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REKONSTRUKSI KEWENANGAN PRESIDEN DALAM PEMBENTUKAN UNDANG-UNDANG SEBAGAI UPAYA PENGUATAN SISTEM PRESIDENSIAL INDONESIA Farida

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REKONSTRUKSI KEWENANGAN PRESIDEN DALAM PEMBENTUKAN UNDANG-UNDANG SEBAGAI UPAYA PENGUATAN SISTEM PRESIDENSIAL INDONESIA Farida REKONSTRUKSI KEWENANGAN PRESIDEN DALAM PEMBENTUKAN UNDANG-UNDANG SEBAGAI UPAYA PENGUATAN SISTEM PRESIDENSIAL INDONESIA Farida Azzahra Fakultas Hukum Universitas Indonesia Email: [email protected] Naskah diterima: 18/7/2020, direvisi: 19/4/2021, disetujui: 22/4/2021 Abstract One of the important Indonesia’s reform agenda is the amendement of 1945 Constitution of The Republic of Indonesia (UUD NRI 1945). This change requires the strengthening of a presidential system marked by a shift in legislation function through strengthening the function of the House of Representatives in law making process, where previously the power to form laws was in the hands of the President in accordance with the mandate of Article 5 Paragraph (1 ) UUD NRI 1945. However, in practice, the shift in the function of legislation after the changes to UUD NRI 1945 has not yet given full authority to the Parliament. This evidenced by the involvement of the President in the deliberation process of the bill to obtain mutual agreement as stipulated in Article 20 section (2) and Article 20 section (3)of the UUD NRI 1945, and this is not in accordance with the purpose of changing the UUD NRI 1945 in terms of strengthening the presidential system and reinforce the chenck and balances principal. Therefore, this research will seek ideas for the concept of reconstructing the ideal presidential legislative authority by making comparisons between five countries that also adhere to a presidential system such as the United States, Bolivia, Brazil, the Philippines, and Turkey. The results showed that the President’s authority was limited in the matter of proposing certain bills, reviewing, and ratification. This comparison is expected to be a reference in reconstructing the legislative authority of the President in Indonesia in order to strengthen the presidential government system. Keywords: House of Representative, Law Making Process, President, Presidential System Abstrak Salah satu agenda penting reformasi ialah Perubahan Undang-Undang Dasar Negara Republik Indonesia 1945 (UUD NRI). Perubahan ini menghendaki adanya penguatan sistem pemerintahan presidensial yang ditandai dengan adanya pergeseran fungsi legislasi melalui penguatan fungsi Dewan Perwakilan Rakyat (DPR) dalam membentuk undang-undang, dimana sebelumnya kekuasaan untuk membentuk undang- undang berada di tangan Presiden sesuai dengan amanat Pasal 5 Ayat (1) UUD NRI 1945. Namun, pada praktiknya, pergeseran fungsi legislasi pasca perubahan UUD NRI 1945 belum memberi wewenang seutuhnya kepada DPR untuk membuat undang-undang. Hal ini dibuktikan dengan masih terlibatnya Presiden di dalam proses pembahasan Rancangan Undang-Undang (RUU) untuk mendapat persetujuan bersama sebagaimana ketentuan dalam Pasal 20 Ayat (2) dan Pasal 20 Ayat (3) UUD NRI 1945. Adanya keterlibatan Presiden dalam proses pembahasan RUU tersebut bahwasanya merupakan corak dari sistem pemerintahan parlementer. Untuk itu, penelitian ini akan mencari gagasan konsep rekonstruksi kewenanganPresiden dalam pembentukan undang-undang yang ideal dengan melakukan perbandingan pada lima negara yang juga menganut sistem presidensial seperti: Amerika Serikat, Bolivia, Brazil, Filipina, serta Turki. Hasil penelitian menunjukan bahwa kewenangan Presiden terbatas dalam hal pengusulan RUU tertentu, peninjauan, dan juga pengesahan. Perbandingan ini diharapkan dapat menjadi acuan dalam merekonstruksi kewenangan Presiden dalam pembentukan undang-undang di Indonesia guna memperkuat sistem pemerintahan presidensial. Kata Kunci: Presiden, Dewan Perwakilan Rakyat, Pembentukan Undang-Undang, Sistem Presidensial Jurnal LEGISLASI INDONESIA Vol 18 No. 2 - Juni 2021: 153-167 A. Pendahuluan memperkukuh sistem pemerintahan yang stabil dan demokratis yang dianut dengan berpedoman Sejak lahirnya konstitusi hingga pada akhirnya pada prinsip checks and balances antar lembaga mengalami Perubahan Pertama, Kedua, Ketiga, negara.4 Salah satu materi dalam UUD NRI 1945 dan Keempat, telah terjadi perubahan format yang kemudian mengalami perubahan mendasar kelembagaan yang juga berdampak pada pergeseran adalah sistem penyelenggaraan kekuasaan kekuasaan dalam struktur ketatanegaraan Indonesia. negara.5 Perubahan yang dilakukan didasarkan Terjadinya perubahan konstitusi didasari oleh pada penegasan prinsip negara hukum, dan sistem desakan reformasi, hingga akhirnya Majelis konstitusional (constitutional system), penataan Permusyawaratan rakyat (MPR) menggelar Sidang kembali lembaga-lembaga negara melalui redefinisi Umum untuk melakukan perubahan konstitusi. fungsi, penghapusan beberapa lembaga negara, Adapun salah satu tujuan yang hendak dicapai pembentukan beberapa lembaga negara yang baru, dari adanya perubahan Undang-Undang Dasar hingga penguatan sistem saling kontrol dan saling ialah melakukan penyempurnaan aturan dasar mengimbangi (checks and balances system) antar penyelenggaraan negara guna menciptakan stabilitas lembaga negara.6 Adapun penataan lembaga negara dan pemerintahan yang demokratis, yang diwujudkan melalui redefinisi fungsi telah merubah pelaksanaan melalui pembagian kekuasaan yang lebih logis dna fungsi legislasi (fungsi membentuk undang-undang) tegas, serta mempertegas prinsip checks and balances dari Presiden kepada DPR. antar lembaga negara.1 Pergeseran fungsi legislasi ini dibuktikan Sebagai upaya mempersiapkan perubahan UUD dengan adanya perubahan pada Pasal 5 Ayat (1) NRI 1945, dibentuklah Badan Pekerja MPR yang 1945 dan Pasal 20 Ayat (1) UUD NRI 1945. Sebelum terdiri atas Panitia Ad Hoc III (1999) dan Panitia Ad adanya perubahan, konstitusi memberi ruang Hoc I (1999-2002) yang terdiri dari berbagai fraksi konstitusional yang sangat besar kepada Presiden di MPR.2 Mulai dari proses Perubahan Pertama untuk turut menjalankan kekuasaan legislasi hingga Perubahan Keempat, MPR membentuk lima di samping menjalankan tugas sebagai lembaga kesepakatan dasar berkaitan dengan perubahan eksekutif. Kekuasaan eksekutif dan legislatif yang yang mengemuka sejak pembentukan Panitia Ad terkonsentrasi pada Presiden tersebut merupakan Hoc III pada tahun 1999 dan ditegaskan kembali bukti cerminan kuatnya kedudukan Presiden. Hal dalam Panitia Ad Hoc I Badan Pekerja MPR. Isi dari ini terlihat dari pengaturan Pasal 5 Ayat (1) UUD kesepakatan dasar tersebut yaitu:3 (1) tidak mengubah 1945, yang menyatakan bahwa “Presiden memegang pembukaan UUD 1945, (2) tetap mempertahankan kekuasaan membentuk undang-undang dengan Negara Kesatuan Republik Indonesia (NKRI), (3) persetujuan Dewan Perwakilan Rakyat”. memperkuat sistem pemerintahan presidensial, (4) Sebelum perubahan UUD NRI 1945, terdapat penjelasan UUD 1945 yang memuat hal-hal normatif empat bentuk keikutsertaan Presiden dalam akan dimasukan dalam pasal-pasal (Batang Tubuh proses pembentukan undang-undang, yakni: (i) UUD 1945), serta (5) melakukan perubahan secara perancangan, pembahasan, (iii) menolak pengesahan, addendum. Adapun terkait dengan penguatan serta (iv) pemuatan dalam Lembaran Negara dan sistem presidensial, hal ini dimaksudkan untuk Tambahan Lembaran Negara.7 Berdasarkan bentuk 1. Marwan Mas, 2018, Hukum Konstitusi dan Kelembagaan Negara, Depok: Raja Grafindo Persada, hlm.23. 2. Mahkamah Konstitusi Republik Indonesia, 2010, Naskah Komphrensif Perubahan Undang-Undang Dasar Negara Republik Indonesia Tahun 1945 Edisi Revisi, Jakarta: Sekretariat Jenderal dan Kepaniteraan Mahkamah Konstitusi, hlm.2-3. 3. Ibid. 4. Aidul Fitriciada, 2006, Evaluasi Proses Amandemen UUD 1945: Dari Demokratisasi Ke Perubahan Sistem, Jurnal Ilmu Hukum Volume 9 Nomor 2, hlm.158. 5. Daniel Soesilo dan Mohammad Roesli, 2018, Konsepsi Kekuasaan Legislasi Presiden Dalam Undang-Undang Dasar 1945, Jurnal Mimbar Yustitia Volume 2 Nomor 2, hlm.159. 6. Ibid. 7. Bagir Manan, 1999, Lembaga Kepresidenan, Yogyakarta: Gama Media, hlm. 136. 154 Rekontruksi Kewenangan Presiden dalam Pembentukan Undang-Undang sebagai Upaya... (Farida Azzahra) keikutsertaan Presiden tersebut, dapat dikatakan membuktikan bahwa DPR selaku cabang kekuasaan bahwa persetujuan tidak menjadi wewenang Presiden legislatif tidak lebih kuat dibanding Presiden dalam dalam proses pembentukan undang-undang. Namun, hal pelaksaan pembentukan undang-undang. pasca perubahan konstitusi, persetujuan terhadap Adapun terhadap hal tersebut Jimmly Asshiddiqie suatu RUU menjadi otoritas ganda DPR dan Presiden berpendapat bahwa telah terjadi penggabungan sebagaimana yang diatur dalam Pasal 20 Ayat (2) fungsi legislasi (joint function) antara Presiden dan UUD NRI 1945. DPR.11 Padahal, sistem pemerintahan presidensial Adanya perubahan pertama UUD NRI 1945 menghendaki adanya pemisahan kekuasaan yang ini bahwasnya memang memberi ruang kepada tegas antara eksekutif dan legislatif, dengan memberi DPR selalu lembaga dalam memegang kekuasaan wewenang penuh kepada DPR dalam hal pelaksanaan membentuk undang-undang. Adapun Jimly fungsi legislasi.12 Asshiddiqie berpendapat bahwa perubahan terhadap Kecenderungan corak parlementer dalam hal Pasal 5 Ayat (1) dan Pasal 20 Ayat (1) ini telah proses pembentukan undang-undang bahwasanya membuktikan adanya pergeseran kekuasaan yang juga membuktikan bahwa pergeseran fungsi legislasi substantif.8 Namun, meski telah terjadi perubahan dan kepada DPR masihlah tidak utuh. Sebagaimana telah pergeseran fungsi legislasi pasca perubahan pertama dijelaskan sebelumnya, bahwa sebelum perubahan UUD NRI 1945, kewenangan untuk membentuk Undang-Undang Dasar Presiden terlibat dalam undang-undang tidak sepenuhnya berada di tangan proses pembentukan undang-undang mulai dari DPR. Dalam hal
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