LEGISLASI DALAM PERSPEKTIF DEMOKRASI: ANALISIS INTERAKSI POLITIK DAN HUKUM DALAM PROSES PEMBENTUKAN PERATURAN DAERAH DI JAWA TIMUR

Abstract

Legislasi Perda merupakan proses yang sangat kompleks. Hal ini tampak meski telah ada aturan hukum, namun di dalamnya sarat oleh interaksi politik. Dengan aturan hukum terkait legislasi dan konfigurasi politik yang relatif demokratis, seharusnya legislasi di daerah akan melahirkan Perda yang aspiratif. Faktanya, banyak terbit Perda di Jawa Timur yang bermasalah (tidak aspiratif) di era otonomi seluas-luasnya ini. Oleh karenanya menjadi penting untuk dilakukan studi tentang: (1) interaksi politik dalam legislasi Perda di Jatim ditinjau dari perspektif demokrasi, dan (2) menemukan konsep ideal legislasi Perda dalam perspektif demokrasi. Agar studi ini tetap terarah, maka diajukan dua hipotesis: (1) terjadi interaksi politik dalam legislasi Perda di Jatim, dan (2) legislasi Perda di Jatim mencerminkan demokrasi elitis/oligarkis. Untuk menjawab permasalahan dan menganalisis hipotesis, serta menemukan konsep ideal legislasi, studi ini dilakukan lewat penelitian sosio-legal. Penjelajahan dimulai dengan menelaah hukum positif terkait legislasi Perda, yang dilanjutnya dengan mengeksplorasi fakta empirik legislasi Perda di lokasi penelitian. Serangkaian teori sosial – seperti teori struktural-fungsional, teori bekerjanya hukum, dsb. –, teori demokrasi elit dan teori demokrasi partisipatif, teori pembentukan kebijakan dalam perspektif demokrasi, dan teori pembentukan hukum digunakan untuk menganalisis fokus studi ini. Berdasarkan deskripsi temuan penelitian dan hasil analisisnya dapat disimpulkan bahwa interaksi politik dalam legislasi Perda di lokasi penelitian terjadi dalam suasana untuk memperoleh kesepahaman tentang kebutuhan daerah yang akan diatur melalui Perda. Juga dapat disimpulkan bahwa interaksi politik dalam legislasi Perda tersebut mencerminkan demokrasi elitis/oligarkis. Elitisme legislasi Perda tentu tidak sesuai dengan prinsip dasar demokrasi, nilai dasar Pancasila, amandemen UUD Tahun 1945, dan keinginan masyarakat. Berdasarkan hal demikian, studi ini mengusulkan agar demokrasi perwakilan yang menempatkan elite dalam posisi penting niscaya dijalin dengan prinsip dasar tersebut, sehingga interaksi politik demokratis dalam legislasi Perda menjadi demokrasi elitis-populis. Agar gagasan ini dapat diimplementasikan, maka perlu mendapat dukungan hukum. Oleh karenanya, beberapa aturan hukum legislasi Perda yang ada (ius constitutum) perlu segera diamandemen dengan memasukkan ketentuan baru sekaligus mendorong untuk secepatnya dikeluarkan Perpres (iusconstituendum) yang dilandaskan pada perspektif demokrasi elitis-populis. Legislation of the Local Regulation is a very complex process. This complexity is noticeable, although there has been a lawful regulation as legislation guidance. However, it is full of political interaction in it. Region legislation should produce Local Regulation that accommodates aspirations due to the existence of a relatively democratic law of legislation and also democratic political configuration. In this extensive autonomy era, in fact, there are many problematic Local Regulation in East Java (that do not accommodate people's aspirations). Based on that, therefore, it is urgently needed to conduct a study focusing on: (1) political interaction in the East Java Local Regulation legislation observed from democratic perspective, and (2) finding out of the ideal concept of Local Regulation legislation in the perspective of democracy. To make this study focus, those two hypotheses are proposed, they are: (1) in East Java, political interactions have occurred in the Local Regulation legislation process, and (2) the East Java Local Regulation legislation reflects elite/oligarchic democracy. This study is conducted by applying socio-legal research. It is used to answer the problems and to analyze the hypotheses, and also to find out an ideal concept of legislation. Studying positive law related to the local regulation legislation starts the exploratiuon. Then, exploring empirical facts of local regulation legislation at the research site continuous it. A series of social theories - such as, the theory of structuralfunctional, theory of how laws work, etc. -, theory of elite democracy and theory of participative democracy, theory of policy making in the perspective of democracy, and theory of law making are used to approach and explain the focus of this research. Based on the description of research finding and the analysis, it can be concluded that the political interaction in the legislation of local regulation in the research location runs in the situation of getting the agreemant about the local interest that will be arrenged in local regulation. It can also be concluded that political interaction in Local Regulation legislation reflects the elite/oligarchic democracy. That elitism of Local Regulation legislation is surely not in accordance with the basic principle of democracy, the basic values of Pancasila, 1945 Constitution amendment, and public wish. Therefore, this study proposes that the representative democracy positioning elites on an important position should be united with those two essences. So, the political interaction of democracy in Local Regulation legislation becomes elitist-populist democracy. Lawful supports are needed in order to implement the idea of elitist-populist democracy. Therefore, several laws of available local regulation legislation (ius constitutum) need to be amended immediately by adding new determinations and also encouraging the government to issue presidential regulation (Perpres) (iusconstituendum) immediately based on elitist-populist democracy perspective.