PERUBAHAN INFORMAL UNDANG-UNDANG DASAR 1945 MELALUI PENAFSIRAN OLEH MAHKAMAH KONSTITUSI : KONSEP DAN KAJIAN KUASI KONSTITUSI ATAS UNDANG-UNDANG DASAR 1945

Nugroho, Wachid (2025) PERUBAHAN INFORMAL UNDANG-UNDANG DASAR 1945 MELALUI PENAFSIRAN OLEH MAHKAMAH KONSTITUSI : KONSEP DAN KAJIAN KUASI KONSTITUSI ATAS UNDANG-UNDANG DASAR 1945. S3 thesis, UNIVERSITAS KRISTEN INDONESIA.

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Abstract

ABSTRAK Kata Kunci : Konstitusi, penafsiran konstitusi, perubahan konstitusi secara informal, kuasi konstitusi. UUD 1945 hasil amandemen 1999-2002 diakui masih menyimpan potensi kelemahan baik bersifat materiil-substantif maupun kekurangan formalitas teknis. Tesk UUD 1945 pasca amandemen memang belum diubah secara formal, namun sesungguhnya UUD 1945 telah mengalami perubahan informal melalui penafsiran konstitusi yang dilakukan oleh Mahkamah Konstitusi. Perubahan informal UUD 1945 cenderung terjadi pada hasil-hasil kompromi politik pada rumusan norma yang kabur dan tidak fixed, seperti hak menguasai negara dalam pengelolaan sumber daya alam (Pasal 33 ayat (2) UUD 1945); kewenangan Mahkamah Konstitusi terutama dalam pengujian Peraturan Pemerintah Pengganti Undang-Undang (Perpu), kewenangan legislasi DPD dalam Pasal 22D ayat (1) UUD 1945, kewenangan MPR dalam menetapkan Ketetapan MPR yang bersifat regeling, dan persyaratan calon presiden dan wakil presiden. Penelitian ini mengeksplorasi perubahan konstitusi dan penafsiran konstitusi dengan hermeneutik sebagai jembatan dalam menginterpretasikan teks konstitusi. pertama, norma konstitusi merupakan media dari penafsiran menggunakan hermeneutika, apapun yang termaktub dalam konstitusi, pastilah merupakan naskah tertulis dalam kaitan materi muatan konstitusi itu; kedua, pemaknaan norma suatu undang-undang atas norma dalam UUD 1945 merupakan perdebatan hermeneutika; dan ketiga, penafsiran konstitusi dapat menyebabkan perubahan informal UUD 1945 dan menghadirkan kuasi konstitusi yang perlu didudukkan lebih lanjut dalam sistem konstitusi Indonesia. Konteks tersebut mendorong, peneliti untuk melakukan pengajian atas permasalahan 1) Apakah telah terjadi Perubahan UUD 1945 secara informal melalui penafsiran konstitusi oleh Mahkamah Konstitusi? 2) Mengapa penafsiran konstitusi oleh Mahkamah Konstitusi menimbulkan kuasi konstitusi? 3) Bagaimana menempatkan kuasi konstitusi atas UUD 1945 dalam sistem konstitusi di Indonesia? Pokok bahasan penelitian ini adalah implikasi praktis dan teoritis perubahan informal UUD 1945, karena penafsiran konstitusi oleh Mahkamah Konstitusi. Faktor yang mengubah UUD 1945 secara informal ini akan dianalisa lebih lanjut melalui dua pola penafsiran yakni pola penafsiran internal dan pola penafsiran eksternal. Penelitian ini menggunakan empat pendekatan yakni pendekatan konseptual (conceptual approach), pendekatan perundang- undangan (statute approach), pendekatan kasus (case approach), dan pendekatan perbandingan (comparative approach). Keempat pendekatan ini digunakan untuk melakukan verifikasi terhadap teori-teori konstitusi dan teori penafsiran yang digunakan sebagai rujukan. Dengan demikian, pertanyaan yang memandu penelitian ini bukan sekedar tentang terjadinya perubahan makna norma UUD 1945, melainkan juga tentang cakupan perubahan yang memungkinkan terjadinya kuasi konstitusi atas UUD 1945. Temuan studi menunjukkan bahwa telah terjadi perubahan informal UUD 1945 yang menunjukkan bahwa: 1) telah terjadi perubahan informal UUD 1945 sebagai hasil dialektika antara dokumen konstitusi (UUD 1945) dan some primary forces of constitutional changes. Beberapa pasal dalam UUD 1945 pasca amandemen telah berubah ius constituendum karena yang berlaku sebagai ius constitutum adalah norma-norma yang berubah melalui metode penafsiran konstitusi oleh Mahkamah Konstitusi. Ius constitutum inilah yang berkedudukan sebagai kuasi konstitusi; 2) Perubahan informal UUD 1945 dalam penelitian ini, cenderung terjadi pada hasil-hasil kompromi politik pada waktu perumusan perubahan UUD 1945 atau rumusan norma yang kabur dan tidak fixed (political adjustment), yakni pada 1) kewenangan legislasi DPD (Pasal 22D ayat (1) UUD 1945); 2) persyaratan menjadi calon Presiden dan Wakil Presiden (Pasal 6 ayat (1) UUD 1945), atau pada rumusan norma dalam UUD 1945 yang menjadi perdebatan panjang ketika perumusan amandemen UUD 1945, yakni 1) pada hak menguasai oleh negara (Pasal 33 ayat (2) UUD 1945); dan kewenangan MK (Pasal 24C ayat (1) UUD 1945); dan 3) Substansi paling esensial dalam konsep konstitusi yang hidup (living constitution) adalah bahwa implementasi nilai dan norma konstitusi haruslah bersifat dinamis dan adaptif. Oleh karena itu, secara normatif, kuasi konstitusi harus didudukkan dalam sistem konstitusi di Indonesia. Berdasarkan temuan penelitian ini, menjadi penting untuk direkomendasikan bahwa penafsiran konstitusi atas UUD 1945 dan kajian mengenai kuasi konstitusi masih belum berkembang di Indonesia, terutama untuk memberikan ruang analitis bagai paham konstitusionalisme dalam UUD 1945, dan menilai penafsiran konstitusi yang dilakukan oleh Mahkamah Konstitusi terhadap UUD 1945 dalam bentuk judicial review, serta MPR sebagai lembaga yang mempunyai kewenangan untuk melakukan perubahan UUD 1945. Oleh karena itu, diperlukan pengkajian lebih lanjut mengenai teori penafsiran konstitusi yang sesuai dengan paham konstitusionalisme di Indonesia dan perkembangan kuasi konstitusi di Indonesia terutama mengenai implementasinya dalam kehidupan ketatanegaraan Indonesia sehingga diharapkan dapat membantu melihat perkembangan konstitusi dan implementasinya di Indonesia./ ABSTRACT Keywords : Constitution, constitutional interpretation, informal constitutional change, quasi-constitution. The 1945 Constitution as amended in 1999-2002 is recognized as still having potential weaknesses, both material-substantive and technical formalities. The post-amendment text of the 1945 Constitution has not been formally amended, but in fact, the 1945 Constitution has undergone informal changes through constitutional interpretation conducted by the Constitutional Court. Informal changes to the 1945 Constitution tend to occur as a result of political compromise on the formulation of norms that are vague and not fixed, such as the right to control the state in the management of natural resources (Article 33 paragraph (2) of the 1945 Constitution); the authority of the Constitutional Court, especially in testing the Government Regulation instead of Law (Perpu), the legislative authority of DPD in Article 22D paragraph (1) of the 1945 Constitution, the MPR's authority in establishing MPR Decrees that are regeling, and the requirements of presidential and vice presidential candidates. This research explores constitutional change and constitutional interpretation with hermeneutics as a bridge in interpreting the text of the Constitution. First, constitutional norms are a medium of interpretation using hermeneutics, whatever is contained in the constitution, must be a written text with the content material of the constitution; second, the meaning of the norm of a law on the norm in the 1945 Constitution is a hermeneutic debate; and third, the interpretation of the constitution can lead to informal changes in the 1945 Constitution and present a quasi-constitution that needs to be seated further in the Indonesian constitutional system. This context encourages researchers to study the problem of 1) Has there been an informal change of the 1945 Constitution through constitutional interpretation by the Constitutional Court? 2) Why does the interpretation of the Constitution by the Constitutional Court lead to a quasi-constitution? 3) How to place the quasi-constitution of the 1945 Constitution in the constitutional system in Indonesia? The subject matter of this research is the practical and theoretical implications of informal changes to the 1945 Constitution resulting from the Constitutional Court's constitutional interpretation. Factors that informally change the 1945 Constitution will be further analyzed through two patterns of interpretation, namely internal interpretation patterns and external interpretation patterns. This research uses four approaches, namely the conceptual approach, the statute approach, the case approach, and the comparative approach. These four approaches are used to verify the constitutional theories and interpretive theories referenced. Thus, the question guiding this study is not just about the changes in the meaning of the 1945 Constitution norms, but also about the scope of changes that allow for the quasi- constitutionalization of the 1945 Constitution. The findings of the study indicate that there have been informal changes to the 1945 Constitution, which show that: 1) there have been informal changes to the 1945 Constitution as a result of the dialectic between the constitutional document (1945 Constitution) and some primary forces of constitutional changes. Some articles in the post-amendment 1945 Constitution have changed ius constituendum because what applies as ius constitutum are norms that change through the method of constitutional interpretation by the Constitutional Court. This ius constitutum serves as a quasi-constitution; 2) Informal changes to the 1945 Constitution in this study, tend to occur in the results of political compromise at the time of the formulation of changes to the 1945 Constitution or the formulation of norms that are vague and not fixed (political adjustment), namely on 1) the legislative authority of DPD (Article 22D paragraph (1) of the 1945 Constitution); 2) the requirements to become a candidate for President and Vice President (Article 6 paragraph (1) of the 1945 Constitution), or on the formulation of norms in the 1945 Constitution which became a long debate when the formulation of amendments to the 1945 Constitution, namely 1) on the right to control by the state (Article 33 paragraph (2) of the 1945 Constitution); and the authority of the Constitutional Court (Article 24C paragraph (1) of the 1945 Constitution); and 3) The most essential substance in the concept of a living constitution is that the implementation of constitutional values and norms must be dynamic and adaptive. Therefore, normatively, the quasi-constitution must be placed in the constitutional system in Indonesia. Based on the findings of this research, it is important to recommend that constitutional interpretation of the 1945 Constitution and the study of the quasi-constitution are still underdeveloped in Indonesia, especially to provide analytical space for the understanding of constitutionalism in the 1945 Constitution, and assess the interpretation of the constitution carried out by the Constitutional Court against the 1945 Constitution in the form of judicial review, as well as the MPR as an institution that has the authority to amend the 1945 Constitution. Therefore, further study is needed regarding the theory of constitutional interpretation under the understanding of constitutionalism in Indonesia and the development of quasi-constitution in Indonesia, especially regarding its implementation in Indonesian constitutional life, so that it is expected to help see the development of the constitution and its implementation in Indonesia.

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