PERANAN POLITIK HUKUM DALAM
PEMBANGUNAN HUKUM NASIONAL INDONESIA
BAB I
PENDAHULUAN
Politik hukum Indonesia sangat berkaitan dengan realita sosial dan tradisional yang terdapat di dalam negara Indonesia (faktor internal), serta politik hukum internasional (faktor eksternal). Faktor internal antara lain meliputi latar belakang sejarah, kebudayaan dan adat – istiadat, serta cita – cita masyarakat atau bangsa Indonesia. Perkembangan kehidupan berbangsa dan bernegara di Indonesia sejak Orde Lama (ORLA), Orde Baru (ORBA) sampai dengan Orde Reformasi sekarang ini mengalami perubahan yang sangat besar terutama dalam rangka mewujudkan tujuan gerakan reformasi di bidang hukum yang diimplementasikan melalui beberapa kebijakan hukum diantaranya dengan melakukan perubahan (amandemen) terhadap Undang – Undang Dasar 1945.
Namun demikian, meskipun terhadap Undang – Undang Dasar 1945 telah dilakukan amandemen beberapa kali, orientasi pembangunan hukum harus tetap mencerminkan / merefleksikan kehendak untuk terus menerus meningkatkan kesejahteraan dan kemakmuran rakyat Indonesia secara adil dan merata, serta mengembangkan kehidupan masyarakat dan penyelenggaraan negara yang maju dan demokratis berdasarkan Pancasila dan Undang – Undang Dasar 1945 (a reflection of willing to nicrease continually the Indonesians’ prosperity which is just and well distributed, to develop a social life and carry out a developed a democratic and democratic country based on Pancasila and 1945 Constitution). Pancasila merupakan dasar filsafat dan sumber dari segala sumber hukum negara Republik Indonesia yang secara resmi disahkan oleh Panitia Persiapan Kemerdekaan Indonesia (PPKI) pada tanggal 18 Agustus 1945 dan dicantumkan dalam Pembukaan UUD 1945, diundangkan dalam Berita Negara Republik Indonesia tahun II No. 7 bersama – sama dengan batang tubuh UUD 1945.
Dalam perjalanan sejarah, sebagai dasar filsafat negara Republik Indonesia mengalami berbagai interpretasi dan manipulasi politik sesuai dengan kepentingan dan arah politik hukum penguasa (rejim) untuk mempertahankan kekuasaannya. Dengan perkataan lain, Pancasila tidak diposisikan sebagai pandangan hidup (way of life) bangsa dan negara Indonesia, melainkan direduksi dan dimanipulasi demi kepentingan politik rajim yang berkuasa. Begitu pula, peranan politik hukum pemerintah dalam pembangunan hukum nasional pada hakekatnya tidak lagi bertujuan untuk “menciptakan masyarakat adil dan makmur berdasarkan Pancasila dan UUD 1945.
Kenyataan yang sebenarnya (in concreto) bahwa politik hukum sangat berhubungan dengan kepentingan politik penguasa, dapat dikemukakan sebagai fakta sejarah yaitu pedoman politik pemerintah Hindia Belanda di Indonesia pada waktu dahulu didasarkan pada Wet op de staatsinrichting van Ned – Indie, khususnya yang termaktub dalam pasal 131 jo. pasal 163 Indische Staatsregeling Stb. 1854 (sebelum itu pasal 75 Regeringsreglement), yang pada pokoknya sebagai berikut:
- Hukum Perdata dan dagang (begitu pula hukum pidana beserta Hukum Acara Perdata dan Pidana) harus diletakkan dalam kitab undang – undang, yaitu dikodifisir.
- Untuk golongan bangsa Eropah dianut (dicontoh) perundang – undangan yang berlaku di Negeri Belanda (azas konkordansi).
- Untuk golongan bangsa Indonesia asli dan Timur Asing (Tionghoa, Arab dan sebagainya), jika ternyata “kebutuhan kemasyarakatan” mereka menghendakinya, dapatlah peraturan – peraturan untuk bangsa Eropah dinyatakan berlaku bagi mereka, baik seutuhnya maupun dengan perubahan – perubahan dan juga diperbolehkan membuat suatu peraturan baru bersama, untuk selainnya harus diindahkan aturan – aturan yang berlaku di kalangan mereka, dan boleh diadakan penyimpangan jika diminta oleh kepentingan umum atau kebutuhan kemasyarakatan mereka (ayat 2).
- Orang Indonesia asli dan orang Timur Asing, sepanjang mereka belum di bawah suatu peraturan bersama dengan bangsa Eropah, diperbolehkan menundukkan diri (“onderwerpen”) pada hukum yang berlaku untuk bangsa Eropah. Penundukkan ini boleh dilakukan baik secara umum maupun secara hanya mengenai suatu perbuatan tertentu saja (ayat 4).
- Sebelum hukum untuk bangsa Indonesia ditulis di dalam undang – undang, bagi mereka itu akan tetap berlaku hukum yang sekarang berlaku bagi mereka, yaitu “Hukum Adat” (ayat 6)[1].
Pada era Orde Baru, landasan atau dasar – dasar pokok kebijakan hukum nasional tercantum dalam Ketetapan Majelis Permusyawaratan Rakyat Republik Indonesia (TAP MPR RI) IV / 1973 Tentang Garis – Garis Besar Haluan Negara (GBHN), mengenai kebijaksanaan di bidang hukum, yang menyatakan:
– “Pembinaan bidang hukum harus mampu mengarah dan menampung kebutuhan – kebutuhan hukum sesuai dengan kesadaran hukum rakyat yang berkembang ke arah modernisasi menurut tingkat kemajuan pembangunan di segala bidang sehingga tercapai ketertiban dan kepastian hukum sebagai prasarana yang harus ditunjukkan kearah peningkatan pembinaan Kesatuan Bangsa sekaligus berfungsi sebagai sarana menunjang perkembangan modernisasi dan pembangunan yang menyeluruh, dilakukan dengan:
- Meningkatkan dan menyempurnakan pembinaan Hukum Nasional antara lain dengan mengadakan pembaruan, kodifikasi serta unifikasi hukum di bidang – bidang tertentu dengan jalan memperhatikan kesadaran hukum masyarakat.
- Menertibkan fungsi lembaga – lembaga hukum menurut posisinya masing – masing.
- Meningkatkan kemampuan dan kewibawaan penegak – penegak hukum.
– Memupuk kesadaran hukum dalam masyarakat dan membina sikap para penguasa dan para pejabat pemerintah ke arah Penegakkan Hukum, keadilan serta perlindungan terhadap Harkat dan Martabat Manusia, dan Ketertiban serta Kepastian Hukum sesuai dengan Undang – Undang Dasar 1945”[2].
Selain dalam TAP MPR IV / 1973 Tentang Garis – Garis Besar Haluan Negara (GBHN) tersebut, pembangunan hukum nasional secara eksplisit juga dirumuskan dalam REPELITA II BAB 27 Tentang Hukum, yang berbunyi, ”Pembinaan bidang hukum harus mampu mengarahkan dan menampung kebutuhan – kebutuhan hukum sesuai dengan kesadaran hukum rakyat yang berkembang kearah modernisasi menurut tingkat kemajuan pembangunan di segala bidang sehingga tercapai ketertiban dan kepastian hukum sebagai prasarana yang harus ditujukan ke arah peningkatan pembinaan kesatuan bangsa, sekaligus berfungsi sebagai sarana menunjang perkembangan modernisasi dan pembangunan yang menyeluruh. Pembangunan bidang hukum dilakukan dengan jalan;
- Peningkatan dan penyempurnaan pembinaan hukum nasional dengan antara lain mengadakan pembaharuan, kodifikasi serta ubifikasi hukum di bidang – bidang tertentu dengan jalan memperhatikan kesadaran hukum dalam masyarakat.
- Menertibkan fungsi lembaga – lembaga hukum menurut proporsinya masing – masing.
- Peningkatan kemampuan dan kewibawaan penegak hukum”[3].
Pembangunan hukum nasional dalam negara hukum Indonesia adalah berlandaskan pada sumber tertib hukum negara yaitu cita – cita yang terkandung pada pandangan hidup, kesadaran dan cita – cita hukum serta cita – cita moral yang luhur yang meliputi suasana kejiwaan serta watak dari bangsa Indonesia yang diformulasikan dalam Pancasila dan Undang – Undang Dasarb 1945. Namun harus diakui bahwa pada era Reformasi sekarang ini, pasca lengsernya Presiden Soeharto sebagai penguasa rejim Orde Baru, sama sekali tidak ada konsep yang jelas mengenai pedoman arah dan tujuan pembangunan hukum nasional. Bahkan terdapat kecenderungan adanya peraturan perundang – undangan produk lembaga eksekutif (pemerintah) dan lembaga legeslatif (Dewan Perwakilan Rakyat) yang tidak mencerminkan semangat reflormasi dan nilai – nilai demokrasi yang bersifat universal.
- LATAR BELAKANG MASALAH
Nilai – nilai luhur yang terkandung dalam Pancasila, digali dan bersumber dari agama, kebudayaan serta adat – istiadat yang terdapat di negara Indonesia. Oleh karena itu, Pancasila sebagai sumber dari segala sumber hukum harus dijadikan dasar dan pedoman untuk menentukan politik hukum dalam pembangunan hukum nasional Indonesia. Namun demikian, harus diakui bahwa dari dahulu sampai sekarang banyak pihak – pihak yang mencoba mempengaruhi dan mengarahkan kebijakan politik (political will) dan politik hukum pemerintah dalam pembangunan hukum nasional Indonesia agar tidak lagi menjadikan Pancasila sebagai pedoman. Berdasarkan kenyataan tersebut, diharapkan agar kerangka pemikiran dalam karya ilmiah (makalah) ini dapat dijadikan refleksi yang bertujuan untuk mengembalikan kedudukan dan fungsi Pancasila dalam rangka menyikapi peranan politik hukum dalam pembangunan hukum nasional Indonesia.
Pada saat ini bangsa Indonesia ada di persimpangan jalan (crossroad) yang sangat menentukan masa depan bangsa dalam wadah Negara Kesatuan Republik Indonesia (NKRI). Dalam pengertian ini, apakah pemerintah dapat menjalankan peranan politik hukumnya sebagai suatu political will untuk membangun hukum nasional yang berwawasan nusantara dan kebangsaan yang dapat dijadikan sebagai perekat untuk mempertahankan keutuhan rakyat Indonesia sebagai suatu nation. Oleh karena pada masa sekarang ini, faktanya masih terdapat produk hukum dan peraturan perundang – undangan yang yang membahayakan disintegrasi bangsa tetapi sengaja dipertahankan oleh pemerintah meskipun keberlakuannya bersifat inkonstitusional. Termasuk adanya pola – pola kebijakan pemerintah dalam melaksanakan peranan politik hukumnya, yang dianggap mencederai rasa keadilan masyarakat Indonesia dan bertentangan dengan nilai – nilai hukum.
Undang – Undang Nomor 25 Tahun 2000 Tentang Pembangunan Hukum Nasional (Propenas) Tahun 2000 – 2004, sebagai penjabaran dari Garis – Garis Besar Haluan Negara (GBHN) 1999 – 2004, sama sekali tidak memberikan arah dan tujuan yang jelas mengenai pembangunan hukum nasional. Propenas hanya memberi gambaran mengenai upaya mewujudkan Supremasi Hukum dan Pemerintahan yang Baik. Secara umum, dalam Propenas dinyatakan “Menegakkan hukum secara konsisten untuk lebih menjamin kepastian hukum, keadilan dan kebenaran, supremasi hukum, serta menghargai hak asasi manusia perlu didukung dengan mewujudkan lembaga peradilan yang mandiri dan bebas dari pengaruh penguasa dan pihak mana pun, dan upaya menyelenggarakan proses peradilan secara cepat, mudah, murah, dan terbuka, serta bebas korupsi, kolusi, dan nepotisme dengan tetap menjunjung tinggi asas keadilan dan kebenaran”.
Latar belakang masalah sebagaimana dipaparkan diatas fakta yuridis (das sollen) dan fakta riil (das sein) yang menjadi rujukan untuk menganalisa masalah / pembahasan masalah dalam makalah ini, yaitu:
- Fakta Yuridis (das sollen), yaitu:
– Pembukaan Undang – Undang Dasar 1945.
– Pancasila.
– Undang – Undang Dasar 1945.
– Teori Hukum Hans Kelsen, yang menyatakan: “Kaedah hukum mempunyai kelakukan yuridis apabila penentuannya didasarkan pada kaedah yang lebih tinggi tingkatannya”.
– Teori Hukum W. Zevenbergen, yang menyatakan: “Kaedah hukum mempunyai kekuatan yuridis, jikalau kaedah tersebut terbentuk menurut cara yang telah ditetapkan”.
– Teori Hukum J.H.A. Logemann, yang menyatakan: “Kaedah hukum mengikat secara yuridis, apabila menunjukkan hubungan keharusan antara suatu kondisi dengan akibatnya”.
- Fakta Riil (das`sein), yaitu:
Banyak faktor – faktor internal dan eksternal yang mempengaruhi peranan politik hukum pemerintah dalam pembangunan hukum nasional di Indonesia.
2. PERMASALAHAN (RUMUSAN MASALAH)
Perumusan masalah dalam karya ilmiah (makalah) ini diidentifikasi berdasarkan fakta – fakta kehidupan berbangsa dan bernegara di Indonesia sebagai suatu negara hukum yang menganut prinsip – prinsip Demokrasi Pancasila. Selain itu, juga dihubungkan dengan fenomena tata kebudayaan dan tuntutan perkembangan kehidupan masyarakat Indonesia yang semakin dinamis tetapi cenderung fluktuatif. Fakta – fakta dan fenomena tersebut sebenarnya merupakan rangkaian – rangkaian yang saling kait – mengkait dengan peranan politik hukum dalam pembangunan hukum nasional Indonesia. Sering kali fakta – fakta dan fenomena tersebut menjadi halangan atau kendala untuk membentuk suatu sistem hukum ideal yang dicita – citakan. Masalah – masalah tersebut pada pokoknya dapat dirumuskan sebagai berikut:
- Bagaimanakah peranan politik hukum dalam pembangunan hukum nasional Indonesia untuk membentuk sistem hukum ideal yang dicita – citakan?
- Bagaimanakah faktor – faktor yang mempengaruhi peranan politik hukum pemerintah dalam pembangunan hukum nasional Indonesia?
Demikian pula selanjutnya, agar penulisan dan pembahasan masalah dalam makalah ini tidak bersifat abstrak dan tidak bias secara substansial, maka perlu kiranya dilakukan pembatasan ruang lingkup kajian. Konsentrasi pembahasan masalah dalam makalah ini adalah berkenaan dengan peranan politik hukum pemerintah dalam pembangunan hukum nasional untuk membentuk sistem hukum ideal yang dicita – citakan serta faktor – faktor yang mempengaruhi peranan politik hukum tersebut. Dengan pembatasan tersebut diharapkan akan menghasilkan kerangka teoritis dan konsepsional, hipotesa, dan analisis masalah yang lebih fokus dan terarah.
3. METODOLOGI PENELITIAN
Penulisan makalah ini merupakan suatu rangkaian dari kegiatan ilmiah untuk mempelajari dan membahas fenomena hukum yang didasarkan pada metode ilmiah. Oleh karena itu perlu dilakukan suatu penelitian, yang dipergunakan sebagai pedoman untuk mengumpulkan data – data serta melakukan kajian atau telaah terhadap fenomena – fenomena yuridis. Sehingga penulisan makalah ini sebagai suatu bentuk karya ilmiah sesuai dengan prosedur penelitian yang berfokuskan masalah (problem – focused research).
Metodologi penelitian sebagai sarana pengumpulan data yang dipergunakan oleh Penulis dalam makalah ini, adalah:
- Penelitian lapangan (field research) melalui metode pengumpulan data primer atau data dasar (primary data / basic data) yaitu mengumpulkan informasi langsung dari masyarakat sebagai sumber pertama.
- Penelitian kepustakaan (library research) melalui metode pengumpulan data sekunder (secondary data) yaitu mencakup peraturan perundang – undangan, buku – buku, dokumen – dokumen resmi, media cetak dan media online, hasil – hasil penelitian yang berwujud laporan – laporan, yurisprudensi, dan sebagainya.
4. SISTEMATIKA PENULISAN
Agar pembahasan dalam karya ilmiah ini dapat dengan mudah ditelaah dan difahami, maka penulisan makalah ini disusun secara sistematis, sebagai berikut:
– Bab I: Pendahuluan, terdiri dari:
- Latar Belakang Masalah.
- Permasalahan.
- Metodologi Penelitian.
- Sistematika Penulisan
– Bab II: Analisis Masalah
- Peranan politik hukum dalam pembangunan hukum nasional Indonesia untuk membentuk sistem hukum ideal yang dicita – citakan.
- Faktor – faktor yang mempengaruhi peranan politik hukum pemerintah dalam pembangunan hukum nasional Indonesia.
– Bab III: Penutup
- Kesimpulan.
- Saran – saran.
BAB II
ANALISIS MASALAH
Roscoe Pound menyatakan pendapatnya bahwa “hukum harus dilihat atau dipandang sebagai suatu lembaga kemasyarakatan yang berfungsi untuk memenuhi kebutuhan – kebutuhan sosial, …”[4]. Hukum sangat berhubungan erat dengan perubahan – perubahan sosial kemasyarakatan. Mengenai hubungan ini Emile Durkheim menyatakan,”bahwa hukum merupakan refleksi daripada solidaritas sosial dalam masyarakat”[5]. Oleh karena itu, agar program pembangunan hukum nasional Indonesia dapat mencapai sasaran maka politik hukum pemerintah harus memperhatikan stabilitas dalam segala bidang yang berhubungan dengan kepentingan nasional dan internasional yang diselaraskan dengan unsur – unsur agama, kebudayaan dan adat – istiadat masyarakat Indonesia, sehingga kepentingan – kepentingan pokok warga masyarakat terpenuhi.
Metode, strategi dan paradigma pembangunan hukum nasional Indonesia dewasa ini dipandang sangat penting untuk mendapat perhatian yang sungguh – sungguh, melihat kenyataan adanya tendensi degradasi kesadaran hukum masyarakat untuk mematuhi hukum dan peraturan perundang – undangan. Degradasi kesadaran hukum tersebut tidak hanya terjadi pada kalangan masyarakat biasa pada umumnya, kelompok – kelompok masyarakat atau lapisan masyarakat kelas bawah (lower class), tetapi juga pada tataran kalangan birokrasi, pejabat dan badan – badan aparatur negara, juga lapisan masyarakat kelas menengah (middle class) dan kelas atas (upper class) termasuk kalangan intelektual. Asumsi hipotetis tersebut didasarkan pada indikator kesadaran hukum masyarakat, yaitu:
- Adanya Pengetahuan hukum.
- Adanya pemahaman hukum.
- Sikap terhadap hukum.
- Pola perilaku hukum.
- Taat kepada hukum[6].
Pemerintah sebagai pemegang peranan (role occupant) seyogyanya dapat menjalankan politik hukum dalam pembangunan hukum nasional Indonesia yang relevan dengan perkembangan jaman dan dapat mengakomodir kepentingan – kepentingan sosial masyarakat. Pembangunan hukum nasional harus dapat mencapai kesejahteraan materil dan spirituil masyarakat maupun individu (azas welvaartstaat), agar hukum yang diformulasikan dalam peraturan perundang – undangan tersebut tidak sekedar kumpulan huruf – huruf mati (doode letter / black letter law) melainkan secara normatif mengikat warga masyarakat. Berkaitan dengan pembangunan hukum nasional, Andi Amrullah dalam tulisannya yang berjudul Tantangan Bagi Pembangunan Hukum Nasional, menulis sebagai berikut, “… pembangunan hukum itu dapat diadakan di sela – sela pembangunan phisik dan mental, dengan terlebih dahulu menentukan tujuan hukum dan perkembangannya, mengadakan suatu analisa deskriftif dan prediktif, dan mengumpulkan data – data tentang hukum yang masih dianggap melekat dalam diri anggota – anggota masyarakat. Menentukan tujuan hukum dan perkembangannya saya kira tidaklah sulit, sebaliknya yang saya anggap sulit adalah menetapkan apakah anggota – anggota masyarakat itu dapat menerima atau mengakui tujuan hukum tersebut oleh karena taatnya anggota – anggota masyarakat kepada hukum dapat disebabkan oleh dua faktor dominant, yaitu:
Pertama : bahwa tujuan hukum idfentik dengan tujuan / aspirasi anggota – anggota masyarakat itu atau dengan kata lain taatnya anggota – anggota masyarakat pada hukum adalah karena terdapatnya perasaan keadilan dan kebenaran dalam hukum itu sendiri.
Kedua : karena adanya kekuasaan yang imperatif melekat dalam hukum tersebut, dengan sanksi apabila ada orang yang berani melanggarnya ia akan memperoleh akibat – akibat hukum yang tak diingini”[7].
Dengan demikian, deskripsi ilmiah diatas merupakan bahan kajian bagi pemerintah untuk melaksanakan peranan politik hukumnya dalam pembangunan hukum nasional Indonesia agar tercipta suatu sistem hukum nasional, sebagai pengejawantahan tujuan negara Indonesia sebagaimana tercantum dalam alinea keempat Pembukaan Undang – Undang Dasar 1945 yaitu melindungi segenap bangsa Indonesia dan seluruh tumpah darah Indonesia, dan untuk memajukan kesejahteraan umum, mencerdaskan kehidupan bangsa, dan ikut melaksanakan ketertiban dunia yang berdasarkan kemerdekaan, perdamaian abadi dan keadilan sosial. Selain itu, dapat pula dijadikan penyeimbang antara peranan politik hukum pemerintah dengan kepentingan politiknya (pemerintah yang berkuasa) dan penetrasi kepentingan negara – negara maju.
- Peranan politik hukum dalam pembangunan hukum nasional Indonesia untuk membentuk sistem hukum ideal yang dicita – citakan.
Ensiklopedi Umum menjelaskan bahwa ius constitutum merupakan hukum yang berlaku dalam suatu negara pada suatu saat. Dengan perkataan lain, ius constitutum adalah hukum positif suatu negara. Sedangkan “ius constituendum adalah hukum yang dicita – citakan oleh pergaulan hidup dan negara, tetapi belum menjadi kaidah berbentuk undang – undang atau peraturan lain (Ensiklopedi Umum: 1977)”[8] .
Sedangkan Sudiman Kartohadiprodjo menyatakan, “Hukum positif dengan nama asing disebut juga ius constitutum sebagai lawan daripada ius constituendum, yakni kesemuanya kaidah hukum yang kita cita – citakan supaya memberi akibat peristiwa – peristiwa dalam suatu pergaulan hidup yang tertentu”[9]. Berkaitan dengan definisi – definisi tersebut, W.L.G. Lemaire menyatakan,”Het recht ordent dus een menselijk samenleving van een bepaalde plaats en een bepaalde tijd. Het is een historisch product, dat geworden is en vervallen zal (Terjemahan bebas: Dengan demikian maka hukum menerbitkan pergaulan hidup manusia disuatu tempat tertentu dan dalam jangka waktu tertentu. Hukum merupakan hasil perkembangan sejarah, yang terbentuk dan akan hilang)”[10].
Pembangunan hukum nasional yang ideal sesuai dengan ekspektasi masyarakat sangat penting dan mendesak untuk segera diimplementasikan karena sampai saat ini masih banyak peraturan perundang – undangan yang dirasakan sudah tidak sesuai dengan perkembangan jaman, termasuk peraturan perundang – undangan produk kolonial Belanda. Selain itu, banyak pula peraturan perundang – undangan sebagai suatu kaidah hukum tidak mempunyai keberlakuan secara yuridis oleh karena bertentangan dengan peraturan perundang – undangan yang lebih tinggi tingkatannya. Sehingga dalam pelaksanaannya, peraturan perundang – undangan tersebut menimbulkan polemik pro – kontra dan bahkan sering dimanipulasi kelompok – kelompok tertentu sebagai alat pembenaran untuk melakukan perbuatan melanggar atau melawan hukum.
Efektivitas keberlakuan hukum (peraturan perundang – undangan) bukanlah masalah yang berdiri sendiri, melainkan erat hubungannya dengan masalah – masalah kemasyarakatan lainnya, terutama masalah ;pembangunan karakter bangsa Indonesia. Oleh karena itu pembangunan hukum nasional tidak mungkin dipisahkan dari perkembangan masyarakat Indonesia, atau dengan perkataan lain pembangunan hukum nasional tidak mungkin dipisahkan dari pembangunan bangsa. Dalam kerangka berpikir demikian maka dapat dikemukakan asumsi ilmiah bahwa pembangunan hukum termasuk proses penegakkan hukum harus dikembangkan secara positif dan kreatif untuk kemajuan di bidang hukum yang digerakkan secara serasi, terarah untuk mewujudkan masyarakat yang sadar dan taat pada hukum.
Strategi pembangunan hukum harus didasarkan pada semangat kebangsaan (nasionalisme) dan mengarah pada konsep pembangunan sosial kemasyarakatan yang menyeluruh (komprehensif) dan utuh sebagai satu kesatuan (integral). Dasar politik hukum yang demikian akan menjadi landasan yang kuat dan memainkan peranan yang positif terhadap pembangunan hukum nasional sebagai suatu sistem hukum ideal yang dicita – citakan. Kaidah – kaidah hukum dalam bentuk peraturan perundang – undangan akan dirasakan tidak hanya sebagai sesuatu yang harus dipatuhi / ditaati, melainkan akan menjadi bagian dari nilai tata kehidupan masyarakat, sehingga masyarakat merasa wajib untuk menegakkannya.
Disamping semangat kebangsaan sebagai dasar strategi pembangunan hukum nasional, politik hukum pemerintah harus pula memperhatikan asas – asas hukum juniversal tetapi tetap becorak pada identitas bangsa Indonesia. Indentitas bangsa Indonesia tersebuta adalah Pancasila sebagai pandangan hidup (way of life) dan sumber dari segala sumber hukum. Dengan demikian, peranan politik hukum pemerintah sangat menentukan arah dan corak dari pembangunan hukum nasional untuk membentuk sistem hukum ideal yang dicita – citakan.
Pemerintah harus dapat memainkan peranan politik hukumnya sebagai pelopor perubahan (agent of change) dalam rangka pembangunan hukum nasional untuk membentuk sistem hukum ideal yang dicita – citakan. Sistem hukum yang demikian adalah tatanan hukum yang dapat menjamin tercapainya cita – cita bangsa Indonesia sebagaimana termaktub dalam Pembukaan Undang – Undang Dasar 1945, yaitu; melindungi segenap bangsa Indonesia dan seluruh tumpah darah Indonesia, dan untuk memajukan kesejahteraan umum, mencerdaskan kehidupan bangsa, dan ikut melaksanakan ketertiban dunia yang berdasarkan kemerdekaan, perdamaian abadi dan keadilan sosial. Berkaitan dengan cita – cita luhur tersebut, asas negara Indonesia yang berdasarkan hukum, harus tetap menjadi semangat yang dinamis dan positif.
Politik hukum sebagai suatu kebijakan pemerintah, mencakup juga pelaksanaan tertib hukum dalam kehidupan berbangsa, bernegara dan bermasyarakat di Indonesia. Sehingga, apabila peranan politik hukum demikian dapat dijalankann maka hukum akan merupakan alat penting yang luwes agar tercapai suasana kehidupan masyarakat Indonesia yang tertib oleh karena hukum ditaati / dipatuhi atas dasar kesadaran karena hukum dianggap sebagai suatu budaya. Oleh karena itu, peranan politik hukum tidak boleh menggunakan analytical jurisprudensce, yaitu analisis dari prinsip – prinsip utama hukum tanpa memperhatikan aspek historis maupun aspek etis termasuk aspek sosio – kemasyarakatan.
Politik hukum dalam rangka pembangunan hukum nasional berkenaan juga dengan pembangunan kesadaran hukum masyarakat. “Faham tentang kesadaran hukum sebetulnya berkisar pada fikiran – fikiran yang menganggap bahwa kesadaran dalam diri warga – warga masyarakat suatu faktor yang menentukan bagi sahnya hukum”[11]. Pembangunan hukum nasional harus sesuai dengan filosofi fundamental yang menyataka, “Merupakan suatu keadaan yang dicita – citakan atau dikehendaki, bahwa ada keserasian proporsional antara pengendalian sosial oleh penguasa, kesadaran warga masyarakat dan kenyataan dipatuhinya hukum positif tertulis”[12].
Pembangunan hukum nasional dalam kenyataannya tidak hanya sebatas melakukan perubahan – perubahan terhadap peraturan – peraturan yang telah ada, akan tetapi malahan termasuk mengganti secara keseluruhan peraturan perundang – undangan yang dianggap sudang usang dan tidak sesuai dengan perkembangan jaman (out of date). Dalam konteks pembangunan hukum termasuk pembaharuan hukum, maka hukum tidak boleh memberikan keadaan statis atau mempertahankan status quo dari suatu keadaan atau peristiwa. Hukum merupakan sarana yang penting dalam masyarakat sehingga harus dikembangkan agar dapat memberi ruang gerak bagi perubahan masyarakat. Tidak sebaliknya, mempertahankan status quo atau nilai – nilai yang tidak sesuai dengan perkembangan dinamika masyarakat.
Adanya hubungan timbal balik (causalitas) antara pembangunan hukum dan pembangunan masyarakat sebagai suatu fenomena dalam politik hukum sangat penting mendapat kajian dan penjabaran (uitwerking) secara mendalam agar tujuan pembentukkan hukum ideal yang dicita – citakan dapat tercapai. Hal tersebut didasarkan pada pendapat bahwa hukum merupakan sarana pembagaruan dan pembangunan masyarakat. Hukum sebagai alat / sarana pembaharuan masyarakat mirip dengan konsepsi law as a tool of social engineering yang di negara barat dipopulerkan oleh aliran Pragmatic Legal Realism.
Berbicara mengenai pembangunan hukum nasional dan hukum sebagai sarana pembangunan maka yang menjadi pemikiran fundamental (basic thinking) adalah bahwa hukum positif nasional (ius contitutum) yang akan dijadikan sebagai sarana pembaharuan masyarakat, justeru memerlukan pembaharuan dan pembangunan agar menjadi alat yang ideal untuk memperbaharui prilaku dan pola – pola interaksi kehidupan bermasyarakat di Indonesia. Hukum sebagai sarana / alat pembaharuan atau pembangunan masyarakat pada hakekatnya berorientasi pada anggapan – anggapan, yaitu; 1) adanya sikap tindak yang teratur (ajeg) dalam masyarakat atau adanya ketertiban dalam usaha pembangunan atau pembaharuan masyarakat dipandang sebagai seuatu yang bersifat mutlak (absolut), 2) hukum dalam arti kidah / norma dapat berfungsi sebagai sarana pengendali sosial (social control) kegiatan manusia / masyarakat dalam interaksi antara yang satu dengan yang lain.
Kaidah yang merupakan sumber hukum positif (staatsfundamentalnorm) dalam negara Indonesia adalah Pancasila. Berkaitan dengan itu Kaelan M.S. berpendapat bahwa, “Pancasila merupakan cita – cita hukum, kerangka berpikir, sumber nilai serta sumber arah penyusunan dan perubahan hukum positif di Indonesia. Dalam pengertian inilah maka Pancasila berfungsi sebagai paradigma hukum terutama dalam kaitannya dengan berbagai macam upaya perubahan hukum, atau Pancasila harus merupakan paradigma dalam suatu pembaharuan hukum. Materi – materi dalam suatu produk hukum atau perubahan hukum dapat senantiasa berubah dan diubah sesuai dengan perkembangan zaman, perkembangan iptek serta perkembangan aspirasi masyarakat namun sumber nilai (yaitu nilai – nilai Pancasila) harus senantiasa tetap. Hal ini mengingat kenyataan bahwa hukum itu tidak berada pada situasi vacum”[13].
Agar dapat dibentuk sistem hukum ideal sesuai dengan ekspektasi (yang dicita – citakan) masyarakat, maka dalam kaitannya dengan pembangunan hukum nasional , kiranya sangat relevan pendapat Purnadi Purbacaraka dan Soerjono Soekanto yang mengatakan bahwa sejak diundangkan peraturan perundang – undangan tersebut harus memenuhi beberapa syarat prosedural, yaitu:
- Syarat keterbukaan yaitu bahwa sidang – sidang di Dewan Perwakilan Rakyat dan perikelakukan anggota eksekutif dalam pembuatan undang – undang diumumkan, dengan harapan akan adanya tanggapan warga masyarakat yang berminat.
- Memberikan hak kepada warga masyarakat untuk mengajukan usul – usul (tertulis) kepada penguasa. Cara – caranya, antara lain:
- Penguasa setempat mengundang mereka yang berminat untuk menghindari suatu pembicaraan penting yang menyangkut suatu peraturan di bidang tertentu.
- Suatu Departemen mengundang organisasi – organisasi tertentu untuk memberikan usul – usul tentang rancangan undang – undang tertentu.
- Acara dengar pendapat (hearing) di Dewan Perwakilan rakyat.
- Pembentukan komisi – komisi penasehat yang terdiri dari tokoh – tokoh dan ahli – ahli terkemuka[14].
Sedangkan berkaitan dengan ide pembangunan hukum nasional untuk membentuk sistem hukum ideal sesuai yang dicita – citakan, menurut Soerjono Soekanto bahwa dalam rangka penyempurnaan pembinaan (pembangunan) hukum, maka paling sedikit perlu diperhatikan syarat – syarat sebagai berikut:
- Hukum tidak merupakan aturan – aturan yang bersifat ad hoc, akan tetapi merupakan aturan – aturan umum dan tetap;
- Hukum tadi harus diketahui dan jelas bagi para warga masyarakat yang kepentingan – kepentingannya diatur oleh hukum tersebut;
- Dihindari penerapan peraturan – peraturan yang bersifat retroaktif (= berlaku surut);
- Hukum tersebut harus dimengerti oleh umum;
- Tidak ada peraturan – peraturan yang saling bertentangan, baik mengenai satu bidang kehidupan tertentu, maupun untuk pelbagai bidang kehidupan (= konsisten);
- Pembentukan hukum harus memperhatikan kemampuan para warga masyarakat untuk mematuhi hukum tersebut;
- Perlu dihindarkan terlalu banyaknya dan seringnya frekwensi perubahan – perubahan pada hukum, oleh karena warga – warga masyarakat dapat kehilangan ukuran dan pedoman bagi kegiatan – kegiatannya;
- Adanya korelasi antara hukum dengan pelaksanaan atau penerapan hukum tersebut;
- Hukum mempunyai landasan yuridis, filosofis maupun sosiologis;
- Perlu diusahakan agar hukum tersebut diberi bentuk tertulis[15].
Disamping pendapat Soerjono Soekanto tersebut diatas, apabila dihubungkan dengan keanekaragaman (diversity) bangsa Indonesia yang terjewantah dalam kebudayaan, adat – istiadat, suku, agama dan kepecayaan, serta Indonesia sebagai negara kepulauan (archipelago) maka agar tercipta sistem hukum nasional yang ideal, menjadi sangat relevan apabila peranan politik hukum (rechtpolitiek) dalam pembangunan hukum nasional secara representatif harus didasarkan pada:
- Pencerminan dari kehendak untuk mewujudnyatakan cita – cita bangsa Indonesia sebagaimana ditegaskan dalam Pembukaan Undang – Undang Dasar i945 sebagai tertib hukum tertinggi, yaitu; melindungi segenap bangsa Indonesia dan seluruh tumpah darah Indonesia, dan untuk memajukan kesejahteraan umum, mencerdaskan kehidupan bangsa, dan ikut melaksanakan ketertiban dunia yang berdasarkan kemerdekaan, perdamaian abadi dan keadilan sosial.
- Orientasi landasan yuridis yang tetap berpedoman pada Pancasila sebagai sumber dari segala sumber hukum.
- Penetapan Bhineka Tunggal Ika sebagai asas hukum.
- Pengimplementasian asas non diskriminatif.
- Pengimplementasian nilai – nilai pembaharuan dan pelestarian (azas welvaarstaat) yang bersifat tahan lama (duurzaamheid);
Sesuai dengan semangat perjuangan, nilai – nilai kemanusiaan dan kebangsaan serta cita – cita – cita luhur bangsa Indonesia yang terkandung dalam Pembukaan Undang – Undang Dasar 1945 maka pembangunan hukum nasional hendaknya harus mencerminkan sifat; gotong royong, kekeluargaan, toleransi, anti kolonialisme, imperialisme dan feodalisme, serta berwawasan nusantara.
Mengenai pembangunan hukum yang berwawasan nusantara ini, Mochtar Kusumaatmadja mengatakan,”Membangun hukum berdasarkan wawasan nusantara berarti membangun hukum nasional dengan memadukan tujuan membangun hukum nasional yang satu atau menyatukan dengan memperhatikan keanekaragaman budaya dari penduduk yang mendiami suatu negara kepulauan. Pedoman yang dapat digunakan dalam membangun hukum nasional adalah untuk mengusahakan kesatuan apabila mungkin, membolehkan keanekaragaman bila keadaan menghendakinya, tetapi bagaimanapun juga mengutamakan kepastian (Unity whenever possible, diversity where desireable, but above all certainty)”[16].
- Faktor – faktor yang mempengaruhi peranan politik hukum pemerintah dalam pembangunan hukum nasional Indonesia.
Suatu fakta yang lazim bahwa kaidah – kaidah hukum dalam bentuk peraturan perundang – undangan yang dirancang, disusun dan diformulasikan oleh pemerintah adakalanya tidak sesuai dengan kepentingan – kepentingan dan nilai – nilai yang diharapkan oleh masyarakat sebagai suatu pedoman atau patokan interaksi sosial. Akibat ketidaksesuain tersebut, kadang – kadang timbul ketegangan dan gerakan – gerakan protes dari kelompok – kelompok masyarakat. Bahkan sering terjadi kecenderungan bahwa sebagai efek domino dari ketegangan dan gerakan – gerakan protes tersebut, terjadi gesekan atau konflik di kalangan masyarakat akar rumput (grass root).
Peranan politik hukum sebagai sarana transformasi struktur dan kultur masyarakat harus dilakukan dengan kebijakan – kebijakan yang terarah dan terukur. Menurut C.F.G. Sunaryati Hartono, ”Tranformasi struktur dan kultur masyarakat dapat ditempuh melalui berbagai cara dan tindakan sebagai berikut:
- Masyarakat dibiarkan berkembang secara alami tanpa ada campur tangan dari pihak manapun. Cara ini biasanya memakan waktu yang sangat lama, kadang – kadang sampai beberapa abad.
- Perubahan masyarakat secara mendadak dan cepat (revolusioner). Transformasi masyarakat melalui cara ini sering kali terjadi sebagai akibat peristiwa berdarah yang bertujuan menggantikan pimpinan negara ataupun asas – asas pemerintahan secara tiba – tiba. Kelemahan dari cara revolusioner ini ialah bahwa besar kemungkinannya masyarakat akan mengalami set back karena perubahan itu terjadi secara mendadak. Karena itu, diabad ke – 20 ini lebih banyak ditempuh cara yang lebih evolusioner, yaitu:
- Perubahan masyarakat yang direncanakan dan diarahkan supaya perubahan masyarakat terjadi secara bertahap dan wajar (evolusioner)”[17].
Sehungan dengan pendapat C.F.G. Sunaryati Hartono tersebut, peranan politik hukum pemerintah yang dimaksud dalam hal ini adalah kebijakan pemerintah untuk melakukan pembangunan hukum nasional dengan merencanakan dan mengarahkan perubahan masyarakat secara bertahap dan wajar (evolusioner). Pertimbangan konsepsi yang demikian didasarkan pada kultural masyarakat indonesia yang sangat variatif. Oleh karena, apabila perubahan masyarakat dibiarkan secara alami maka mungkin mengakibatkan terjadinya perkembangan ke arah yang tidak diinginkan atau bahkan dapat mengakibatkan kemunduran dan kegagalan dalam kebijakan pembangunan hukum nasional.
Pada azasnya prosedur pembentukan hukum nasional Indonesia menganut civil law system atau sistem eropa kontinental. Dalam hal yang demikian, kaidah – kaidah hukum dirumuskan dan diformulasikan dalam bentuk peraturan perundang – undangan terlebih dahulu oleh para pembentuk undang – undang (law makers) baru kemudian diberlakukan dalam masyarakat setelah dimuat dalam Lembaran Negara dan diumumkan melalui Berita Negara. Hal tersebut sangat kontradiktif dengan common law system atau sistem anglo saxon, dimana hukum dibuat atas dasar kebiasaan – kebiasaan dan pola – pola pergaulan hidup masyarakat sehari – hari.
Dalam hal ini, oleh karena tata cara pembentukan hukum atau peraturan perundang – undangan Indonesia menganut civil law system atau sistem eropa kontinental maka dalam proses pembentukan hukum tersebut terdapat faktor – faktor yang dapat mempengaruhi politik hukum pemerintah untuk membentuk hukum yang dicita – citakan (ius constituendum) yang ideal bagi masyarakat Indonesia. Faktor – faktor tersebut dapat diidentifikasi antara lain, adanya penetrasi kepentingan negara – negara maju, kepentingan politik pemerintah, dan kebudayaan masyarakat. Kenyataan tersebut menyebabkan kebijakan pembangunan hukum nasional untuk membentuk sistem hukum ideal yang dicita – citakan tidak sesuai dengan harapan masyarakat.
- Penetrasi kepentingan negara – negara maju;
Harus diakui bahwa pengaruh negara – negara asing terutama negara – negara maju dapat mendominasi peranan politik hukum pemerintah dalam membangun hukum nasional Indonesia. Penetrasi (pressure) tersebut biasanya dikaitkan dengan bantuan di bidang ekonomi, keuangan (fiskal), peralatan tempur dan kerjasama militer dan sebagainya. Dalam hal demikian tersebut, terjadi tawar – menawar (bargaining position) antara pemerintah Indonesia dengan pemerintah negara maju yang menyangkut kebijakan bidang hukum yang akan diberlakukan di Indonesia.
Kondisi – kondisi yang ditentukan sejak Konsensus Washington (1980) telah mendorong perubahan berbagai kebijakan di seluruh negara termasuk prilaku pejabat publik di negara berkembang. Negara berkembang seperti Indonesia berusaha mematuhi dan melaksanakan konsensus tersebut bukan hanya di bidang perdagangan internasional tetapi juga dalam sektor lainnya seperti keamanan, ketertiban dan penegakkan hukum (kamtibgakkum). Prilaku negara – negara maju telah memasuki bidang kamtibgakkum melalui berbagai prosedur dalam pembentukan peraturan perundang – undangan nasional di negara – negara berkembang termasuk Indonesia. Masih jelas dalam ingatan kita ketika awal reformasi 1998, IMF telah memaksakan pemberlakuan Undang – Undang Kepailitan dalam versi IMF.
Prilaku hipokrit negara – negara maju yang telah memasuki bidang seperti keamanan, ketertiban dan penegakkan hukum (kamtibgakkum) melalui berbagai prosedur dalam pembentukan peraturan perundang – undangan nasional, jelas merupakan bentuk penetrasi untuk memaksakan kepentingan – kepentingan tertentu. Sikap hipokrit negara – negara maju sudah terbukti dalam pembentukan undang – undang tindak pidana suap (bribery) dan tindak pidana pencucian uang. Oleh karena itu, peranan politik hukum pemerintah dalam menerbitkan produk perundang – undangan yang berkaitan dengan kesejahteraan rakyat harus dikaji secara mendalam dari berbagai aspek. Harus dilihat aspek kemanfaatan terbesar untuk meningkatkan kesejahteraan rakyat dengan konsep analisis ekonomi terhadap pembentukan hukum (utilitarianisme). Konsep ekonomi dalam pembentukan hukum (undang – undang) bertumpu pada tiga prinsip yaitu maksimalisasi, keseimbangan dan efisiensi (Cooter dan Ullen).
- Kepentingan politik pemerintah;
Pemerintah sebagai pemegang kekuasaan sering menggunakan hegemoninya dengan cara mempengaruhi rakyat / masyarakat dan pihak – pihak lain menurut kehendak dan tujuan politiknya. Pemerintah sebagai pemegang kekuasaan negara merupakan pihak yang memerintah (The ruler), sedangkan rakyat / masyarakat yang berada dalam lingkup kekuasaan pemerintah merupakan pihak yang diperintah (The ruled). “Kekuasaan adalah kemampuan seseorang atau sekelompok manusia untuk mempengaruhi tingkah lakunya seseorang atau kelompok lain sedemikian rupa sehingga tingkah laku itu menjadi sesuai dengan keinginan dan tujuan dari orang yang mempunyai kekuasaan itu”[18]. Sedangkan Robert M. MacIver memberikan batasan makna mengenai kekuasaan, yaitu “Kekuasaan sosial adalah kemampuan untuk mengendalikan tingkah laku orang lain, baik secara langsung dengan memberikan perintah, maupun secara tidak langsung dengan mempergunakan segala alat dan cara yang tersedia (Social power is the capacity to control the behavior of others either directly by fiat or indirectly by the manipulation of available means)”[19].
Pengambilan keputusan (decision making) dalam menjalankan peranan politik hukum pemerintah untuk membangun hukum nasional sering kali dipengaruhi kepentingan – kepentingan yang diusung / diajukan oleh partai politik tertentu. Terutama kepentingan – kepentingan yang diusung atau diajukan oleh kelompok – kelompok penekan (preassure group) yang tergabung dalam koalisi partai. Kepentingan politik pemerintah sering kali dijadikan alasan dan pertimbangan untuk membentuk suatu peraturan perundang – undangan. Tidak jarang kepentingan politik tersebut bertentangan dengan syarat – syarat ideal yang harus dipenuhi untuk sahnya keberlakuan suatu hukum atau peraturan perundang – undangan, yaitu keberlakuan secara yuridis, keberlakuan secara filosofis dan keberlakuan secara sosiologis. Padahal Soerjono Soekanto secara elementer mengatakan, “Masyarakat luas secara sadar maupun tidak sadar akan beranggapan, bahwa hukum akan berwibawa, apabila hukum tadi berlaku secara yuridis, filosofis dan sosiologis. Pertama – tama artinya adalah, bahwa hukum tadi diperlakukan sesuai dengan syarat – syarat yuridis. Kedua hal itu berarti, bahwa hukum tadi adalah sesuai dengan pandangan hidup atau falsafah hidup dari masyarakat yang bersangkutan. Dan yang terakhir, hukum tadi memang secara nyata dapat diperlakukan dan benar – benar berlaku dalam masyarakat” [20].
Sebagai contoh konkrit adanya kepentingan politik pemerintah dalam pembentukan peraturan perundang – undangan yaitu dengan diundangkannya Peraturan Bersama Menteri Dalam Negeri Nomor 8 Tahun 2006 dan Menteri Agama Nomor 9 Tahun 2006 Tentang Pedoman Pelaksanaan Tugas Kepala Daerah / Wakil Kepala Daerah Dalam Pemeliharaan Kerukunan Umat Beragama, Pemberdayaan Forum Kerukunan Umat Beragama, dan Pendirian Rumah Ibadat. Substansi / materi dari Peraturan Bersama Menteri tersebut sangat tidak sesuai dengan nilai – nilai hukum yang terkandung di dalam Pembukaan Undang – Undang Dasar 1945 sebagai tertib hukum yang tertinggi, jiwa dan semangat Pancasila sebagai sumber dari segala sumber hukum, Batang Tubuh Undang – Undang Dasar 1945 sebagai norma dasar (grundnorm) dan Undang – Undang Nomor 39 Tahun 1999 Tentang Hak Asasi Manusia.
Peraturan Bersama Menteri Dalam Negeri Nomor 8 Tahun 2006 dan Menteri Agama Nomor 9 Tahun 2006 tersebut tidak mempunyai dasar keberlakuan secara yuridis oleh karena bertentangan denga kaidah – kaidah hukum yang lebih tinggi tingkatannya. Dalam Undang – Undang Dasar 1945 dan Undang – Undang Nomor 39 Tahun 1999 Tentang Hak Asasi Manusia dinyatakan secara tegas bahwa hak untuk memeluk agama dan beribadat sesuai dengan agama dan keyakinan masing – masing individu dijamin dan dilindungi oleh undang – undang, akan tetapi dalam Peraturan Bersama Menteri tersebut asas kebebasan beragama dan beribadat menjadi absurd dan tidak jelas. Selain itu, Peraturan Bersama Menteri tersebut juga tidak mempunyai keberlakuan secara sosiologis karena tidak sesuai dengan harapan – harapan kelompok masyarakat tertentu dan dalam praktek pemberlakuannya mendapat perlawanan dan protes yang keras dari sebagian masyarakat Indonesia. Secara filosofis, Peraturan Bersama Menteri tersebut juga dapat mengganggu integritas, persatuan dan kesatuan bangsa Indonesia, serta dapat menjadi pemicu konflik horisontal di kalangan masyarakat Indonesia.
Selain itu, contoh klasik yang menarik perhatian adanya intervensi peranan politik hukum pemerintah di bidang yudikatif berkaitan dengan putusan badan peradilan adalah Putusan Mahkamah Agung yang telah menerima permintaan Peninjauan Kembali yang diajukan oleh Jaksa Penuntut Umum dalam beberapa kasus yang telah ada, seperti putusan kasus Muchtar Pakpahan, Kasus Ram Gulumal alias V. Ram (The Gandhi Memorial School),kasus Soetiyawati maupun kasus Pollycarpus Budihari Priyanto, yang dapat dianggap sebagai kontroversi. Sikap Mahkamah Agung tersebut dianggap dianggap tidak melaksanakan aturan formal atau telah bertindak melebihi ketentuan Hukum Acara Pidana mengenai hal pengaturan permintaan Peninjauan Pembali terhadap putusan yang telah memperoleh kekuatan hukum tetap. Mahkamah Agung disinyalir telah melanggar ketentuan faham positivisme atau analytical positivism atau rechtsdogmatiek yang cenderung melihat bahwa hukum sebagai suatu yang otonom, yang bertugas untuk mewujudkan kepastian hukum, terutama mengenai ketentuan Peninjauan Kembali yang diatur dalam Kitab Undang – Undang Hukum Acara Pidana (KUHAP). Dengan sikap ambivalence dari Mahkamah Agung tersebut masyarakat menduga adanya peranan politik hukum pemerintah yang mengintervensi proses peradilan dalam perkara – perkara tersebut diatas.
- Kebudayaan masyarakat;
Keadaan yang sangat mengkhawatirkan dalam kehidupan berbangsa dan bernegara di Indonesia dewasa ini adalah terdapatnya keanekaragaman hukum yang berlaku di Indonesia yang didasarkan pada pertimbangan – pertimbangan politik hukum pemerintah terhadap daerah – daerah tertentu. Terdapat beberapa peraturan perundang – undangan yang memberi kesan perlakuan istimewa / khusus terhadap daerah – daerah tertentu di Indonesia, seperti; Undang – Undang Nomor 11 Tahun 2006 Tentang Pemerintahan Aceh, Undang – Undang Nomor 18 Tahun 2001 Otonomi Khusus Bagi Provinsi Daerah Istimewa Aceh Sebagai Provinsi Nanggroe Aceh Darussalam, Undang – Undang Nomor 21 Tahun 2001 Tentang Otonomi Khusus Bagi Provinsi Papua, Peraturan Pengganti Undang – Undang Nomor 1 Tahun 2008 Tentang Perubahan Atas Undang – Undang Nomor 21 Tahun 2001 Tentang Otonomi Khusus Bagi Provinsi Papua, Peraturan Pemerintah Nomor 54 Tahun 2004 Tentang Majelis Rakyat Papua. hal ini suatu saat akan dapat menimbulkan problematika serius, oleh karena bukan tidak mustahil daerah – daerah lain di Indonesia pada suatu saat menuntut perlakuan yang sama dari pemerintah. Disamping itu, ada pula kemungkinan bahwa daerah – daerah yang telah diberikan perlakukan istimewa / khusus tersebut, suatu saat menuntut perlakuan yang lebih dari pemerintah pusat. Semua gejala – gejala tersebut pada akhirnya akan mempengaruhi bahkan menjadi kendala bagi penerapan azas unifikasi keberlakuan suatu peraturan perundang – undangan di seluruh wilayah Negara Kesatuan Republik Indonesia.
Memang, kebudayaan dan asal – usul sejarah suatu daerah harus dipertimbangkan sebagai bagian dari politik hukum pemerintah dalam membangun hukum nasional. Akan tetapi, sebaiknya pemerintah dalam melaksanakan peranan politik hukumnya, membangun hukum nasional yang dapat menampung kepentingan – kepentingan semua masyarakat tanpa memandang perbedaan antara belakang daerah dan perbedaan antara golongan suku. Apabila konsep latar belakang daerah dan perbedaan golongan suku dijadikan pertimbangan mendasar oleh pemerintah dalam menjalankan peranan politik hukumnya untuk membangun hukum nasional, hal itu berarti bangsa Indonesia mengalami kemunduran (set back) dalam pembangunan hukum nasional.
Latar belakang kebudayaan, asal – usul sejarah suatu daerah dan perbedaan golongan suku (ethnic) tetap harus diperhatikan / dipertimbangkan pemerintah dalam politik hukumnya, tetapi hal tersebut harus mengalami asimilasi bentuk – bentuk hukum baru yang selaras dengan perubahan dan perkembangan masyarakat untuk mengarah kepada tercapainya sutau tata hukum yang berkeadilan dan dapat diterima oleh kelompok masyarakat di luar ruang lingkup batas – batas daerah tersebut. Justeru peranan politik hukum pemerintah jangan terjebak pada pola – pola primordial sehingga tidak dapat membentuk sistem hukum ideal yang dicita – citakan. Sebaliknya, akan sangat berbahaya apabila dengan alasan – alasan subjektif mempertimbangkan kebudayaan, asal – usul sejarah suatu daerah dan perbedaan golongan suku, akhirnya pemerintah melakukan kekeliruan dengan membentuk sistem hukum nasional yang bersifat diskriminatif, mengandung nuansa provokatif, tidak mengakomodir cita – cita bangsa Indonesia sebagaimana dirumuskan dalam Pembukaan Undang – Undang Dasar 1945, atau bahkan bertentangan dengan prinsip – prinsip dasar dan asas – asas umum dalam hukum yang berlaku secara universal.
Sangat ironi apabila dengan alasan pertimbangan latar belakang kebudayaan, asal – usul sejarah suatu daerah dan perbedaan golongan suku masyarakat Indonesia, pada akhirnya peranan politik hukum pemerintah dalam membangun hukum nasional indonesia bertentangan dengan ketentuan – ketentuan dalam Universal Declaration of Human Rights, padahal negara Indonesia telah menjadi negara peserta yang turut meratifikasi Universal Declaration of Human Rights tersebut. Hak – hak yang diadopsi dalam piagam tersebut yang harus dimasukkan dalam pertimbangan politik hukum pemerintah untuk membangun hukum nasional, antara lain; hak hidup, hak kebebasan, hak keamanan pribadi, kebebasan berpikir, kebebasan beragama, kebebasan berbicara, kebebasan dari rasa takut dan kesengsaraan dan sebagainya. Negara Indonesia juga telah menjadi negara peserta yang turut meratifikasi Internasional Bill of Human Rights, yang meliputi: 1) Universal Declaration of Human Rights, 2) Internasional Covenant on Economic, Social, and Cultural Rights, 3) International Covenant on Civil and Political Rights and Optional Protocol for The Covenant on Civil and Political rights.
BAB III
PENUTUP
- KESIMPULAN
– Orientasi pembangunan hukum harus tetap mencerminkan / merefleksikan kehendak untuk terus menerus meningkatkan kesejahteraan dan kemakmuran rakyat Indonesia secara adil dan merata, serta mengembangkan kehidupan masyarakat dan penyelenggaraan negara yang maju dan demokratis berdasarkan Pancasila dan Undang – Undang Dasar 1945.
– Pedoman politik pemerintah Hindia Belanda di Indonesia pada waktu dahulu didasarkan pada Wet op de staatsinrichting van Ned – Indie, khususnya yang termaktub dalam pasal 131 jo. pasal 163 Indische Staatsregeling Stb. 1854 (sebelum itu pasal 75 Regeringsreglement).
– Landasan atau dasar – dasar pokok kebijakan hukum nasional pada era Orde Baru, tercantum dalam Ketetapan Majelis Permusyawaratan Rakyat Republik Indonesia (TAP MPR RI) IV / 1973 Tentang Garis – Garis Besar Haluan Negara (GBHN), serta juga dirumuskan dalam REPELITA II BAB 27 Tentang Hukum.
– Pada era Reformasi sekarang ini, sama sekali tidak ada konsep yang jelas mengenai pedoman arah dan tujuan pembangunan hukum nasional. Bahkan terdapat kecenderungan adanya peraturan perundang – undangan produk lembaga eksekutif (pemerintah) dan lembaga legeslatif (Dewan Perwakilan Rakyat) yang tidak mencerminkan semangat reflormasi dan nilai – nilai demokrasi yang bersifat universal.
– Undang – Undang Nomor 25 Tahun 2000 Tentang Pembangunan Hukum Nasional (Propenas) Tahun 2000 – 2004, sebagai penjabaran dari Garis – Garis Besar Haluan Negara (GBHN) 1999 – 2004, sama sekali tidak memberikan arah dan tujuan yang jelas mengenai pembangunan hukum nasional. Propenas hanya memberi gambaran secara umum mengenai upaya mewujudkan Supremasi Hukum dan Pemerintahan yang Baik.
– Agar program pembangunan hukum nasional Indonesia dapat mencapai sasaran maka politik hukum pemerintah harus memperhatikan stabilitas dalam segala bidang yang berhubungan dengan kepentingan nasional dan internasional yang diselaraskan dengan unsur – unsur agama, kebudayaan dan adat – istiadat masyarakat Indonesia, sehingga kepentingan – kepentingan pokok warga masyarakat terpenuhi.
– Peranan politik hukum pemerintah untuk membangun hukum nasional yang ideal sesuai dengan ekspektasi masyarakat sangat penting dan mendesak untuk segera diimplementasikan karena sampai saat ini masih banyak peraturan perundang – undangan yang dirasakan sudah tidak sesuai dengan perkembangan jaman, dan terdapat pula peraturan perundang – undangan yang keberlakukannya bertentangan secara yuridis, filosofis, dan sosiologis.
- SARAN – SARAN
– Peranan politik hukum pemerintah dalam pembangunan hukum nasional harus diarahkan dan dapat mengakomodir jiwa, semangat dan nilai – nilai luhur dari Pancasila sebagai sumber dari segala sumber hukum, serta harus b erorientasi pada cita – cita bangsa Indonesia yang termaktub dalam Pembukaan Undang – Undang Dasar 1945.
– Pembangunan hukum nasional yang berkaitan dengan pembentukan peraturan perundang – undangan harus bersifat non – diskriminatif, mempertimbangkan hak – hak mendasar (fundamental rights) serta kepentingan – kepentingan seluruh lapisan masyarakat Indonesia.
– Konsentrasi peranan politik hukum pemerintah dewasa ini sebaiknya lebih diarahkan kepada pembangunan hukum nasional yang berwawasan nusantara, menumbuh-kembangkan semangat kebangsaan (nasionalisme), mencegah timbulnya konflik horosontal dan bahaya disintegrasi bangsa.
________________________________________________________________________
DAFTAR KEPUSTAKAAN
(Bibliografi)
Sunaryati Hartono, C.F.G. Bhineka Tunggal Ika sebagai Asas Hukum bagi Pembangunan Hukum Nasional. Bandung (Penerbit:PT. Citra Aditya Bakti) Tahun 2006.
Abdul Manan, H. Bahan Kuliah Politik Hukum. Jakarta (Universitas Jayabaya) Tahun 2012.
M.S., Kaelan. Pendidikan Pancasila. Yogyakarta (Penerbit:Paradigma) Tahun 2008.
Ketetapan Majelis Permusyawaratan Rakyat Republik Indonesia (TAP MPR – RI ) IV / 1973 Tentang Garis – Garis Besar Haluan Negara.
Budiardjo, Miriam. Dasar – Dasar Ilmu Politik. Jakarta (Penerbit: PT. Gramedia Pustaka Utama) Tahun 2000.
Kusumaatmadja, Mochtar. Konsep – Konsep Hukum Dalam Pembangunan. Bandung (Penerbit: PT. Alumni) Tahun 2006.
Purbacaraka, Purnadi, Soerjono Soekanto. Aneka Cara Pembedaan Hukum. Bandung (Penerbit: Alumni) Tahun 1980.
Purbacaraka, Purnadi, Soerjono Soekanto. Perundang – Undangan dan Yurisprudensi. Bandung (Penerbit:PT. Citra Aditya Bakti) Tahun 1993.
Purbacaraka, Purnadi, Soerjono Soekanto. Sendi – Sendi Ilmu Hukum dan Tata Hukum. Bandung (Penerbit: Alumni) Tahun 1979.
Soekanto, Soerjono. Kegunaan Sosiologi Hukum Bagi Kalangan Hukum. Bandung (Penerbit: Alumni) Tahun 1979
———–. Pokok – Pokok Sosiologi Hukum.Jakarta (Penerbit: CV. Rajawali) Tahun 1980.
Subekti. Pokok – Pokok Hukum Perdata. Jakarta (Penerbit: PT. Intermasa) Tahun 1994.
___________________________________________________________________
[1] Subekti. Pokok – Pokok Hukum Perdata. Jakarta (Penerbit: PT. Intermasa, 1994) halaman 11 – 12.
[2] TAP MPR – RI IV / 1973 Tentang Garis – Garis Besar Haluan Negara.
[3] Soerjono Soekanto. Kegunaan Sosiologi Hukum Bagi Kalangan Hukum. Bandung (Penerbit: Alumni, 1979) Halaman 26.
[4] Soerjono Soekanto. Pokok – Pokok Sosiologi Hukum.Jakarta (Penerbit: CV. Rajawali, 1980) halaman 45.
[5] Soerjono Soekanto. Ibid. Halaman 99.
[6] H. Abdul Manan. Bahan Kuliah Politik Hukum. Jakarta (Universitas Jayabaya, 2012) Halaman 23,
[7] Soerjono Soekanto. Op cit. Halaman 133 – 134.
[8] Purnadi Purbacaraka, Soerjono Soekanto. Aneka Cara Pembedaan Hukum. Bandung (Penerbit: Alumni, 1980) Halaman 5.
[9] Purnadi Purbacaraka, Soerjono Soekanto.. Ibid. Halaman 6.
[10] Purnadi Purbacaraka, Soerjono Soekanto.. Ibid. Halaman 6 – 7.
[11] Purnadi Purbacaraka, Soerjono Soekanto. Sendi – Sendi Ilmu Hukum dan Tata Hukum. Bandung (Penerbit: Alumni, 1979) Halaman 28.
[12] Purnadi Purbacaraka, Soerjono Soekanto. Ibid. Halaman 28.
[13] Kaelan. M.S. Pendidikan Pancasila. Yogyakarta (Penerbit:Paradigma, 2008) Halaman 244.
[14] Purnadi Purbacaraka Soerjono Soekanto. Perundang – Undangan dan Yurisprudensi. Bandung (Penerbit:PT. Citra Aditya Bakti, 1993) Halaman 11 – 12.
[15] Soerjono Soekanto. Kegunaan Sosiologi Hukum Bagi Kalangan Hukum. Bandung (Penerbit: Alumni, 1979) Halaman 27.
[16] Mochtar Kusumaatmadja. Konsep – Konsep Hukum Dalam Pembangunan. Bandung (Penerbit: PT. Alumni, 2006) Halaman 188.
[17] C.F.G. Sunaryati Hartono. Bhineka Tunggal Ika sebagai Asas Hukum bagi Pembangunan Hukum Nasional. Bandung (Penerbit:PT. Citra Aditya Bakti, 2006) Halaman 26 – 27.
[18] Miriam Budiardjo. Dasar – Dasar Ilmu Politik. Jakarta (Penerbit: PT. Gramedia Pustaka Utama, 2000) Halaman 35.
[19] Miriam Budiardjo. Ibid. Halaman 35.
[20] Soerjono Soekanto. Kegunaan Sosiologi Hukum Bagi Kalangan Hukum. Bandung (Penerbit: Alumni, 1979) Halaman
Writer and Copy Right: Dr. (Cand.) Appe Hamonangan Hutauruk, SH., MH. Lecturer, Advocate and Legal Consultant Handphone: 0818964919, 085959597919, 081213502002
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