a p i r i s s e r t a m e n c o b a d i p e c a h k a n . S e l a n - j u t n y a , su ra b e r d a t a t e r s e b u t d i a n a l i s i s a t a u d i r e k a d a n d i j a b a r k a n s e c a r a i l m i a h s e h i n g g a d i p e r o l e h h a ­ s i l y a n g k o n k r i t d a n d a p a t d i p e r t a n g g u n g j a w a b k a n s e c a r a h u k u m .

  6

  . P e r t a n g g u n g j a v a b a n S i s t e m a t i k a P e n d a h u l u a n , s a y a l e t a k k a n p a d a BAB I k a r e n a d a la m " P e n d a h u l u a n " i n i m e r u p a k a n u r a i a n y a n g b e r s i f a t m e n y e l u - r u h ( g l o b a l ) y a n g m e n c a k u p s e m u a m a s a l a h y a n g a k a n d i b a h a s d a la m b a b - b a b b e r i k u t n y a . D i s a m p i n g i t u , p e n j e l a s a n j u d u l , a l a s a n p e m i l i h a n j u d u l , d a n j u g a m e t o d o l o g i , d i u r a i k a n s e ­ c a r a s i n g k a t , t e t a p i j e l a s . D e n g a n d e m i k i a n , p e m b a h a s a n d a la m b a b - b a b b e r i k u t n y a d a p a t b e r j a l a n l a n c a r .

  ADLN - Perpustakaan Universitas Airlangga

  

ADLN - Perpustakaan Universitas Airlangga

  9 P e n g e r t i a n P e m i l i k a n d a n P e n g u a s a a n T a n a h P e r t a n i - S e c a r a A b s e n t e e , M a k s u d d a n T u j u a n , d a n D a s a r H u k u m , s a y a l e t a k k a n p a d a BAB I I , k a r e n a d e n g a n r a e n g e r t i , m e m a h a m i n o k s u d d a n t u j u a n , d a n d a s a r h u k u n n y a , m a k a a k a n m e m p e r - znudah u n t u k m e n g i k u t i se m u a p e r m a s a l a h a n d a l a m b a b - b a b b e r i k u t n y a . S u a t u p r i n s i p " T a n a h P e r t a n i a n U n t u k P e t a n i P e n g -

  3

  g a r a p " d o n " S e m u a H a k A t a T a n a h L le m p u n y a i F u n g a i S o s i a l " d i b a h a s d a l a m BAB I I I , d e n g a n m a k s u d a g a r d i f a h a m i f u n g - s i t a n a h y a n g a e b e n a r n y a m e n u r u t u n d a n g - u n d a n g , d a n a k h i r ­ n y a d i s a d a r i b a h v /a p e m i l i k a n d a n p e n g u a s a a n t a n a h p e r t a n i - u n s e c a r a a b s e n t e e ( g u n t a i ) p a d a p r i n s i p n y a b e r t e n t a n g a n d e n g a n l o n d a s a n hukum p e r t a n a h a n s e b a g a i m a n a d i n y a t a k a n d a l a m p a s a l 3 3 a y a t ( 3 ) UUD 1 9 4 5 * P e m i l i k a n d a n P e n g u a s a a n T a n a h P e r t a n i a n S e c a r a A b - s e n t e e , P e r m a s a l a h a n n y a , d a n C a r a - c a r a U e n g a t a s i n y a , s a y a l e t a k k a n p a d a BAB I V , k a r e n a d a la m b a b i n i m e r u p a k a n b a b y a n g m e m b a h a s p o k o k - i n t i p e r m a s a l a h a n . O l e h k a r e n a i t u , l a n g k a h - l a n g k a h p o s i t i f y a n g d i t e m p u h o l e h P e m e r i n t a h m e - n u j u C a t u r T e r t i b P e r t a n a h a n p e r l u d i k e t a h u i , B e g i t u p u l a d e n g a n h a m b a t a n - h a m b a t a n d a n c a r a - c a r u n e n g a t a s i n y a , p e n - t i n g u n t u k d i s a m p a i k a n . P e n u t u p , s a y a l e t a k k a n p a d a BAB V , k a r e n a d a l a m b a b i n i m e r u p a k a n k e s i m p u l a n se m u a p e r m a s a l a h a n . D e n g a n h a r a p - a n k i r a n y a d a p a t m e n j a d i i n - p u t ( m a s u k a n ) d a l a m p e m b a n g u n ­ a n p e r t a n a h a n d i I n d o n e s i a , s a y a a k h i r i s k r i p s i i n i d e n g a n s a r a n - o e r a n .

  p e :. g l r ? i a i : p e l O l i k a u d a i i p e i ; g u a s a a i i

  

TAI I AH PERT AN I Ai r SECARA ABSEH T EE, I ^K SU D DAI i TUJUAZT,

D ASAR HUKUI I

  1 . P e n g e r t i a n D a la m s u a t u l a p o r a n y a n g p e r n a h d i s a n p a i k a n o l e h I . 'e n t e r i K e g a r a R i s e t R e p a b l i k I n d o n e s i a ( v /n k t u i t u P r o f . i D r . S o e m i t r o D j o j o h a d i k u s u n o ) k e p a d a P r e s i d e n R e p u b l i k I n ­ d o n e s i a m e n g e n a i r a a s a l a h p e r t a n a h n n . D o l a n l a p o r a n t e r s e ­ b u t a i j e l a s k a n b a h v /a y a n g d i m a k s u d d e n g a n p e m i l i k a n d a n p e n g u a s a a n t a n a h a d a l a h : S e r a n g k a i o n g o l o n g a n p e m i l i k t a n a h ( t e r d a f t a r s e b a g a i p e m i l i k y a n g s e c a r a d e j u r e m a s i h s e b a g a i p e m i l i k t a ­ n a h ) s u d a h k e h i l a n g a n k e k u a s a o n a t a s t a n a l m y a d a n a t a u a t a s h a s i l t a n a h y a n g b e r s a n g k u t a n . K e k u a o a a n i t u s u - d a h a d a p a d a g o l o n g a n / o r a n g l a i n y a n g s e c a r a de f a c t o e k o n o m i s m e n g u a s a i t a n a h y a n g b e r s a n g k u t a n d a n a t a u h a ­ s i l t a n a h t e r s e b u t . D a la m k e a d a a n d e m i k i a n , t i d a k j a - r a n g t e r j a d i b a h w a p a r a p e m i l i k t a n a h ( a s l i ) j u s t r u m e n - j a d i p e n g g a r a p / b u r u h a t a s t a n a h y a n g s e c a r a de j u r e m e - s i h m i l i k n y a s e n d i r i . 7 D a la m p a d a i t u , b e r b a g a i p e r a t u r a n p e r u n d a n g - u r . d a n g - a n t e n t a n g p e r t a n a h a n p a d a p o k o k n y a a d a l a h m e n g a t u r t e n - t a n g s t r u k t u r p e m i l i k a n d a n p e n g u a s a a n a t a s t a n a h , s e r t a d i s t r i b u o i n y a . O l e h k a r e n a i t u , d a la m UUPA p e l a k s a n a a n n y a b e r s a n d a r p a d a e m p a t p r i n s i p d a s a r , y a i t u : a . t a n a h p e r t a n i a n a d a l a h u n t u k p e t a n i p e n g g a r a p ;

  M a s a l a h P e r t a n a h a n , J a k a r t a , 4 I .'a r e t 1 9 7 8 , h . 2 1 0

  ADLN - Perpustakaan Universitas Airlangga

BAB II

  

ADLN - Perpustakaan Universitas Airlangga

  11 b . h a k a t a s t a n a h d i b e r i k e n k e p a d a v /a r g a n e g a r n I n d o ­ n e s i a , w a l a u p u n o r a n g a t a u b a d a n hukum e n i n g d c p a t m e m p e r o l e h n y o m e l a l u i p r o s e d u r d a n p e r a t u r a n k h u - s u o ; c . t i d a k d i m u n g k i n k a n n y a p e m i l i k a n t a n a h p e r t a n i a n s e c a r a g u n t a i ( a b s e n t e e o w n e r s h i p ) ; d . p e t a n i y a n g l e m a h e k o n o r .J n y a m e n d a p a t p e r l i n c u n g a n d a r i y a n g b e r e k o n o m i k u a t . " D e n g a n u n g k a p a n l a i n b a h w a UUPA a d a l a h s u a t u u p a y a P e m e r i n t a h u n t u k m e n u ju k e s e j a h t e r a a n m a s y a r a k a t p a d a s e k - t o r p e r t a n a h a n . U p a y a t r a n s f o r m a s i s t r u k t u r p e m i l i k a n d a n p e n g u a s a a n t a n a h d a n s i s t e r * d i s t r i b u s i a t a s t a n a h m e r u p a ­ k a n ’ u p a y a y a n g d i l a k u k a n o l e h s e m u a n e g a r a d i m u k a b u m i n i , u t a m a n y a d i A s i a d a n A f r i k a . S i s t e m p e n g a t u r a n p o l a p e m i l i k a n d a n p e n g u a s a a n d a n s i s t e m d i s t r i b u s i a t a s t a n a h i n i l a h y a n g k e m u d i a n d i k e n a l d e n g a n we b u t a n L a n d r e f o r m

  9

  a t a u A g r a r i a n r e f o r m * D i I n d o n e s i a b i d a n g l a n d r o f o r m m e r u p a k a n s a l a h s q - t u t u g a s p o k o k d a n t u n g s i k e o n g r a r i a a n , s e d a n g p e m i l i k a n d a n p e n g u a s a a n t a n a h p e r t a n i a n s e c a r a a b s e n t e e ( a b s e n t e e o w n e r s h i p ) m e r u a p a k a n s a l a h s a t u o b j e k a t a u s a s a r a n y a n g m e n j a d i g a r a p a n l a n d r e f o r m t e r s e b u t . O l e h k a r e n a i t u , u n -

  2 3 S e p t e m b e r 1 9 3 7 , h . T F ~ 9 X b i d .

  

ADLN - Perpustakaan Universitas Airlangga

  1 2 t u k m e n g e t a h u i d a n n e n g e r t i r . e n g e n a i p e r d l i k a n d o n p e n g u - a s a a n t a n a h p e r t a n i a n s e c a r a a b s e n t e e ( g u n t a i ) , h a r a s m e - n g e t a h u i d a n m e n g e r t i p u l a m a s a l a h L a n d r e f o m * L a n d r e f o r a , m e n g a r .d u n g p e n g e r t i a n a u a t u p e r u b a h a n i n e n d a s a r a t a u p e r o m b a k a n a t r u k t u r p e r t a n a h a n y a / i g d i s e b a b - k a n o l e h k o n d i s i d a n o i t u a a i t i d a k a d a n y a k e a d i l a n s o s i a l d a l a n r n a a y a r a k a t a g r 9 r i s * K e c e n j a n g n n c o s i a l - e k o n o r . i i a n - t a r a t u a n - t u a n t a n a h ( l a n d l o r d s ) d e n g a n g o l o n g a n p e t a n i k e c i l t a n p a t a n a h t e l a h i ^ e n i n b u l k a n b a n g k i t n y a p a r a p e t a ­ n i k e c i l u n t u k r . e n u n t u t k e a d i l a n d a n k e r .i e r d e k a a n h i d u p u n - t u k d a p a t n e n i l i k i d a n r / i e n g u a s a i h a k a t a n t a n a h n i l i k s e n * d i r i . O l e h k a r e n a i t u , p e m i l i k a n d a n p e n g u a s a a n t a n a h p e r t a n i a n s e c a r a a b s e n t e e , y a i t u p e r d l i k a n d a n p e n g u a s a a n t a n a h p e r t a n i a n y a n g t e r l e t a k d i l u a r b a t a s d a e r a h / w i l a - y a h k e c a i r . a t a n t e m p a t t i n g g a l p e : n i l i k t a n a h t e r s e b u t , d i - l a r a n g o l e h l l e g a r a , k a r e n a m e n g a n d u n g u n s u 3 > - u n s u r y a n g b e r t e n t a n g a n d e n g a n m a k s u d d a n t u j u a n U UPA, u t a r i a n y a p a ­ s a l 6 , 7 » d a n p a s a l 1 0 a y a t ( 1 ) , ( 2 ) , d a n ( 3 ) * 2 . K a k s u d d a n T u j u a n C i t a - c i t a y a n g t e r c a n t u m d a l a m a s a s " t a n a h p e r t a ­ n i a n h a r u s d i k e r j a k a n a t a u d i u s a h a k a n s e c a r a a k t i f o l e h p e n i l i k n y a s e n d i r i " , m e r u p a k a n s l o g a n y a n g d a p a t m e n j a d i 1 0 I b l d .

  

ADLN - Perpustakaan Universitas Airlangga

  1 3 p e n d o r o n g y a n g p e n t i n g u n t u k d i h a y a t i d a n d i r e a l i s a s i k a n d a l a m k e h i d u p a n b e r m a s y a r a k a t y a n g b e r c o r a k a g r a r i s i n i .

  3 A . S S 3 y a n g d i r a a k s u d s e p e r t i t e r c a n t u m d a l a m p a a l 1 0 a y a t

  ( 1 ) UUPA y a n g b e r b u n y i : " S e t i a p o r a n g d a n b a d a n h u kum y a n g m e m p u n y a i s e s u a t u h a k a t a s t a n a h p e r t a n i a n p a d a a s a s - n y a f l i w a j i b k a n m e n g e r j a k a n a t a u m e n g u a s a h a k a n n y a s e n d i r i s e c a r a a k t i f d e n g a n m e n c e g a h c a r a - c a r a p e m e r a s a n " . L a r a n g a n p e m i l i k a n d a n p e n g u a s a a n t a n a h p e r t a n i a n s e c a r a a b s e n t e e ( g u n t a i ) a d a l a h s a l a h s a t u o b j e k a t a u s a - s a r a n L a n d r e f o r m d i I n d o n e s i a , m a k a m a k a u d d a n t u j u a n l a - r a n g a n p e m i l i k a n d a n p e n g u a s a a n t a n a h p e r t a n i a n s e c a r a a b s e n t e e , j u g a m e r u p a k a n m a k s u d d a n t u j u a n l a n d r e f o r m . O l e h k a r e n a i t u , m a k s u d d a n t u j u a n t e r s e b u t , d a p a t d i n y a - t a k a n , a n t a r a l a i n s b b . : a . u n t u k m e w u ju d k a n s e c a r a n y a t a m a k s u d y a n g d i k a n - d u n g o l e h p a s a l 3 3 a y a t ( 3 ) UUD 1 9 4 5 , y a n g m e n y a - t s k o n b a h v /a s wB u m i d a n a i r d a n k e k a y o a n a l a m y a n g t e r k a n d u n g d i d a l a m n y a d i i r u a s a i o l e h n e g a r a d a n d i p e r g u n a k a n u n t u k s e b e s a r - b e s a r k e m a k m u r a n r a k ­ y a t " ;

  33

  3

  b , d e n g a n t e r c a p a i n y a m a k s u d p o k o k p a s a l a y a t ( ) UUD 1 9 4 5 b e r h a s i l d i t r a p k a n d e i s m k e h i d u p a n b e r - m a s y a r a k a t , m a k a s i s t e m l i b e r a l i s m e d a n k a p i t a l i s - m e , d a n p r a k t e k - p r a k t e k y a n g c e n d e r u n g p a d a p e m e - r a s a n s e s e o r a n g t e r h a d a p o r a n g l a i n ( e x p l o i t a t i o n d e l 'h o m m e p a r l f homme ) a k a n d a p a t d i h a p u s ;

  

ADLN - Perpustakaan Universitas Airlangga

1 4

  c . h a p u s n y a s i o t e n p e m i l i k a n d a n p e n i u a s a a n t a n a h p e r ­ t a n i a n s e c a r a a b s e n t e e , b e r a r t i a k a n m e n j a d i k e n y o -

  3

  t a a n b a h w a " h a k a t a t a n a h m e m p u n y a i f u n g s i s o s i a l "

  6

  ( p a s a l U U P A ). B e r h u b u n g d e n g a n f u n g s i s o c i a l a t a s t a n a h t e r s e b u t , m a k a p e r a a n f a a t a n d a n p e n g g u n a a n t a - n a h h a r u s m e m p e r h a t i k a n k e p e n t i n g a n p i h a k - p i h a k y a n g e k o n o m i n y a l e m a h ( v i d e : p a s a l 1 5 UUPA ) . D e m i k i a n l a h , p a d a p r i n s i p n y a b e r b a g a i p e r Q t u r a n p e r u n d a n g - u n d a n g a n m e n g e n a i p e r t a n a h a n a d a l a h i n e n g a t u r t e n t n n g s t r u k t u r p e n g u a o a a n d a n p e m i l i k a n , s e r t a c i s t e r n d i s t r i b u s i a t a c t a n a h . O l e h k a r e n a i t u , m a k s u d d a n t u j u a n s e m u a t a t a n a n a t a u a t u r a n y a n g m e n y a n g k u t m a s a l a h t a n a h , h a r u s i d e n t i k d e n g a n t u , j u a n p o k o k U U P A , y a i t u : a . m e l e t a k k a n d a c a r - d a s a r b a g i p e n y u s u n a n h u k o m a g r a ­ r i a n a s i o n a l , y a n g a k a n i n e r u p a k a n a l a t u n t u k n e m - b a v /a k a n k e m a k m u r a n , k e b a h a g i a a n d a n k e a d i l a n b a g i E e g a r a d a n r a l r y a t , t e r u t a m a r a k y a t t a n i , d a l a m r a n g - k a m e n u j u m a s y a r a k a t a d i l d a n m a k m u r ;

  8

  b . m e l e t a k k a n d a s n r - d s a r u n t u k ir .e n g a d a k a n k e c n t u a n d s n k e s e d e r h a n a a n d a l a m hukum p e r t a n a h a n ; c . m e l e t a k k a n d a s a r - d a s a r u n t u k m e m b e r i k a n k e p o s t i a n h u k u m m e n g e n a i h a k - h a k a t a s t a n a h b a g i r o k y a t s e l u - r u h n y a . ^ " ^ B o e d i H a r s o n o , O o * c i t . , h . 2 7

  1 5 3 • P a s o r Hukiur. P o s s l 3 3 a y a t ( 3 ) UUD 1 9 4 5 y a n g b e r b u n y i : "B u m i d a n s i r d a n k e k a y a a n a l a m y a n g t e r k a n d u n g d i d a l a m n y a , d i k u a a a i o l e h I lc -g o r a d o n d i p o r g u n a k o n u n t u k s e b e s o r - b e s n r k e m a k r /.u r o n r a k y a t 1' . B e r t o l a k d o r i p a s a l 3 3 a y a t ( 3 ) UUD

  19 4 5

   t e r s e b u t , b e r b a g a i p e r a t u r a n p e r u n d a n g - u n d a n g a n t e n - t a n g p e r t a n a h a n p a d s p o k o k n y a a d a l a h m e n g a t u r t a t a - c t u r a n a t a u s t r u k t u r p e n g u a s a a n d a n a t a u p e m i l i k a n t a n a h d n n s i s - t e m d i s t r i b u s i a t a s - t a n a h . S u a t u p e r n y a t a a n y a n g m e n g o t a k o n b a h v /a s e g a l a h a k a t a s t a n a h m e m p u n y a i f u n g s i s o s i a l ( p a s a l

  6 UUPA ) , m e -

  r u n a k a n s u a t u p e n j a b n r a n m a k n a d a n a r t i y a n g d i k a n d u n g

  

o l e h p a s a l 3 3 a y a t ( 3 ) UUD 1 9 4 5 t e r s e b u t . O l e h k a r e n a i t u ,

  u n t u k m e n c e g a h h a k - h a k p e r s e o r a n g o n y a n g m e l e m p a u i b a t e s d a p a t d i t e l a a h l e b i h j a u h s e c a r a t e g a s k e t e n t u a n y a n g t e r - c a n t u m d a l a m p a s a l 7 UUPA y a n g b e r b u n y i : " U n t u k t i d a k m e r u g i k a n k e p e n t i n g a n umum m a k a p e m i l i k a n d a n p e n g u a s a a n

  12 t a n a h y a n g m e la r n p a u i b a t a s t i d a k d i p e r k e n a n k o n " .