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Salah satu pertanyaan mendasar dalam studi tentang sistem ketatanegaraan Indonesia adalah sistem ketatanegaraan seperti apakah yang ada dalam angan-angan para pendiri bangsa ini tatkala memproklamasikan kemerdekaan Bangsa Indonesia? Pertanyaan ini pula yang dibahas di Majelis Permusyawaratan Rakyat (MPR), khususnya dalam sidang-sidang Panitia Ad Hoc I Badan Pekerja MPR (PAH I BP MPR),[1] tatkala memperdebatkan rancangan perubahan UUD 1945. Jawaban terhadap pertanyaan ini ada pada Pembukaan UUD 1945, khususnya alinea keempat. Dalam Pembukaan UUD 1945-lah kita menemukan pernyataan bahwa undang-undang dasar yang hendak disusun (setelah Proklmasi Kemerdekaan 17 Agustus 1945) itu adalah “kelanjutan” dari Proklamasi Kemerdekaan 17 Agustus 1945.[2] Karena itu, Pembukaan UUD 1945-lah yang dijadikan landasan atau pedoman tatkala MPR melakukan perubahan terhadap UUD 1945 dan pada saat yang sama sebagai arah yang hendak dituju atau diwujudkan melalui perubahan itu.[3] 

Konstitusi Dan Konstitusionalisme Indonesia


Secara teoretik, pembukaan suatu konstitusi (tertulis) atau undang-undang dasar menduduki tempat tersendiri dalam pembahasan tentang sistem ketatanegaraan suatu negara. Pembukaan konstitusi, merupakan pengantar khidmat yang mengekspresikan gagasan-gagasan politik, moral, dan religius yang hendak dikedepankan oleh konstitusi itu (a solemn introduction... expressing the political, moral, and religious ideas which the constitution is intended to promote).[4] Kelsen juga menegaskan, dari pembukaan suatu konstitusi kita pun dapat mengetahui arah atau semangat yang hendak diwujudkan oleh suatu konstitusi, apakah mencerminkan suasana atau mengarah kepada demokrasi atau autokrasi. Jika pembukaan itu menyatakan suatu konstitusi sebagai perwujudan kehendak rakyat (the will of the people) maka konstitusi itu mengarah ke atau mencerminkan suasana demokrasi. Sedangkan jika pembukaan itu menyatakan suatu konstitusi sebagai perwujudan kehendak seorang penguasa yang mendapatkan kekuasaannya melalui kemurahan hati Tuhan (the will of a ruler installed by the grace of God) maka konstitusi itu mengarah ke atau mencerminkan suasana autokrasi:

“Depending upon whether the constitution has a more democratic or a more autocratic tenor, it presents itself in the preamble either as the will of the people or as the will of a ruler installed by the grace of God.” [5]

Setiap negara pasti memiliki konstitusi namun tidak setiap negara memiliki konstitusi tertulis. Sementara itu, tidak semua konstitusi tertulis memiliki pembukaan (preamble). Henc van Maarseveen dan Ger van der Tang mengelompokkan ada dua corak atau sifat pembukaan suatu konstitusi, yaitu pembukaan yang bersifat deklaratif (declaratory) dan yang bersifat programatik (programmatic). Pembukaan yang bersifat deklaratif adalah pembukaan yang isinya mengandung pernyataan tentang masalah-masalah atau prinsip-prinsip hukum. Sedangkan pembukaan yang bersifat programatik adalah pembukaan yang isinya mengandung arahan mengenai tindakan tertentu yang harus diambil atau memuat rumusan sejumlah tujuan yang hendak dicapai.[6]

Dilihat berdasarkan pengelompokan pembukaan konstitusi di atas, jelas bahwa Pembukaan UUD 1945 termasuk ke dalam pembukaan yang berssifat programatik. Inilah alasannya Pembukaan UUD 1945 oleh MPR dijadikan landasan sekaligus arah perubahan UUD 1945. Sesuai dengan sifatnya yang programatik, dari Pembukaan UUD 1945, khususnya alinea keempat, kita dapat mengetahui dengan jelas “arahan” tentang negara yang hendak dibentuk. Berdasarkan rumusan alinea keempat Pembukaan UUD 1945 arahan tentang tindakan tertentu yang harus diambil ataupun tujuan yang hendak dicapai tersebut adalah:

bahwa Undang-Undang Dasar Negara Indonesia itu merupakan perwujudan dari Kemerdekaan Kebangsaan Indonesia;
bahwa Undang-Undang Dasar Negara Indonesia itu perlu disusun guna membentuk suatu Pemerintah Negara Indonesia;
bahwa Pemerintah Negara Indonesia yang dibentuk berdasarkan Undang-Undang Dasar Negara Indonesia itu harus melindungi segenap bangsa Indonesia dan seluruh tumpah darah Indonesia, memajukan kesejahteraan umum, mencerdaskan kehidupan bangsa, dan ikut melaksanakan ketertiban dunia;
bahwa dasar keikutsertaan Pemerintah Negara Indonesia dalam melaksanakan ketertiban dunia itu adalah kemerdekaan, perdamaian abadi, dan keadilan sosial;
bahwa Pemerintah Negara Indonesia yang dibentuk berdasarkan Undang-Undang Dasar Negara Indonesia itu adalah suatu Republik, yaitu Negara Republik Indonesia, yang berkedaulatan rakyat;
bahwa Negara Republik Indonesia yang berkedaulatan rakyat yang dibentuk menurut Undang-Undang Dasar Negara Indonesia itu harus dengan berdasar kepada Ketuhanan Yang Maha Esa, Kemanusiaan yang adil dan beradab, Persatuan Indonesia, Kerakyatan yang dipimpin oleh hikmat kebijaksanaan dalam permusyawaratan/perwakilan, serta dengan mewujudkan suatu Keadilan sosial bagi seluruh rakyat Indonesia (inilah yang kita sebut sebagai dasar negara Pancasila).[7]

Berdasarkan arahan yang tertuang dalam alinea keempat Pembukaan UUD 1945 itu tampak jelas, salah satunya yang akan menjadi fokus uraian selanjutnya dari tulisan ini, bahwa negara Indonesia yang diimpikan oleh pendiri bangsa ini adalah negara Indonesia yang berkedaulatan rakyat alias negara Indonesia yang demokratis. Karena itu ke arah itulah perubahan UUD 1945 dibawa. Namun, karena disadari (sebagaimana dikatakan Aristoteles[8]) bahwa demokrasi itu mengandung “cacat bawaan” maka ia harus dikontrol. Cara mengontrolnya adalah melalui hukum. Itulah alasannya, demokrasi harus didampingi oleh negara hukum (nomokrasi). Inilah esensi negara hukum yang demokratis atau negara demokrasi yang berdasar atas hukum (constitutional democratic state) itu. Dari dasar pemikiran inilah lahir rumusan Pasal 1 ayat (2) dan (3) UUD 1945 yang menyatakan:

(1) ....

(2) Kedaulatan adalah di tangan rakyat dan dilaksanakan menurut Undang-Undang Dasar;

(3) Negara Indonesia adalah negara hukum.

Jadi, seluruh substansi perubahan UUD 1945 harus dapat dikembalikan kepada dan dijelaskan berdasarkan gagasan tentang negara hukum yang demokratis atau negara demokrasi yang berdasar atas hukum tersebut.

Konstitusi, Konstitusionalisme, Negara Hukum

Dalam negara hukum yang demokratis berlaku prinsip supremasi konstitusi. Artinya, konstitusi adalah hukum yang tertinggi di negara itu sehingga seluruh praktik ketatanegaraan harus dilaksanakan sesuai dan tidak boleh bertentangan dengan konstitusi. Lebih jauh lagi, konstitusi harus benar-benar dijelmakan dalam praktik. Prinsip ini diturunkan dari syarat atau ciri pertama (dan utama) constitutional democratic state yaitu Konstitusionalisme (Constitutionalism).[9] Namun, Konstitusionalisme bukanlah sekadar doktrin atau ajaran tentang konstitusi yang mengajarkan bahwa konstitusi harus diperlakukan sebagai hukum tertinggi dalam suatu negara melainkan jauh lebih kompleks. Sebab, di dalamnya tercakup subjek atau pokok bahasan yang meliputi pertumbuhan teori dan praktik konstitusi sepanjang sejarah umat manusia.[10]

Dalam pandangan Carl J. Friedrich, konstitusionalisme mengandung enam pengertian yaitu: (1) pengertian filosofis, yang di dalamnya mencakup definisi politeia[11] dari Aristoteles; (2) pengertian struktural, yang mencakup organisasi umum dari setiap pemerintahan yang ada; (3) pengertian hukum, yang mencakup hukum dasar dari suatu negara atau entitas politik (polical entity); (4) pengertian dokumentasi, yang mencakup konstitusi tertulis; (5) pengertian prosedural, yang mempersyaratkan perubahan konstitusi dengan prosedur yang lebih rumit daripada prosedur perubahan undang-undang biasa (ordinary statutes); dan (6) pengertian modern dan normatif, yang mencakup teori dan praktik pembatasan-pembatasan kekuasaan politik dan pemerintahan yang efektif, sistematis, dan terlembaga guna mencegah terjadinya pelanggaran terhadap hak-hak individu.[12] Namun, kata Friedrich, esensi konstitusionalisme adalah pembagian kekuasaan yang dengan cara itu tercipta sistem pembatasan kekuasaan yang efektif.[13] Karena itu, Heinz Klug lebih memandang atau memahami konstitusionalisme itu sebagai komitmen terhadap pembatasan kekuasaan atau kekuatan politik.[14]

Pendapat serupa juga dikemukakan oleh S.A. de Smith yang menyatakan “The idea of constitutionalism involves the proposition that the exercise of governmental power shall be bounded by rules, rules precribing the procedure according to which legislative and executive acts are to be performed and delimiting their permissible content.”[15] De Smith menambahkan bahwa konstitusionalisme menjadi suatu kenyataan hidup dalam pengertian bahwa peraturan (rules) yang membatasi kekuasaan pemerintah (dalam arti luas) itu dipatuhi oleh pemegang kekuatan politik dan dalam pengertian bahwa di wilayah-wilayah yang terlarang untuk dilalui oleh penguasa terdapat ruang yang cukup signifikan bagi pemenuhan kemerdekaan individu.[16]

Pertanyaan yang belum terjawab: apa sesungguhnya hakikat konstitusi itu? Mengapa ia harus dijadikan hukum tertinggi dalam negara hukum yang demokratis? Ada banyak pendapat dari kalangan cerdik pandai mengenai hal ini. Wade and Phillips, misalnya, memberikan pengertian konstitusi sebagai “A document having a special legal sanctity which sets out the framework and the pricipal functions of the organs of government of a State and declares the principles governing the operation of those organs.”[17]Sedangkan seorang sarjana lain, C.F.Strong, memberikan pengertian konstitusi sebagai “a collection of principles according to which the powers of the government, the rights of the governed, and the relations between the two are adjusted.”[18] Sementara itu, dalam pandangan Carl Schmitt, konstitusi baru dapat disebut sebagai konstitusi apabila sejalan dengan tuntutan kebebasan sipil dan memuat jaminan yang pasti terhadap kebebasan sipil tersebut. Karena itu, Schmitt mengelaborasi lebih jauh pandangannya tentang konstitusi dengan menekankan adanya dua ciri dasar dari konstitusi. Pertama, konstitusi berisikan suatu sistem jaminan kemerdekaan atau kebebasan. Sebagai perwujudan dari ciri dasar pertama ini, konstitusi harus memuat pengakuan hak-hak dasar, pembagian kekuasaan, dan suatu keterlibatan minimum langsung rakyat dalam proses legislasi melalui suatu majelis. Kedua, konstitusi harus berlandaskan pada suatu dokumen tertulis yang untuk mengubahnya lebih sulit daripada mengubah legislasi lainnya. Hal ini untuk memberi jaminan stabilitas dan sifat tetap yang lebih besar.[19]


Pengertian yang lebih komprehensif tentang konstitusi diberikan oleh Joseph Raz. Dikatakan terdapat tujuh segi atau ciri yang secara terpadu terkandung dalam dan membangun pengertian tentang konstitusi, yaitu:

First, the constitution defines the constitution and powers of the main organs of the different branches of government (This feature identifies the constitution as constitutive of the legal and political structure which is that legal system).

Second, it is, and is meant to be, of long duration: It is meant to serve as a stable framework for the political and legal institutions of the country, to be adjusted and amended from time to time, but basically to preserve stability and continuity in the legal and political structure, and the basic principles that guide its institution (The constitution is stable, at least in aspiration).

Third, it has a canonical formulation. That usually means that it is enshrined in one or a small number of written documents. It (they) is (are) commonly referred to as the constitution (The constitution – we say when referring to this feature – is written).

Fourth, it constitutes a superior law. This means that ordinary law which conflicts with the constitution is invalid or inapplicable (The constitution is superior law).

Fifth, there are judicial procedures to implement the superiority of the constitution, that is, judicial processes by which the compatibility of the rules of law and other legal acts with the constitution can be tested, and incompatible rules or legal acts can be declared inapplicable or invalid (The constitution is justiciable).

Sixth, while there usually are legal procedures for constitutional amendment, constitutional amendments are legally more difficult to secure than ordinary legislation (The constitution is entrenched).

Seventh, its provisions include principles of government (democracy, federalism, basic civil and political rights, etc.) that are generally held to express the common beliefs of the population about the way their society should be governed. It serves...not only as a lawyers’ law, but as the people’s law. It main provisions are generally known, command general consent, and are held to be (or part of the) common ideology that governs public life in that country (The constitution expresses a common ideology).[20]

Jadi, singkatnya, menurut Raz (1) konstitusi menentukan landasan dan kekuasaan organ-organ utama dari cabang-cabang pemerintahan yang berbeda-beda; (2) konstitusi dimaksudkan untuk berumur panjang, sebab ia dimaksudkan menjadi kerangka yang stabil bagi lembaga-lembaga politik dan hukum suatu negara; (3) konstitusi diformulasikan atau dirumuskan secara resmi; artinya ia harus tertulis; (4) konstitusi membentuk atau menjadikan dirinya superior atau sebagai hukum tertinggi, sehingga undang-undang biasa yang bertentangan dengannya dianggap tidak sah atau tidak dapat dilaksanakan; (5) ada prosedur peradilan untuk mewujudkan superioritas konstitusi itu; (6) mengubah konstitusi prosedurnya lebih sulit dari prosedur mengubah undang-undang biasa; dan (7) ketentuan-ketentuan konstitusi mencakup prinsip-prinsip atau asas-asas pemerintahan yang mencerminkan keyakinan bersama dari penduduk perihal cara bagaimana seharusnya mereka diperintah.

Dari penjelasan Raz di atas tampak bahwa dengan ketujuh aspek yang membangun pengertian konstitusi itu sesungguhnya seluruh ciri atau unsur negara hukum telah dicakup. Sebagaimana dikatakan Jimly Asshiddiqie, untuk menyebut satu contoh, ada dua belas prinsip pokok yang menjadi pilar utama negara hukum (sudah tentu negara hukum yang dimaksud adalah constitutional democratic state atau hukum yang demokratis) yaitu:[21]

(a) Supremasi Hukum (Supremacy of Law). Prinsip ini bukan hanya membutuhkan pengakuan secara normatif tetapi juga empirik. Pengakuan normatif terwujud dalam pembentukan norma hukum secara hirarkis yang berpuncak pada supremasi konstitusi. Sedangkan pengakuan empirik terwujud dalam perilaku pemerintahan dan masyarakat yang mendasarkan diri pada aturan hukum.

(b) Persamaan dalam Hukum (Equality before the Law). Dalam prinsip ini terkandung pengertian bahwa bukan hanya setiap orang memiliki kedudukan yang sama dalam hukum dan pemerintahan tetapi juga bahwa setiap sikap dan tindakan diskriminatif adalah sikap dan tindakan terlarang, kecuali tindakan-tindakan yang bersifat khusus dan sementara untuk mendorong mempercepat perkembangan kelompok tertentu (affirmative action).

(c) Asas Legalitas (Due Process of Law). Segala tindakan pemerintahan harus didasarkan atas peraturan perundang-undangan yang sah dan tertulis. Perundang-undangan tersebut harus ada dan berlaku terlebih dulu atau mendahului perbuatan yang dilakukan. Artinya, setiap perbuatan administratif harus berdasarkan rules and procedures. Agar hal ini tidak menjadikan birokrasi terlalu kaku, maka diakui pula keberlakuan asas friesermessen yang memungkinkan para pejabat administrasi negara mengembangkan dan menetapkan sendiri beleid-regels atau policy rules yang berlaku internal dalam rangka menjalankan tugas yang dibebankan oleh peraturan sah.

(d) Pembatasan Kekuasaan. Maksudnya, ada pembatasan kekuasaan negara dan organ-organ negara dengan cara menerapkan prinsip pembagian kekuasaan secara vertikal atau pemisahan kekuasaan secara horizontal. Tujuannya untuk menghindari penyalahgunaan kekuasaan dan mengembangkan mekanisme checks and balances antara cabang-cabang kekuasaan negara.

(e) Organ-organ Pendukung yang Independen. Prinsip ini merujuk pada pengaturan adanya lembaga pendukung yang bersifat independen dalam rangka pembatasan kekuasaan, misalnya bank sentral, organisasi tentara, kepolisian, dan kejaksaan serta lembaga-lembaga baru seperti Komisi Nasional Hak Asasi Manusia, Komisi Pemilihan Umum, Ombudsman, Komisi Penyiaran Indonesia, dan lain-lain. Sifat independen dari lembaga-lembaga tadi menjadi penting sebagai jaminan bahwa demokrasi tidak akan disalahgunakan oleh pemerintah.

(f) Peradilan Bebas dan Tidak Memihak. Hakim tidak boleh memihak kepada siapa pun kecuali kepada kebenaran dan keadilan. Juga tidak boleh dipengaruhi oleh siapa pun, baik oleh kepentingan jabatan (politik) maupun kepentingan uang (ekonomi). Untuk itu, tidak boleh ada intervensi terhadap putusan pengadilan.

(g) Peradilan Tata Usaha Negara. Keberadaan peradilan tata usaha negara secara khusus disebut (meskipun, sebagai bagian dari kekuasaan peradilan ia juga terikat pada prinsip peradilan yang bebas dan tidak memihak), karena dalam negara hukum harus terbuka kesempatan bagi warga negara untuk menggugat keputusan pejabat administrasi yang menjadi kompetensi peradilan tata usaha negara. Artinya, dengan adanya peradilan ini, hak-hak warga negara yang terancam terlanggar oleh keputusan pejabat administrasi negara, sebagai pihak yang berkuasa, akan terjamin dari adanya pelanggaran itu. Tetapi, keberadaan peradilan ini harus diikuti oleh jaminan bahwa putusannya ditaati oleh pejabat administrasi negara.

(h) Peradilan Tata Negara (Constitutional Court). Negara hukum modern juga lazim mengadopsi gagasan pembentukan mahkamah konstitusi. Tujuannya, memperkuat sistem checks and balances antara cabang-cabang kekuasaan negara untuk menjamin demokrasi.

(i) Perlindungan Hak Asasi Manusia. Jaminan perlindungan terhadap hak asasi manusia ini harus disertai dengan jaminan hukum bagi tuntutan penegakannya melalui proses yang adil. Terbentuknya negara tidak boleh mengurangi arti dan makna kebebasan dasar dan hak asasi. Dengan kata lain, jika di suatu negara hak asasi manusia terabaikan atau pelanggaran terhadapnya tidak dapat diatasi secara adil maka negara itu tidak dapat disebut sebagai negara hukum dalam arti yang sesungguhnya.

(j) Bersifat Demokratis (Democratische Rechtsstaat). Maksudnya, dianut dan dipraktikkannya prinsip demokrasi atau kedaulatan rakyat yang menjamin peran-serta masyarakat dalam proses pengambilan keputusan kenegaraan, sehingga peraturan perundang-undangan yang diterapkan dan ditegakkan mencerminkan perasaan keadilan masyarakat. Hukum tidak boleh dibuat dan diterapkan secara sepihak oleh dan/atau hanya untuk kepentingan penguasa. Hukum tidak boleh dibuat hanya untuk menjamin kepentingan beberapa orang yang berkuasa, melainkan untuk keadilan bagi semua orang. Dengan kata lain, negara hukum yang dikembangkan bukanlah absolute rechtsstaat tetapi democratische rechtsstaat.

(k) Berfungsi sebagai Sarana Mewujudkan Tujuan Bernegara (Welfare Rechtsstaat). Maksudnya, cita-cita hukum itu, baik yang dilembagakan melalui gagasan negara hukum maupun gagasan negara demokrasi, dimaksudkan untuk meningkatkan kesejahteraan umum.

(l) Transparansi dan Kontrol Sosial. Maksudnya, harus ada transparansi dan kontrol sosial terhadap setiap proses pembuatan dan penegakan hukum sehingga dapat memperbaiki kelemahan mekanisme kelembagaan demi menjamin kebenaran dan keadilan. Kebutuhan akan adanya partisipasi langsung dikarenakan mekanisme perwakilan di parlemen tidak selalu dapat diandalkan sebagai satu-satunya saluran aspirasi rakyat.

Uraian tentang konstitusionalisme di atas menunjukkan satu hal penting yakni bahwa ia (konstitusionalisme) ternyata bukan sekadar unsur atau syarat dari negara hukum yang demokratis melainkan, jika ditelaah secara holistik, merupakan perwujudnyataan ajaran constitutional democratic state itu sendiri. Dalam konteks Indonesia, dengan menelaah uraian di atas, setelah dilakukan perubahan terhadap UUD 1945, Indonesia secara normatif dan kelembagaan telah memenuhi unsur atau syarat negara hukum yang demokratis sebagaimana dimaksud oleh Pasal 1 ayat (2) dan (3) UUD 1945.

Mahkamah Konstitusi dan Supremasi Konstitusi

Sebagaimana telah disinggung di atas bahwa konstitusi menduduki posisi supreme dalam negara demokrasi yang berdasar atas hukum (constitutional democratic state). Pertanyaannya, bagaimana menjamin bahwa prinsip supremasi konstitusi itu benar-benar bekerja? Dengan kata lain, bagaimana menjamin bahwa konstitusi itu benar-benar ditaati dan dilaksanakan dalam praktik? Dari sinilah muncul kebutuhan akan adanya organ atau lembaga negara yang berfungsi mengawal konstitusi itu sehingga ia benar-benar ditaati dalam praktik penyelenggaraan kehidupan bernegara. Dari sini pula gagasan tentang pembentukan mahkamah konstitusi bermula.

Fungsi mahkamah konstitusi adalah melaksanakan constitutional review.[22] Sedangkan constitutional review memiliki dua tugas utama. Pertama, menjaga berfungsinya proses-proses demokrasi dalam hubungan saling mempengaruhi antara lembaga legislatif, eksekutif, dan yudikatif. Dengan kata lain, di sini constitutional review berperan menjaga bekerjanya prinsip saling mengawasi dan mengimbangi (checks and balances) antarcabang kekuasaan negara dengan cara mencegah perebutan kekuasaan oleh salah satu cabang kekuasaan negara dengan mengorbankan cabang-cabang kekuasaan negara lainnya. Kedua, yang berkait erat dengan tugas pertama itu, adalah untuk melindungi hak-hak atau kehidupan pribadi warga negara dari pelanggaran yang dilakukan oleh salah satu cabang kekuasaan negara.[23] Jadi, dalam hubungan ini, mahkamah konstitusi, dengan fungsi constitutional review-nya pada aspek yang kedua ini, berfungsi mengawal hak-hak individual warga negara yang dijamin oleh konstitusi (atau hak-hak konstitusional warga negara). Salah satu wujudnya, misalnya, jika terdapat undang-undang yang melanggar atau merugikan hak-hak konstitusional warga negara, undang-undang itu oleh mahkamah konstitusi akan dinyatakan bertentangan dengan konstitusi dan sekaligus tidak mempunyai kekuatan hukum mengikat.

Namun, dalam praktik, pengejawantahan gagasan tentang negara hukum itu tidak selalu diwujudkan dengan pembentukan mahkamah konstitusi (atau yang disebut dengan nama lain). Hal itu bergantung pada model sistem ketatanegaraan yang dianut. Mahkamah konstitusi (atau yang disebut dengan nama lain) hanya dikenal di negara-negara yang sistem ketatanegaraannya menerapkan constitutional model. Karena hanya dalam model inilah berlaku prinsip supremasi konstitusi. Sementara itu, di negara-negara yang sistem ketatanegaraannya menerapkan parliamentary model, tidak dikenal mahkamah konstitusi. Sebab, di negara-negara penganut sistem ini berlaku prinsip supremasi parlemen atau kedaulatan parlemen. Di negara-negara yang menganut sistem ini, yang memiliki kedudukan supreme bukanlah konstitusi melainkan parlemen. Dalam model ini, dengan doktrin kedaulatan atau supremasi parlemen, suatu undang-undang buatan parlemen tidak dapat diganggu-gugat oleh siapa pun – kepala negara, pemerintah, pengadilan, maupun warga negara.[24] Dengan prinsip atau doktrin supremasi atau kedaulatan parlemen ini, tidak ada pembatasan apapun terhadap kekuasaan parlemen, sehingga tidak ada satu pihak pun yang dapat mempersoalkan keabsahan tindakan parlemen.[25] Dalam sistem ini, parlemenlah yang dianggap sebagai pengawal hak-hak konstitusional warga negara, sebagaimana tercermin dalam undang-undang yang dibuatnya.

Salah satu negara yang hingga saat ini paling fanatik menerapkan sistem ketatanegaraan yang bercorak parliementary model ini adalah Inggris. Begitu Parlemen Inggris menetapkan suatu undang-undang maka semua cabang kekuasaan negara harus melaksanakannya dan tugas pengadilanlah untuk mempertahankannya. Dalam konteks inilah kekuasaan peradilan (the judiciary) dikatakan lebih rendah dari kekuasaan pembuat undang-undang (the legislature) dalam pengertian, “Judges cannot override laws passed by the Parliament ... on the ground that they are unconstitutional, unethical, unwise or for any other reason.”[26] Karena itu jika terdapat undang-undang yang dianggap melanggar hak konstitusional warga negara, tidak ada jalan konstitusional bagi pihak yang haknya terlanggar untuk melawan (to challenge) itu melalui pengadilan Inggris.

Ajaran atau prinsip supremasi parlemen yang diterapkan di Inggris itu dipengaruhi oleh, bahkan dapat dikatakan bersumber pada, ajaran A.V. Dicey. Menurut Dicey, paham atau ajaran supremasi parlemen mengandung dua ciri mendasar, yaitu pertama, kekuasaan legislatif Parlemen yang tidak terbatas (unlimited legislative authority of Parliament) dan, kedua, tidak ada kekuasaan legislatif tandingan (the absence of any competing legislative power).[27]

Dalam uraian Dicey tersebut terkandung tiga proposisi, yaitu:

(1) Tidak ada hukum apa pun yang tidak dapat dibuat oleh Parlemen (there is no law which Parliament cannot make);

(2) Tidak ada hukum apa pun yang tidak dapat dicabut atau diubah oleh Parlemen (there is no law which Parliament cannot repeal or modify);

(3) Berdasarkan Konstitusi Inggris, tidak ada pembedaan yang tegas atau nyata antara hukum yang bersifat tidak fundamental atau konstitusional dan hukum yang bersifat fundamental atau konstitusional (There is under the English Constitution no marked or clear distinction between laws which are not fundamental or constitutional and laws which are).[28]

Demikian besarnya kekuasaan Parlemen Inggris sehingga, jangankan pengadilan, bahkan konstitusi pun tidak dapat membatasi kekuasaan Parlemen Inggris, “Parliament is sovereign and can make or unmake any law it chooses, without being hindered by a Constitution, let alone judicial control.”[29] Namun, penting diberikan catatan bahwa yang dimaksud Konstitusi, menurut ajaran yang berlaku di Inggris, diartikan sebagai sekumpulan aturan yang dianggap fundamental, yang bersumber pada kebiasaan dan tidak tertulis, namun setiap saat dapat diubah oleh Parlemen tanpa harus melalui prosedur yang ditentukan sebelumnya (procedural precautions), misalnya persyaratan adanya pernyataan untuk mengubah konstitusi, persyaratan tentang mayoritas tertentu di Parlemen, atau referendum.[30]

Kembali kepada mahkamah konstitusi, dengan fungsi constitutional review-nya, orang pertama yang menggagas pembentukannya adalah Hans Kelsen.[31] Peristiwanya bermula dari runtuhnya Kekaisaran Austro-Hungaria (1919) pada akhir Perang Dunia I yang sekaligus menandai lahirnya Republik Austria. Tatkala Republik Austria terbentuk, Kelsen diangkat menjadi anggota Chancelery yang bertugas menyusun konstitusi dalam rangka pembaruan konstitusi Austria (1919-1920).[32] Pada saat itulah Kelsen menyampaikan gagasannya tentang perlunya dibentuk mahkamah konstitusi – yang terpisah dari sistem peradilan biasa – dalam konstitusi Republik Austria yang baru terbentuk itu, yang fungsi utamanya adalah untuk menegakkan konstitusi dengan kewenangannya untuk membatalkan suatu undang-undang jika bertentangan konstitusi.[33] Usul Kelsen tersebut diterima secara bulat dan dimasukkan sebagai bagian dari Konstitusi Federal Austria (Bundesverfassungsgesetz), yang disahkan dalam Konvensi Konstitusi 1 Oktober 1920, dan kemudian dikenal sebagai Konstitusi Tahun 1920.[34] Kelsen sendiri kemudian terpilih menjadi salah seorang hakim konstitusi Austria pertama selama sepuluh tahun sampai kemudian dilakukan sejumlah perubahan penting terhadap Konstitusi 1920 ini (pada tahun 1929) dan pada tahun 1930 Kelsen dipaksa berhenti karena alasan politis.[35]

Namun sesungguhnya, jauh sebelum Kelsen muncul dengan gagasannya tentang pentingnya mahkamah konstitusi guna mengawal konstitusi, praktik penerapan ajaran supremasi konstitusi, yang ditandai dengan adanya kewenangan pengadilan untuk menguji undang-undang yang dianggap bertentangan konstitusi (judicial review), sudah dilakukan di Amerika Serikat – yang bahkan, sebagaimana akan diuraikan selanjutnya, kini dianggap sebagai model pengujian konstitusional tersendiri – atas kepeloporan John Marshall tatkala menjabat sebagai Ketua Mahkamah Agung Amerika Serikat (US Supreme Court) melalui putusannya dalam kasus yang sangat bersejarah, yang hingga saat ini pun masih menjadi perbincangan, yaitu kasus Marbury v. Madison (1803).[36]

Ada sejumlah alasan yang dikemukan oleh Marshall mengapa suatu undang-undang dapat diuji konstitusionalitasnya oleh pengadilan. Dikatakan oleh Marshall bahwa konstitusi memiliki kedudukan fundamental dan konstitusi baru dapat dikatakan memiliki kedudukan fundamental jika (i) ia tidak dapat diubah dalam proses yang sama dengan proses perubahan undang-undang biasa; (ii) validitas atau keabsahan undang-undang biasa dapat diuji dengan menggunakan hukum fundamental tersebut sebagai rujukan pengujian; (iii) terdapat otoritas, dalam hal ini pengadilan, untuk menyatakan tidak konstitusionalnya suatu undang-undang biasa yang ditemukan terbukti tidak sesuai dengan ketentuan-ketentuan konstitusi.[37]


Pada bagian lain pertimbangan hukumnya dalam putusan terhadap kasus Marbury v. Madison tersebut Marshall, antara lain, menuliskan kata-katanya yang sangat terkenal bahwa:

The constitution is either a superior, paramount law, unchallengeable by ordinary means, or it is on a level with ordinary legislative acts, and, like other acts, is alterable when the legislature shall be pleased to alter it. If the former part of the alternative is true, then a legislative act contrary to the constitution is not law; if the latter part be true, then written constitutions are absurd attempts, on the part of the people, to limit a power in its own nature illimitable.[38]


Pertanyaan yang muncul adalah kalaupun dapat diterima pandangan yang menyatakan bahwa suatu undang-undang yang bertentangan dengan konstitusi adalah batal dapat diterima, siapa yang berwenang untuk memutuskannya? Terhadap pertanyaan ini Marshall menyatakan bahwa kewenangan itu melekat pada peran pengadilan untuk memutuskan konstitusionalitas hukum yang diterapkannya. Menurut Marshall:

It is emphatically the province and duty of the judicial department to say what the law is. Those who play a role to particular cases must of necessity expound and interpret that rule. If two laws conflict which each other, the court must decide on the operation of each. So if a law be in opposition to the Constitution; if both the law and the Constitution must apply to a particular case, so that the court must either decide that case conformably to the law, disregarding the Constitution, or conformably to the Constitution, disregarding the law; the court must determine which of this conflicting rules governs the case. This is the very essence of judicial duty.[39]

Yang juga menarik ialah bahwa, selain alasan-alasan sebagaimana dikemukakan di atas, Marshall juga menggunakan alasan sumpah jabatannya sebagai Hakim Agung sebagai bagian dari argumennya untuk menyatakan bahwa pengadilan, dalam hal ini Mahkamah Agung Amerika Serikat, memiliki kewenangan menguji konstitusionalitas suatu undang-undang. Marshall mengatakan bahwa hakim bersumpah untuk menegakkan konstitusi dan karenanya hakim akan melanggar sumpah itu jika ia menerapkan undang-undang yang bertentangan dengan konstitusi.[40]

Namun, Kelsen menolak pengujian konstitusional model Amerika ini dengan sejumlah alasan. Kelsen tidak setuju dengan konstruksi pemikiran yang diberlakukan dalam pengujian konstitusionalitas model Amerika itu yaitu bahwa sesuai dengan prinsip supremasi Konstitusi terhadap seluruh tindakan negara, maka setiap tindakan yang lahir tanpa otoritas Konstitusi tidak mempunyai validitas. Oleh karena itu manakala suatu pengadilan memutuskan bahwa suatu undang-undang bertentangan dengan konstitusi berarti pengadilan itu berpendapat bahwa undang-undang yang bersangkutan batal dan seolah-olah tidak pernah ada. Karena tidak pernah ada atau tidak memiliki validitas maka pengadilan tidak perlu melakukan tindakan positif apa pun untuk meniadakan validitas undang-undang itu. Pengadilan hanya perlu menyatakan bahwa undang-undang itu bertentangan dengan konstitusi dan, sebagai konsekuensinya, undang-undang itu dianggap sudah bertentangan dengan konstitusi sejak saat diundangkan. Karena itulah daya laku putusan hakim dalam pengujian konsitusionalitas undang-undang itu bersifat ex tunc atau pro-praeterito atau berlaku surut yaitu sejak saat pengundangan undang-undang yang dinyatakan bertentangan dengan konsitusi itu.

Konstruksi pemikiran inilah yang tidak dapat diterima. Sebab, menurut Kelsen, tidaklah mungkin menganggap suatu undang-undang yang diundangkan oleh legislator yang konstitusional sebagai batal sejak awal (void ab initio). Hanya pengadilanlah yang memiliki kekuasaan untuk menentukan apakah suatu undang-undang bertentangan dengan konstitusi. Jika orang menolak taat kepada suatu undang-undang yang diundangkan oleh legislator yang konstitutional dengan alasan karena ia yakin undang-undang itu bertentangan dengan konstitusi maka orang bersangkutan menanggung risiko bahwa tindakannnya itu oleh pengadilan akan dianggap tindakan melanggar hukum karena pengadilan berpendapat undang-undang tadi konstitusional.[41]

Alasan lain penolakan Kelsen terhadap pengujian konstitusional model Amerika ini ialah bahwa model ini tidak cocok diterapkan di negara-negara Eropa Daratan, khususnya Austria, yang tidak mengenal ajaran preseden atau stare decisis, karena tidak memberi kepastian hukum. Menurut Kelsen, sistem pengujian konstitusionalitas undang-undang yang diterapkan di Amerika Serikat kurang memberi kepastian hukum dibandingkan dengan pengujian konstitusionalitas undang-undang yang diterapkan dengan Model Eropa, dalam hal ini Austria. Menurut Kelsen, pengujian konstitusionalitas undang-undang yang diterapkan di Amerika Serikat yang berangkat dari kasus konkret kurang memberi kepastian hukum karena fakta bahwa suatu organ pelaksana hukum (dalam hal ini maksudnya Mahkamah Agung Amerika Serikat) menyatakan suatu aturan umum bertentangan dengan konstitusi dan (karena itu) tidak diterapkan dalam kasus konkret tertentu berarti bahwa organ negara tersebut (Mahkamah Agung) diberi kewenangan untuk membatalkan suatu aturan umum (a general rule) khusus hanya dalam kasus konkret itu karena undang-undangnya sendiri tetap sah dan karenanya dapat diterapkan dalam kasus konkret lainnya.[42]

Model-model Pengujian Konstitusional

Sebagaimana telah disinggung sebelumnya bahwa di negara-negara yang menerapkan constitutional model dalam sistem ketatanegarannya maka berlaku prinsip supremasi konstitusi. Dengan prinsip ini, seluruh praktik ketatanegaraan harus dapat diuji konstititusionalitasnya atau kesesuaiannya dengan konstitusi. Oleh karena itu harus ada lembaga atau organ negara yang bertugas melaksanakan fungsi pengujian konstitusional (constitutional review).[43]

Secara umum, dalam praktik-negara yang ada pada saat ini, terdapat dua model pengujian konstitusional, yaitu Model Amerika, yang sering juga disebut Model Terdesentralisasi atau Model Menyebar (Desentralized Model atau Difuse Model), dan Model Eropa, yang sering juga disebut Model Terpusat atau Model Kelsen (Centralized Model atau Kelsenian Model). Dalam pengujian konstitusional Model Eropa terdapat beberapa varian, yaitu Model Austria, Model Jerman, dan Model Perancis.

Pengujian konstitusionalitas undang-undang (judicial review) adalah bentuk terpenting dari pengujian konstitusional. Oleh sebab itu banyak penulis yang menyamakan pengujian konstitusional (constitutional review) dengan pengujian konstitusionalitas undang-undang (judicial review). Pandangan berkorelasi dengan sejarah kelahiran mahkamah konstitusi di negara-negara Eropa Daratan. Kehadiran mahkamah konstitusi diterima tidak lepas dari pengalaman pengalaman buruk negara-negara itu dalam menerapkan ajaran atau prinsip supremasi parlemen, yang dianggap menjadi sebab terjerumuskan mereka ke dalam dua kali perang dunia, maupun karena pengalaman berada di bawah rejim komunis yang otoriter, khususnya di negara-negara Eropa Tengah dan Timur. Pengalaman buruk itu kemudian menumbuhkan tekad kuat untuk menjadikan konstitusi benar-benar sebagai norma hukum yang secara yudisial dapat dipaksakan berlakunya terhadap pembentuk undang-undang. Caranya, dengan memberi kewenangan kepada suatu organ, dalam hal ini mahkamah konstitusi, untuk menyatakan suatu undang-undang yang dibuat oleh parlemen bertentangan dengan konstitusi.[44]

Ada sejumlah perbedaan dari kedua model pengujian konstitusional tersebut, sebagaimana dikatakan oleh László Sólyom, mantan Presiden Mahkamah Konstitusi Hungaria, yaitu:

pertama, dalam Model Amerika pengujian dilakukan secara menyebar (diffuse), maksudnya semua pengadilan mempunyai kewenangan untuk melakukan pengujian konstitusionalitas. Sedangkan, dalam Model Eropa pengujian itu dilakukan secara terpusat oleh lembaga tersendiri yang diberi fungsi untuk melakukan pengujian konstitusional itu;
kedua, dalam Model Amerika pengujian konstitusional senantiasa berangkat dari adanya kasus konkret atau kontroversi. Dengan kata lain, adanya kasus konkret merupakan syarat yang tak dapat ditiadakan untuk dapat dilakukannya pengujian. Sedangkan dalam Model Eropa, pengujian dilakukan secara abstrak, artinya untuk dapat dilakukannya pengujian tidak dipersyaratkan harus ada kasus atau peristiwa konkret dahulu melainkan cukup dengan mengajukan argumen-argumen atau dalil-dalil yang bersifat teoretik saja;
ketiga, dalam Model Amerika pengujian konstitusional itu terutama dilakukan oleh Mahkamah Agung, sedangkan dalam Model Eropa pengujian tersebut dilakukan oleh suatu badan atau lembaga yang terpisah di luar cabang peradilan biasa.[45]

Selain ketiga perbedaan pokok di atas, perbedaan lain yang juga cukup signifikan adalah bahwa pengujian konstitusionalitas undang-undang dalam Model Eropa tidak senantiasa dilakukan oleh pengadilan dan tidak selamanya dilakukan setelah berlaku sebagai undang-undang, seperti di Perancis misalnya di mana pengujian dilakukan oleh Dewan Konstitusi dan terhadap undang-undang yang telah diputuskan atau disetujui di parlemen namun belum diundangkan. Dalam varian ini, kelompok minoritas yang kalah di parlemen dapat mempersoalkan konstitusionalitas undang-undang – yang sebelumnya telah mereka tentang dalam perdebatan di parlemen – itu di hadapan Dewan Konstitusi yang memiliki kewenangan untuk membatalkan pengundangan undang-undang dimaksud dengan alasan bertentangan konstitusi.[46] Karena itulah, menurut Michel Rosenfeld, constitutional adjudicators dalam pengujian konstitusional Model Eropa memiliki fungsi membuat kebijakan (policy-making) yang penting.[47] Ditambah dengan ciri bahwa pengujian dilakukan secara abstrak maka, dalam pandangan Rosenfeld, pengujian konstitusional Model Eropa (c.q., mahkamah konstitusi) lebih politis dibandingkan dengan pengujian Model Amerika (c.q., khususnya Mahkamah Agung Amerika Serikat).[48]

Sementara itu, Victor Ferreres Comella membedakan pengujian konstitusional yang terpusat (Model Eropa) dan yang menyebar (Model Amerika) berdasarkan perbedaan struktural yang melandasinya. Menurut Comella, pengujian konstitusional Model Eropa memiliki struktur dualis (dualist structure), sedangkan pengujian konstitusional Model Amerika memiliki struktur monis (monist structure). Model Eropa dikatakan berstruktur dualis karena membedakan kekuasaan peradilan (dalam arti luas) ke dalam dua bagian, yakni “pengadilan-pengadilan biasa” (ordinary courts) dan “pengadilan konstitusi” (constitutional court). Model ini memberi pengadilan-pengadilan biasa itu “fungsi yudisial biasa” (ordinary judicial function), yang mencakup penerapan perundang-undangan untuk memutus kasus-kasus konkret, dan “fungsi konstitusional” (constitutional function) kepada pengadilan atau mahkamah konstitusi yang mencakup pengujian validitas perundang-undangan berdasarkan konstitusi. Sementara itu, Model Amerika dikatakan berstruktur monis karena satu cabang kekuasaan peradilan secara sekaligus melaksanakan kedua fungsi di atas (fungsi “judisial biasa” dan “fungsi konstitusional”).[49]

Keuntungan model pengujian konstitusional yang berstruktur dualis adalah bahwa struktur demikian lebih memungkinkan, meskipun tidak harus, untuk merancang mahkamah konstitusi secara berbeda dari pengadilan biasa. Misalnya, sebagai contoh, prosedur pengisian yang lebih bersifat politis dapat dipilih untuk diterapkan dalam pemilihan anggota mahkamah konstitusi, sementara untuk pengisian hakim-hakim biasa dipilih prosedur yang lebih menekankan pada sifat birokratis dan profesional. Atau, masa jabatan yang terbatas diberikan kepada anggota mahkamah konstitusi, sedangkan jabatan seumur hidup diberikan kepada hakim-hakim biasa, dan sebagainya. Intinya, menurut Comella, model pengujian konstitusional yang berstruktur dualis lebih memberi ruang bagi pengembangan variasi-variasi institusional sesuai dengan tuntutan kebutuhan suatu negara dibandingkan dengan model pengujian yang berstruktur monis.[50]


Mahkamah Konstitusi sebagai Pengawal Pancasila dan UUD 1945

Dengan mengadopsi atau membentuk Mahkamah Konstitusi berarti Indonesia menerapkan ajaran atau prinsip supremasi konstitusi dalam upayanya mewujudkan gagasan negara hukum yang demokratis. Sehingga, sistem ketatanegaraan Indonesia saat ini bercorak constitutional model. Dengan demikian, sebagaimana halnya dengan mahkamah konstitusi di negara lain, Mahkamah Konstitusi RI pun bertugas mengawal Konstitusi, c.q. UUD 1945, sehingga ia (UUD 1945) benar-benar dilaksanakan dan terjelma dalam praktik.

Wujud pengawalan terhadap UUD 1945 itu tercermin dalam kewenangan yang dimiliki oleh Mahkamah Konstitusi RI. Sehingga, dengan kata lain, seluruh kewenangan yang dimiliki oleh Mahkamah Konstitusi RI dapat dikembalikan kepada atau dijelaskan sesuai dengan fungsinya mengawal UUD 1945. Oleh karena menurut Pasal II Aturan Tambahan UUD 1945 dikatakan bahwa Undang-Undang Dasar Negara Republik Indonesia Tahun 1945 terdiri atas Pembukaan dan Pasal-pasal maka yang dikawal oleh Mahkamah Konstitusi RI bukanlah hanya Pasal-Pasal dari UUD 1945 melainkan juga Pembukaannya. Sehingga, dalam melaksanakan fungsi constitutional review-nya, yang merupakan wujud pelaksanaan pengawalannya terhadap UUD 1945, Mahkamah Konstitusi RI bukan hanya menggunakan Pasal-Pasal UUD 1945 sebagai batu ujinya melainkan juga Pembukaan UUD 1945.

Telah pula disebutkan pada bagian awal pengantar diskusi ini bahwa dalam Pembukaan UUD 1945, yang memiliki corak programatik, terdapat dasar negara Pancasila. Oleh karena itu, secara inheren Pancasila harus menjadi bagian dari batu uji dalam pelaksanaan fungsi constitutional review Mahkamah Konstitusi RI. Dengan cara demikian, dalam fungsi Mahkamah Konstitusi RI mengawal UUD 1945 otomatis juga terdapat fungsi mengawal dasar negara Pancasila.

Selanjutnya, sebagaimana diamanatkan dalam Pembukaan UUD 1945, yang kemudian dituangkan secara tegas dalam Pasal 1 ayat (2) dan (3) UUD 1945, bahwa negara yang hendak diwujudkan oleh para pendiri negara ini adalah negara demokrasi yang berdasar atas hukum, maka dalam fungsinya mengawal UUD 1945 (yang di dalamnya secara inheren termasuk mengawal dasar negara Pancasila) terkandung pengertian mengawal terwujudnya prinsip-prinsip negara hukum yang demokratis itu sehingga benar-benar ditaati dalam praktik penyelenggaraan kehidupan bernegara.

Sebagaimana disebutkan dalam Pasal 24C ayat (1) dan (2) UUD 1945, yang kemudian diatur lebih lanjut dalam Pasal 10 Undang-Undang Nomor 24 Tahun 2003 tentang Mahkamah Konstitusi (sebagaimana telah diubah dengan Undang-Undang Nomor 8 Tahun 2011 tentang Perubahan Atas Undang-Undang Nomor 24 Tahun 2003 tentang Mahkamah Konstitusi), Mahkamah Konstitusi berwenang mengadili dan memutus pada tingkat pertama dan terakhir yang putusannya bersifat final untuk:

(a) menguji undang-undang terhadap Undang-Undang Dasar;

(b) memutus sengketa kewenangan lembaga negara yang kewenangannya diberikan oleh Undang-Undang Dasar;

(c) memutus pembubaran partai politik; dan

(d) memutus perselisihan tentang hasil pemilihan umum.

Sementara itu, pada ayat (2) dari Pasal 24C UUD 1945 dikatakan bahwa Mahkamah Konstitusi wajib memberikan putusan atas pendapat Dewan Perwakilan Rakyat mengenai dugaan pelanggaran yang dilakukan oleh Presiden dan/atau Wakil Presiden menurut Undang-Undang Dasar. Meskipun dirumuskan seolah-olah sebagai kewajiban, esensi dari Pasal 24C ayat (2) UUD 1945 ini sesungguhnya adalah kewenangan.

Bagaimana menjelaskan seluruh kewenangan yang dimiliki oleh Mahkamah Konstitusi RI itu dihubungkan dengan fungsinya untuk mengawal UUD 1945 yang hendak mewujudkan negara hukum yang demokratis atau negara demokrasi yang berdasar atas hukum? Hal ini dapat dikembalikan kepada hakikat dan ciri-ciri dari negara hukum yang demokratis atau negara demokrasi yang berdasar atas hukum itu.[51]

Kewenangan untuk menguji undang-undang terhadap UUD 1945. Dalam negara hukum yang demokratis atau negara demokrasi yang berdasar atas hukum, sesuai dengan ciri constitutionalism, berlaku prinsip constitutionality of law. Menurut prinsip ini, tidak boleh ada peraturan perundang-undang di bawah undang-undang dasar atau konstitusi yang bertentangan dengan konstitusi.

Kewenangan memutus pembubaran partai politik. Dalam negara hukum yang demokratis atau negara demokrasi yang berdasar atas hukum, setiap warga negara dijamin haknya untuk menganut keyakinan politik dan mendirikan partai politik sesuai dengan keyakinan politiknya itu. Negara tidak boleh menghilangkan hak tersebut. Namun, sesuai dengan prinsip supremasi konstitusi, warga negara tidak boleh membuat partai politik yang ideologi, asas, tujuan maupun kegiatan atau program-programnya bertentangan dengan konstitusi. Sehingga, bilamana suatu partai politik memiliki ideologi, asas, tujuan maupun kegiatan atau program-program yang bertentangan dengan konstitusi berarti terdapat alasan konstitusional untuk membubarkan partai politik tersebut. Namun, negara tidak boleh melakukannya secara sewenang-wenang melainkan harus dibuktikan dalam dan diputus oleh pengadilan. Pengadilan dimaksud, dalam hal ini adalah Mahkamah Konstitusi. Hal ini sesuai dengan prinsip due process of law yang menjadi ciri negara hukum.

Kewenangan memutus sengketa kewenangan lembaga negara yang kewenangannya diberikan oleh UUD 1945. Dalam fungsinya mengawal konstitusi atau undang-undang dasar sesuai dengan ajaran atau doktrin negara hukum yang demokratis atau negara demokrasi yang berdasar atas hukum, mahkamah konstitusi (demikian pula Mahkamah Konstitusi RI) adalah juga berfungsi sebagai constitutional adjudicator. Oleh karena itu, manakala terdapat lembaga negara yang memperoleh kewenangannya berdasarkan konstitusi bersengketa soal kewenangan maka mahkamah konstitusilah yang berwenang untuk memutus sengketa demikian.

Kewenangan memutus perselisihan tentang hasil pemilihan umum. Dalam negara hukum yang demokratis dan negara demokrasi yang berdasar atas hukum, pemilihan umum merupakan wujud pelaksanaan hak politik warga negara sebagai pengejawantahan prinsip kedaulatan rakyat. Melalui pemilihan umumlah, pada hakikatnya, warga negara secara tidak langsung turut menentukan keputusan politiknya tentang penyelenggaraan kehidupan bernegara. Oleh karena itu, keputusan warga negara yang dijalankan secara demokratis harus benar-benar dijamin pelaksanaannya. Sebab hal itu dijamin oleh konstitusi sebagai bagian dari hak konstitusional warga negara. Sehingga, apabila terdapat perselisihan dalam hubungan ini harus disediakan mekanisme konstitusional untuk menyelesaikannya. Dan karena hal itu menyangkut perselisihan hak konstitusional maka yang berwenang memutus adalah Mahakamah Konstitusi.

Kewenangan yang berkenaan dengan kewajiban untuk memutus pendapat DPR bahwa Presiden dan/atau Wakil Presiden telah melakukan pelanggaran sebagaimana ditentukan dalam Konstitusi. Seorang Presiden (juga Wakil Presiden) dalam sistem pemerintahan Presidensial, Presiden (dan Wakil Presiden) dipilih langsung oleh rakyat. Artinya, legitimasi kekuasaan Presiden (dan Wakil Presiden) didapatkan langsung dari rakyat. Itulah sebabnya, salah satu ciri penting dari sistem presidensial adalah adanya masa jabatan yang bersifat pasti (fixed term of office). Presiden (dan Wakil Presiden) tidak dapat diberhentikan dalam masa jabatannya. Sebab, pada prinsipnya, hanya rakyatlah yang dapat memberhentikannya, yaitu dengan cara tidak memilihnya kembali. Namun, karena dalam negara hukum yang demokratis dan negara demokrasi yang berdasar atas hukum, terdapat ciri persamaan di hadapan hukum (equality before the law), maka bahkan seorang Presiden pun harus tunduk kepada prinsip ini. Atas dasar itulah, dalam sistem presidensial juga terdapat mekanisme impeachment yang memungkinkan Presiden (dan/atau Wakil Presiden) diberhentikan dalam masa jabatannya manakalah terbukti melakukan pelanggaran sebagaimana disebutkan dalam Konstitusi. Namun, kesalahan Presiden (dan/atau Wakil Presiden) itu harus dibuktikan terlebih dahulu secara hukum oleh pengadilan, dalam hal ini Mahkamah Konstitusi. Namun, karena pada dasarnya hak untuk memberhentikan Presiden dan/atau Wakil Presiden itu ada pada rakyat, maka Mahkamah Konstitusi hanya memutus terbukti tidaknya dugaan pelanggaran yang dituduhkan kepada Presiden dan/atau Wakil Presiden itu. Sedangkan keputusan untuk memberhentikan atau tidak memberhentikan Presiden dan/atau Wakil Presiden itu tetap ada di tangan rakyat, dalam hal ini diwakili oleh kelembagaan MPR.

Cisarua, Bogor, 15 November 2013.



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Tim Koopmans, 2003, Court and Political Institutions. A Comparative View, Cambridge University Press: Cambridge-New York-Melbourne-Madrid-Cape Town.

Vicki C. Jackson & Mark Tushnet, 2006, Comparative Constitutional Law, Second Edition, Foundation Press: New York.

Victor Ferreres Comella, “Is The European Model of Constitutional Review In Crisis?”, paper presented for the 12th Annual Conference on ‘the Individual Vs. the State, Central European University, Budapest, June 18-19, 2004. Victor Ferreres Comella, “The Consequences of Centralizing Constitutional Review in a Special Court: Some Thoughts on Judicial Activism”, http://www.utexas.edu/law/journals/tlr/ abstracts/82/ferreres.pdf.


* Disampaikan pada acara Bimbingan Teknis Penyelesaian Perkara Perselisihan Hasil Pemilihan Umum Legislatif 2014 Bagi Partai Gerakan Indonesia Raya (Gerindra) yang diselenggarakan oleh Kepaniteraan dan Sekretariat Jenderal Mahkamah Konstitusi Republik Indonesia, bertempat di Pusat Pendidikan Pancasila dan Konstitusi, Cisarua, Bogor, 10-13 Desember 2013.


** Ketua Pusat Kajian Konstitusi Fakultas Hukum Universitas Udayana, Hakim Konstitusi 2003-2008.


[1] PAH I BP MPR adalah alat kelengkapan MPR yang diiberi tugas mempersiapkan naskah rancangan perubahan UUD 1945 tahun 2000-2002. Sebelumnya, tugas itu diberikan kepada Panitia Ad Hoc III Badan Pekerja MPR (PAH III BP MPR) yang bertiugas mempersiapkan naskah rancangan perubahan UUD 1945 tahap I (1999-2000).


[2] Perhatikan rumusan kalimat pada alinea keempat Pembukaan UUD 1945, “Kemudian daripada itu.... maka disusunlah Kemerdekaan Kebangsaan Indonesia itu dalam suatu Undang-Undang Dasar Negara Indonesia...dst.”


[3] Lihat lebih jauh Majelis Permusyawaratan Rakyat Republik Indonesia, 2003, Panduan Dalam Memasyarakatkan Undang-Undang Dasar Negara Republik Indonesia Tahun 1945, Sekretariat Jenderal MPR RI: Jakarta.


[4] Hans Kelsen, 1961, General Theory of Law and State (translated by Anders Wedberg), Russel & Russel: New York, h. 260.


[5] Ibid., h. 261.


[6] Henc van Maarseveen and Ger van der Tang, 1978, Written Constitutions, A Computerized and Comparative Study, Oceana Publication Inc.-Sijthoff & Nordhoff: New York (USA)-Alphen aan den Rijn (Netherlands), h. 252.


[7] Lebih jauh tentang kedudukan pembukaan konstitusi atau undang-undang dasar serta sifat programatik Pembukaan UUD 1945, lihat I Dewa Gede Palguna, 2013, Pengaduan Konstitusional (Constitutional Complaint). Upaya Hukum terhadap Perlindungan Hak-hak Konstitusional Warga Negara, Sinar Grafika: Jakarta, h. 494-512. Buku ini mulanya adalah disertasi Penulis untuk meraih gelar doktor di Program Pascasarjana Fakultas Hukum Universitas Indonesia dengan judul Pengaduan Konstitusional: Upaya Hukum terhadap Pelanggaran Hak-hak Konstitusional Warga Negara (Studi Kewenangan Mahkamah Konstitusi dalam Perspektif Perbandingan).


[8] Lihat Mochtar Lubis, 1994, Demokrasi Klasik dan Modern, Edisi Pertama, Yayasan Obor: Jakarta, h. 12.


[9] Barry M. Hager, 2000, The Rule of Law. A Lexicon for Policy Makers, the Mansfield Center for Pacific Affairs, h. 19.


[10] Ralph C. Chandler et.al., 1987, The Constitutional Law Dictionary, Volume II: Governmental Powers, Clio Press Ltd.: Oxford, h. 16. Lihat juga David L. Sills, 1968, International Encyclopedia of the Social Sciences, Volume 3 and 4, The Macmillan Company & The Free Press and Collier-Macmillan Publishers: New York and London, h. 318.


[11] Politieia, dalam pandangan Aristoteles adalah bentuk pemerintahan yang terbaik, sebab di sini yang menjadi landasan penyelenggaraan negara adalah kebebasan dan persamaan dari setiap warga negara. Kekuasaan harus dijalankan secara bergentian dan berdasarkan undang-undang. Lebih jauh lihat Mochtar Lubis, loc.cit.; lihat juga Eric Nelson, 2004, The Greek Tradition in Republican Thought, Cambridge University Press: Cambridge-New York-Melbourne-Madrid-Cape Town-Singapore- Sao Paolo, h. 1


[12] Carl J. Friedrich, 1950, Constitutional Government and Democracy. Theory and Practice in Europe and America, Revised Edition, Ginn and Company: New York-Chicago-Atlanta-Dallas-Palo Alto-London-Toronto, h. 121-131.


[13] Ibid., h. 26.


[14] Heinz Klug, 2000, Constituting Democracy. Law, Globalism and South Africa’s Political Reconstruction, Cambridge University Press: Cambridge-New York-Oakleigh-Madrid-Cape Town, h. 18.


[15] Dalam John Hatchard et.al., 2004, Comparative Constitutionalism and Good Governance in the Commonwealth. An Eastern and Southern African Perspective, Cambridge University Press: Cambridge-New York-Melbourne-Madrid-Cape Town-Singapore-Sao Paolo: h. 1.


[16] Ibid.


[17] E.C.S. Wade and G. Godfrey Phillips, 1961, Constitutional Law, Longmans: London, h. 1.


[18] C.F. Strong, 1952, Modern Political Constitutions, Sidgwick & Jackson Limited: London, h. 9.


[19] Lebih jauh lihat Carl Schmitt, 2008, Constitutional Theory (translated and edited by Jeffrey Seitzer), Duke University Press: Durham and London. h. 89-93.


[20] Joseph Raz, “On the Authority and Interpretation of Constitutions: Some Preliminaries” dalam Larry Alexander, (Ed.), 1998, Constitutionalism, Philosophical Foundations, Cambridge University Press: Cambridge, h. 153.


[21] Jimly Asshiddiqie, 2008, Menuju Negara Hukum yang Demokratis, Sekretariat Jenderal dan Kepaniteraan Mahkamah Konstitusi: Jakarta, h. 49-52. Lihat juga Jimly Asshiddiqie, 2005, Konstitusi dan Konstitusionalisme Indonesia, edisi revisi, Konpress: Jakarta, h. 154-162; I Dewa Gede Palguna, op.cit., 107-110.


[22] Uraian yang cukup panjang lebar mengenai periodisasi dan pasang-surut perkembangan pemikiran atau gagasan tentang constitutional review ini, lihat, antara lain, Jimly Asshiddiqie, 2005, Model-model Pengujian Konstitusional Di Berbagai Negara, Cetakan Kedua, Konpres: Jakarta, h.1-47.


[23] H. Hausmaninger, 2003, The Austrian Legal System, Manzsche Verlags- und Universitätsbuchhandlung: Wien, h. 139.


[24] Tim Koopmans, 2003, Court and Political Institutions. A Comparative View, Cambridge University Press: Cambridge-New York-Melbourne-Madrid-Cape Town, h. 15.


[25] S.E. Finer et. al., 1995, Comparing Constitutions, Clarendon Press: Oxford, h. 43-44.


[26] Lihat Kevin Harrison & Tonny Boyd, 2006, The Changing Constitution, Edinburgh University Press: Edinburgh, h. 66.


[27] Lebih jauh, lihat A. V. Dicey, 1971, An Introduction to the Study of the Law of the Constitution, English Language Book Society and MacMillan: London and Basingstoke.h. 41-85.


[28] Sir John A.R. Marriott, 1938, English Political Institutions, An Introductory Study, Fourth Edition, Oxford University Press: Great Britain, h. 127.


[29] R.C. van Caenegem, 1995, An Historical Introduction to Western Constitutional Law, Cambridge University Press: Cambridge, h. 197-198. Atau, seperti kata-kata De Lolme, “It is a fundamental principle with English lawyers, that Parliament can do everything but make a woman a man, and a man a woman”; lihat Mauro Capelletti, 1989, The Judicial Process in Comparative Perspective, Clarendon Press: Oxford, h. 198.


[30] R.C. van Caenegem, op.cit., h. 198.


[31] Uraian panjang lebar mengenai gagasan Kelsen membentuk mahkamah konstitusi, lihat I Dewa Gede Palguna, op.cit., h. 191-215.


[32] R.C. van Caenegem, loc.cit; Lihat juga Herbert M. Kritzer (ed.), 2005, Legal Systems of the World, A Political, Social and Cultural Encyclopedia, Volume I: A-D, Pentagon Press: New Delhi, h. 93. Jimly Asshiddiqie, 2005, Model-model Pengujian Konstitusional Di Berbagai Negara, Cetakan Kedua, Konpres: Jakarta, h. 34; Herman Schwartz, 2000, The Struggle for Constitutional Justice in Post-Communist Europe, the University of Chicago Press: Chicago and London, h. 17.


[33] Herman Schwartz, loc.cit.


[34] Jimly Asshiddiqie, Model-model Pengujian ...loc.cit.


[35]Nicoletta Bersier Ladavac, “Hans Kelsen (1881-1973), Biographical Notes and Bibliography” dalam http://207.57.19.226/journal/Vol9/No2/art11.html.


[36] Uraian selengkapnya tentang kasus ini, beserta analisis komprehensif terhadapnya, lihat Robert Lowry Clinton, 1989, Marbury v. Madison and Judicial Review, University Press of Kansas: Kansas.


[37] Bandingkan uraian Durga Das Basu tentang sifat fundamental konstitusi ini dengan sifat funfamental hak-hak konstitusional tatkala hak-hak tersebut telah dimasukkan ke dalam dan menjadi bagian dari konstitusi tertulis; dalam Durga Das Basu, 2003, Human Rights in Constitutional Law, Wadhwa and Company: New Delhi-Nagpur-Agra, h. 59-60.


[38] Robert Lowry Clinton, op.cit., h. 98; lihat juga Helen Fenwick & Gavin Phillipson, 2003, Text, Cases & Materials on Public Law & Human Rights, 2nd Edition, Cavendish Publishing Ltd: London, h. 140.


[39] Robert Lowry Clinton, op.cit., h. 98.


[40] Lihat Erwin Chemerinsky, 1997, Constitutional Law, Principles and Policies, Aspen Law & Business: New York h. 43


[41] Hans Kelsen, “Judicial Review of Legislation: A Comparative Study of the Austrian and American Constitution” dalam The Journal of Politics, Vol. 4, No.2, May 1942, h. 190.


[42] ibid, h. 185.


[43] Tentang model-model pengujian konstitusional beserta praktiknya di beberapa negara serta relevansinya dengan Indonesia, lihat I Dewa Gede Palguna, op.cit., 322-491.


[44] Lihat Victor Ferreres Comella, “Is The European Model of Constitutional Review In Crisis?”, paper presented for the 12th Annual Conference on ‘the Individual Vs. the State, Central European University, Budapest, June 18-19, 2004, h. 2.


[45] Bandingkan lebih jauh dengan, antara lain, Mauro Cappelletti, 1989, The Judicial Process in Comparative Perspective, Clarendon Press: Oxford, h. 32-33; Vicki C. Jackson & Mark Tushnet, 2006, Comparative Constitutional Law, Second Edition, Foundation Press: New York, h. 465-467; Victor Ferreres Comella, “Is the European... loc.cit.


[46] Lihat Alec Stone Sweet, 1992, The Birth of Judicial Politics in France. The Constitutional Council in Comparative Perspective, Oxford University Press: Oxford, h. 48.


[47] Michel Rosenfeld, “Constitutional Adjudication in Europe and the United States: pradoxes and contrasts” dalam Georg Nolte (Ed.), 2005, European and US Constitutionalism, Cambridge University Press: Cambridge - New York - Melbourne - Madrid - Cape Town - Singapore -Sao Paolo, h. 197.


[48] Ibid.


[49] Victor Ferreres Comella, “The Consequences of Centralizing Constitutional Review in a Special Court: Some Thoughts on Judicial Activism”, http://www.utexas.edu/law/journals/tlr/ abstracts/82/ferreres.pdf., h. 3.


[50] Ibid.


[51] Untuk uraian yang lebih komprehensi mengenai hal ini, lihat I Dewa Gede Palguna, 2008, Mahkamah Konstitusi, Judicial Review dan Welfare State, Sekretariat Jenderal dan Kepaniteraan Mahkamah Konstitusi RI: Jakarta.
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