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Abstract
This research examines the position and binding power of Ministerial Regulation (Permen) and Coordinating Ministerial Regulation (Permenko) in Indonesia, after the Job Creation Law (Law No. 6/2023). The formulation of the problem includes (1) how the legal construction of Permen as a form of delegated legislation is, and (2) how is the coordinative nature and normative position of Permenko in the hierarchy of national regulations. The method used doctrinal analysis of positive legal norms combined with legislative delegation theory and public administration theory on coordination. The main findings reveal that the effectiveness of Permen depends on the clarity of delegation clauses and enforcement mechanisms, while the effectiveness of Permenko is determined by (a) clarity of delegation, (b) inclusion of sanction provisions, (c) layering regulation through supporting government regulation/presidential regulation, (d) participatory drafting mechanisms, and (e) accountability mechanisms such as reporting clauses and judicial review. This research contributes by formulating an integrated normative blueprint for the design of Permenko that integrates legal and administrative elements, as well as recommendations for amending Law No. 12/2011 and issuing supporting regulations. The implications of the study include strengthening legal legitimacy, increasing bureaucratic compliance, and improving checks and balances mechanisms in the delegation of executive authority. With the implementation of this blueprint, Permenko are expected to become a strategic instrument to ensure the consistency of national public policies, strengthen the principle of constitutionalism, and realize good governance in Indonesia.
Keywords: Binding Power, Delegated Authority, Ministerial Regulations, Normative Hierarchy
Abstrak
Penelitian ini mengkaji kedudukan dan daya ikat Peraturan Menteri (Permen) dan Peraturan Menteri Koordinator (Permenko) di Indonesia pasca UU Cipta Kerja (UU No. 6/2023). Rumusan masalah meliputi (1) bagaimana konstruksi hukum atas Permen sebagai salah satu bentuk delegasi peraturan perundang-undangan, dan (2) bagaimana sifat koordinatif dan kedudukan normatif Permenko dalam hierarki peraturan perundang-undangan nasional. Metode yang digunakan adalah analisis doktrinal norma hukum positif yang dipadukan dengan teori delegasi peraturan perundang-undangan dan teori administrasi publik tentang koordinasi. Temuan utama penelitian ini adalah, bahwa efektivitas Permen tergantung pada kejelasan klausul delegasi dan mekanisme penegakannya, sedangkan efektivitas Permenko ditentukan oleh (a) kejelasan delegasi, (b) pencantuman ketentuan sanksi, (c) pelapisan peraturan melalui peraturan pemerintah/peraturan presiden pendukung, (d) mekanisme penyusunan partisipatif, dan (e) mekanisme akuntabilitas seperti klausul pelaporan dan uji materiil. Penelitian ini memberikan kontribusi berupa penyusunan cetak biru normatif terpadu untuk perancangan Permenko yang mengintegrasikan unsur hukum dan unsur administratif, serta rekomendasi untuk melakukan amandemen terhadap UU No. 12/2011 dan penerbitan peraturan pendukung. Implikasi dari penelitian ini antara lain penguatan legitimasi hukum, peningkatan kepatuhan birokrasi, dan perbaikan mekanisme checks and balances dalam pendelegasian kewenangan eksekutif. Dengan diimplementasikannya cetak biru ini, Permenko diharapkan dapat menjadi instrumen strategis untuk menjamin konsistensi kebijakan publik nasional, memperkuat asas konstitusionalisme, dan mewujudkan tata pemerintahan yang baik di Indonesia.
Kata kunci: Kekuasaan Mengikat, Kewenangan yang Didelegasikan, Peraturan Menteri, Hirarki Normatif
Keywords
Article Details
Copyright (c) 2025 Saiful Risky, Sholahuddin Al-Fatih, Fitria Esfandiari, Surya Anoraga
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References
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Ahmad, Ahmad, and Novendri M. Nggilu. “Denyut Nadi Amandemen Kelima UUD 1945 Melalui Pelibatan Mahkamah Konstitusi Sebagai Prinsip the Guardian of the Constitution.” Jurnal Konstitusi 16, no. 4 (January 28, 2020): 785. https://doi.org/10.31078/jk1646.
Al-Fatih, Sholahuddin, Muchamad Ali Safaat, Aan Eko Widiarto, Dhia Al Uyun, and Muhammad Nur. “The Hierarchical Model of Delegated Legislation in Indonesia.” Lex Scientia Law Review 7, no. 2 (2023): 629–58. https://doi.org/10.15294/lesrev.v7i2.74651.
Benish, Avishai, Noam Tarshish, Roni Holler, and John Gal. “Types of Administrative Burden Reduction Strategies: Who, What, and How.” Journal of Public Administration Research and Theory 34, no. 3 (July 15, 2024): 349–58. https://doi.org/10.1093/jopart/muad028.
Čapla, Jozef, Peter Zajác, Katarína Ševcová, Jozef Čurlej, and Martina Fikselová. “Overview of the Milk and Dairy Products Legislation in the European Union.” Legestic 1 (2023). https://doi.org/10.5219/legestic.1.
Chng, Kenny. “Re-Examining Judicial Review of Delegated Legislation.” Legal Studies 44, no. 1 (2024): 81–98. https://doi.org/10.1017/lst.2023.7.
Easterbrook, Frank H. “Presidential Lawmaking Powers.” Washington University Law Quarterly 536 (1990).
Fayol, Henri. “Planning, Organisation, Command , Coordination , Control.” Chatered Management Institute, 2002.
Flath, Lucas, Jörg Kemmerzell, and Michèle Knodt. “Hydrogen Governance in Germany: A Challenge for Federal Coordination.” Regional and Federal Studies, 2023. https://doi.org/10.1080/13597566.2023.2232735.
Fusi, Federica. “When Local Governments Request Access to Data: Power and Coordination Mechanisms across Stakeholders.” Public Administration Review 81, no. 1 (2021). https://doi.org/10.1111/puar.13307.
Ghafur, Jamaludin. “Demokratisasi Internal Partai Politik Era Reformasi: Antara Das Sollen Dan Das Sein.” Jurnal Hukum Ius Quia Iustum 30, no. 1 (January 1, 2023): 1–25. https://doi.org/10.20885/iustum.vol30.iss1.art1.
Ginsburg, Tom. “Pitfalls of Measuring the Rule of Law.” Hague Journal on the Rule of Law 3, no. 2 (2011): 269–80. https://doi.org/10.1017/S187640451120006X.
Herrera-Medina, Eleonora, and Antoni Riera Font. “A Multiagent Game Theoretic Simulation of Public Policy Coordination through Collaboration.” Sustainability (Switzerland) 15, no. 15 (2023). https://doi.org/10.3390/su151511887.
Hirschl, Ran. “Early Engagements with the Constitutive Laws of Others: Possible Lessons from Pre-Modern Religious Law.” Law and Ethics of Human Rights 10, no. 1 (2016): 71–108. https://doi.org/10.1515/lehr-2016-0003.
Huda, Ni’matul. “Kedudukan Dan Materi Muatan Peraturan Menteri Dalam Perspektif Sistem Presidensial.” Jurnal Hukum Ius Quia Iustum 28, no. 3 (2021): 550–71. https://doi.org/10.20885/iustum.vol28.iss3.art5.
Ispriyarso, Budi, and Kadek Cahya Susila Wibawa. “Reconstruction of the National Economy Post-Covid-19 Pandemic: Critical Study of Tax Reforms in Indonesia.” Cogent Social Sciences 9, no. 1 (2023). https://doi.org/10.1080/23311886.2023.2174517.
Kirti Datla and Richard L. Revesz. “Deconstructing Independent Agencies (and Executive Agencies) Recommended Citation DECONSTRUCTING INDEPENDENT AGENCIES (AND EXECUTIVE AGENCIES).” Cornell Law Review 98, no. 4 (2013): 769.
McCarty, Nolan. “Presidential Vetoes in the Early Republic: Changing Constitutional Norms or Electoral Reform?” Journal of Politics 71, no. 2 (2009). https://doi.org/10.1017/S0022381609090331.
Mochtar, Zainal Arifin, and Idul Rishan. “Autocratic Legalism: The Making of Indonesian Omnibus Law.” Yustisia 11, no. 1 (2022). https://doi.org/10.20961/yustisia.v11i1.59296.
Mukhlis, Muhammad Mutawalli, Maskun, Budiyanto, Jumas, Dian Rahadian, and Georges Olemanu Lohalo. “Narrating Recruitment Model for Legislator Candidates: Is It Fair?” Jambe Law Journal 7, no. 1 (2024): 91–126. https://doi.org/10.22437/home.v7i1.345.
Nafi Uz Zaman, Muhammad, Retno Saraswati, and Ratna Herawati. “Analisis Dan Evaluasi Kedudukan Peraturan Menteri Peraturan Daerah Dalam Sistem Indonesia.” Diponegoro Law Journal 9, no. 12 (2020): 384–402.
Ning, Lu. “The Central Leadership, Supraministry Coordinating Bodies, State Council Ministries, and Party Departments.” In The Making of Chinese Foreign and Security Policy in the Era of Reform, 39–60. Stanford University Press, 2002. https://doi.org/10.1515/9780804764490-006.
Nursetiawan, Eko, and Riris Ardhanariswari. “Meaningful Participation in Legislative Drafting as a Manifestation of a Democratic Rule of Law.” Jambe Law Journal 5, no. 2 (December 3, 2023): 251–70. https://doi.org/10.22437/jlj.5.2.251-270.
Panjaitan, Marojahan JS, “The Legal Impacts And The Government’S Efforts To Respond To Electronic State Administrative Decisions Following The Enactment Of Law No. 11 Of 2020 On Job Creation”, Prophetic Law Review, 4(1) (2022), 110–130. https://doi.org/10.20885/PLR.vol4.iss1.art6
Perche, Diana. “Recalibrating the Machinery of Government for Indigenous Affairs: Towards a New Policy Design for Self-Determination.” Australian Journal of Public Administration 77 (2018). https://doi.org/10.1111/1467-8500.12356.
Pratama, Juwita Putri, Lita Tyesta ALW, and Sekar Anggun Gading Pinilih. “Eksistensi Kedudukan Peraturan Menteri Terhadap Peraturan Daerah Dalam Hierarki Peraturan Perundang-Undangan.” Jurnal Konstitusi 19, no. 4 (December 1, 2022): 865–85. https://doi.org/10.31078/jk1947.
Ridwan. “Eksistensi Dan Urgensi Peraturan Menteri Dalam Penyelenggaraan Pemerintahan Sistem Presidensial The Existence and Urgency of Ministry.” Jurnal Konstitusi 18, no. 4 (2021): 829–45.
Rizqi, Alda Rifada. “Meaningful Participation in Local Regulation Making in Indonesia: A Study of Legislative Law.” Rechtsidee 10, no. 2 (2022). https://doi.org/10.21070/jihr.v11i0.801.
Simabura, Charles. “Wewenang Menteri Membentuk Peraturan Menteri Dalam Sistem Pemerintahan Presidensial Indonesia Pasca Perubahan UUD 1945 Kurun Waktu 2004-2019.” Disertasi, Universitas Indonesia, Jakarta, 2022.
Simabura, Charles, Satya Arinanto, Maria Farida Indrati, Saldi Isra, and Fitra Arsil. “Ministerial Authority in Formulating Regulations Related to Presidential Lawmaking Doctrine.” Constitutional Review 9, no. 2 (2023): 297–331. https://doi.org/10.31078/consrev924.
Supriadi, Ady, and Fitriani Amalia. “Kedudukan Peraturan Menteri Di Tinjau Dari Hierarki Peraturan Perundang Undangan Di Indonesia.” Unizar Law Review 4, no. 2 (2021): 146–52.
Tegnan, Hilaire, Charles Simabura, and Saldi Isra. “Indonesian National Development Planning System Based on State Policy Guidelines (GBHN) : A Return to the Future?” International Journal of Law Reconstruction 2, no. 1 (2018): 31. https://doi.org/10.26532/ijlr.v2i1.2976.
Wijaya, Ahmad. “Mekanisme Koordinasi Dan Singkronisasi Lembaga Kementerian Negara Suatu Praksis Menuju Kabinet Yang Efektif.” Al-Ahkam 15, no. 2 (December 27, 2019): 69. https://doi.org/10.37035/ajh.v15i2.2191.
Young, Margaret A. “Implementing International Law: Capacitybuilding, Coordination and Control.” Cambridge International Law Journal 12, no. 1 (2023). https://doi.org/10.4337/cilj.2023.01.01.
Zhang, Chunbo, Mingming Hu, Francesco Di Maio, Benjamin Sprecher, Xining Yang, and Arnold Tukker. “An Overview of the Waste Hierarchy Framework for Analyzing the Circularity in Construction and Demolition Waste Management in Europe.” Science of the Total Environment, 2022. https://doi.org/10.1016/j.scitotenv.2021.149892.
References
Asshiddiqie, Jimly. Perihal Undang-Undang. Jakarta: Rajwali Pers, 2020.
Ahmad, Ahmad, and Novendri M. Nggilu. “Denyut Nadi Amandemen Kelima UUD 1945 Melalui Pelibatan Mahkamah Konstitusi Sebagai Prinsip the Guardian of the Constitution.” Jurnal Konstitusi 16, no. 4 (January 28, 2020): 785. https://doi.org/10.31078/jk1646.
Al-Fatih, Sholahuddin, Muchamad Ali Safaat, Aan Eko Widiarto, Dhia Al Uyun, and Muhammad Nur. “The Hierarchical Model of Delegated Legislation in Indonesia.” Lex Scientia Law Review 7, no. 2 (2023): 629–58. https://doi.org/10.15294/lesrev.v7i2.74651.
Benish, Avishai, Noam Tarshish, Roni Holler, and John Gal. “Types of Administrative Burden Reduction Strategies: Who, What, and How.” Journal of Public Administration Research and Theory 34, no. 3 (July 15, 2024): 349–58. https://doi.org/10.1093/jopart/muad028.
Čapla, Jozef, Peter Zajác, Katarína Ševcová, Jozef Čurlej, and Martina Fikselová. “Overview of the Milk and Dairy Products Legislation in the European Union.” Legestic 1 (2023). https://doi.org/10.5219/legestic.1.
Chng, Kenny. “Re-Examining Judicial Review of Delegated Legislation.” Legal Studies 44, no. 1 (2024): 81–98. https://doi.org/10.1017/lst.2023.7.
Easterbrook, Frank H. “Presidential Lawmaking Powers.” Washington University Law Quarterly 536 (1990).
Fayol, Henri. “Planning, Organisation, Command , Coordination , Control.” Chatered Management Institute, 2002.
Flath, Lucas, Jörg Kemmerzell, and Michèle Knodt. “Hydrogen Governance in Germany: A Challenge for Federal Coordination.” Regional and Federal Studies, 2023. https://doi.org/10.1080/13597566.2023.2232735.
Fusi, Federica. “When Local Governments Request Access to Data: Power and Coordination Mechanisms across Stakeholders.” Public Administration Review 81, no. 1 (2021). https://doi.org/10.1111/puar.13307.
Ghafur, Jamaludin. “Demokratisasi Internal Partai Politik Era Reformasi: Antara Das Sollen Dan Das Sein.” Jurnal Hukum Ius Quia Iustum 30, no. 1 (January 1, 2023): 1–25. https://doi.org/10.20885/iustum.vol30.iss1.art1.
Ginsburg, Tom. “Pitfalls of Measuring the Rule of Law.” Hague Journal on the Rule of Law 3, no. 2 (2011): 269–80. https://doi.org/10.1017/S187640451120006X.
Herrera-Medina, Eleonora, and Antoni Riera Font. “A Multiagent Game Theoretic Simulation of Public Policy Coordination through Collaboration.” Sustainability (Switzerland) 15, no. 15 (2023). https://doi.org/10.3390/su151511887.
Hirschl, Ran. “Early Engagements with the Constitutive Laws of Others: Possible Lessons from Pre-Modern Religious Law.” Law and Ethics of Human Rights 10, no. 1 (2016): 71–108. https://doi.org/10.1515/lehr-2016-0003.
Huda, Ni’matul. “Kedudukan Dan Materi Muatan Peraturan Menteri Dalam Perspektif Sistem Presidensial.” Jurnal Hukum Ius Quia Iustum 28, no. 3 (2021): 550–71. https://doi.org/10.20885/iustum.vol28.iss3.art5.
Ispriyarso, Budi, and Kadek Cahya Susila Wibawa. “Reconstruction of the National Economy Post-Covid-19 Pandemic: Critical Study of Tax Reforms in Indonesia.” Cogent Social Sciences 9, no. 1 (2023). https://doi.org/10.1080/23311886.2023.2174517.
Kirti Datla and Richard L. Revesz. “Deconstructing Independent Agencies (and Executive Agencies) Recommended Citation DECONSTRUCTING INDEPENDENT AGENCIES (AND EXECUTIVE AGENCIES).” Cornell Law Review 98, no. 4 (2013): 769.
McCarty, Nolan. “Presidential Vetoes in the Early Republic: Changing Constitutional Norms or Electoral Reform?” Journal of Politics 71, no. 2 (2009). https://doi.org/10.1017/S0022381609090331.
Mochtar, Zainal Arifin, and Idul Rishan. “Autocratic Legalism: The Making of Indonesian Omnibus Law.” Yustisia 11, no. 1 (2022). https://doi.org/10.20961/yustisia.v11i1.59296.
Mukhlis, Muhammad Mutawalli, Maskun, Budiyanto, Jumas, Dian Rahadian, and Georges Olemanu Lohalo. “Narrating Recruitment Model for Legislator Candidates: Is It Fair?” Jambe Law Journal 7, no. 1 (2024): 91–126. https://doi.org/10.22437/home.v7i1.345.
Nafi Uz Zaman, Muhammad, Retno Saraswati, and Ratna Herawati. “Analisis Dan Evaluasi Kedudukan Peraturan Menteri Peraturan Daerah Dalam Sistem Indonesia.” Diponegoro Law Journal 9, no. 12 (2020): 384–402.
Ning, Lu. “The Central Leadership, Supraministry Coordinating Bodies, State Council Ministries, and Party Departments.” In The Making of Chinese Foreign and Security Policy in the Era of Reform, 39–60. Stanford University Press, 2002. https://doi.org/10.1515/9780804764490-006.
Nursetiawan, Eko, and Riris Ardhanariswari. “Meaningful Participation in Legislative Drafting as a Manifestation of a Democratic Rule of Law.” Jambe Law Journal 5, no. 2 (December 3, 2023): 251–70. https://doi.org/10.22437/jlj.5.2.251-270.
Panjaitan, Marojahan JS, “The Legal Impacts And The Government’S Efforts To Respond To Electronic State Administrative Decisions Following The Enactment Of Law No. 11 Of 2020 On Job Creation”, Prophetic Law Review, 4(1) (2022), 110–130. https://doi.org/10.20885/PLR.vol4.iss1.art6
Perche, Diana. “Recalibrating the Machinery of Government for Indigenous Affairs: Towards a New Policy Design for Self-Determination.” Australian Journal of Public Administration 77 (2018). https://doi.org/10.1111/1467-8500.12356.
Pratama, Juwita Putri, Lita Tyesta ALW, and Sekar Anggun Gading Pinilih. “Eksistensi Kedudukan Peraturan Menteri Terhadap Peraturan Daerah Dalam Hierarki Peraturan Perundang-Undangan.” Jurnal Konstitusi 19, no. 4 (December 1, 2022): 865–85. https://doi.org/10.31078/jk1947.
Ridwan. “Eksistensi Dan Urgensi Peraturan Menteri Dalam Penyelenggaraan Pemerintahan Sistem Presidensial The Existence and Urgency of Ministry.” Jurnal Konstitusi 18, no. 4 (2021): 829–45.
Rizqi, Alda Rifada. “Meaningful Participation in Local Regulation Making in Indonesia: A Study of Legislative Law.” Rechtsidee 10, no. 2 (2022). https://doi.org/10.21070/jihr.v11i0.801.
Simabura, Charles. “Wewenang Menteri Membentuk Peraturan Menteri Dalam Sistem Pemerintahan Presidensial Indonesia Pasca Perubahan UUD 1945 Kurun Waktu 2004-2019.” Disertasi, Universitas Indonesia, Jakarta, 2022.
Simabura, Charles, Satya Arinanto, Maria Farida Indrati, Saldi Isra, and Fitra Arsil. “Ministerial Authority in Formulating Regulations Related to Presidential Lawmaking Doctrine.” Constitutional Review 9, no. 2 (2023): 297–331. https://doi.org/10.31078/consrev924.
Supriadi, Ady, and Fitriani Amalia. “Kedudukan Peraturan Menteri Di Tinjau Dari Hierarki Peraturan Perundang Undangan Di Indonesia.” Unizar Law Review 4, no. 2 (2021): 146–52.
Tegnan, Hilaire, Charles Simabura, and Saldi Isra. “Indonesian National Development Planning System Based on State Policy Guidelines (GBHN) : A Return to the Future?” International Journal of Law Reconstruction 2, no. 1 (2018): 31. https://doi.org/10.26532/ijlr.v2i1.2976.
Wijaya, Ahmad. “Mekanisme Koordinasi Dan Singkronisasi Lembaga Kementerian Negara Suatu Praksis Menuju Kabinet Yang Efektif.” Al-Ahkam 15, no. 2 (December 27, 2019): 69. https://doi.org/10.37035/ajh.v15i2.2191.
Young, Margaret A. “Implementing International Law: Capacitybuilding, Coordination and Control.” Cambridge International Law Journal 12, no. 1 (2023). https://doi.org/10.4337/cilj.2023.01.01.
Zhang, Chunbo, Mingming Hu, Francesco Di Maio, Benjamin Sprecher, Xining Yang, and Arnold Tukker. “An Overview of the Waste Hierarchy Framework for Analyzing the Circularity in Construction and Demolition Waste Management in Europe.” Science of the Total Environment, 2022. https://doi.org/10.1016/j.scitotenv.2021.149892.