Hukum Ekonomi atau Hukum dan Ekonomi

Oleh : T, Mulya Lubis

Summary

The author, a legal expert. In this article proposes the Introduction of a ne\ < university course, tentatively named "Law and Economics". To be taught a; Faculties of Law as well as at Faculties of Economics, such a course li proposed because of several reasons.

Indonesia has become more and more Involved In Increasingly complex economic relations; relations within the country as well as in an international context. Moreover, those relations are also undergoing constant change and Innovation. Developments In the legal field have lagged behind quite consider­ably In dealing with economic changes and the author speculates that this Is due to the Intrinsically conservative nature of law If viewed merely as an Instrument for the maintenance of order. In contrast, more recent views hold that law should also function as an Instrument of social engineering and as an agent of modernization.

The article points out that Indonesia's current body of laws regulating business and commercial relations was Introduced as long ago as 1848, and It was, moreover, an adaptation of Dutch business law. A change Is therefore long overdue.

Such a change must be carried out gradually unless Indonesia is pre­pared to overhaul its entire legal system. Also, all changes that are to be put into effect must adhere to the principle of social justice for all.

The author holds that there Is at present a perceived dichotomy between economic development and legal development. Such a separation between those two fields and, for that matter, the view that the field of law can stand Independently of other fields, should be abandoned In view of the all encompassing nature of Indonesia's development efforts.

The law should undergo changes In accomodation of the changes taking place In all aspects of Indonesian life as a result of development. At the same time all development efforts should be Imbued with a sense of justice. The student of law should now see himself - and the law - as agents of change.

EKI. Vol. XXVIII, No. 2, June 1980 2 0 3

Pengantar

L a l u l i n t a s e k o n o m i p a d a b e b e r a p a d e k a d e t e r a k h i r i n i s e m a k i n r a m a i d a n k o m p l e k s . L a l u U n t a s t e r s e b u t t e l a h m e n e m b u s t e r i t o r n a s i o n a l d a n s e r e n t a k d e n g a n i t u m e m b a w a s e r t a p e r s o a l a n - p e r s o a l a n b a r u y a n g m e h u n t u t p e m e -c a h a n - p e m e c a h a n b a r u . P e m e c a h a n t e r s e b u t b i s a sa ja s i f a t n y a m u l t i l a t e r a l s e p e r t i y a n g k i t a l i h a t p a d a p e n y e l e s a i a n s e n g k e t a e k o n o m i i n t e r n a s i o n a l m e l a l u i a r b i t r a s e , ' p e n g a t u r a n t a r i f b e r s a m a , * b e b a s c u k a i p a d a k e i j a s a m a r e g i o n a l * a t a u k e t e r i k a t a n y a n g s a m a d a l a m k e t e n t u a n p a t e n t i n t e r n a s i o n a l . * P e m e c a h a n t e r s e b u t b i s a p u l a b e r s i f a t b i l a t e r a l s e p e r t i y a n g b a n y a k t e r j a d i a n t a r - n e g a r a d e n g a n m e n g a d a k a n p e r j a n j i a n p e r d a g a n g a n . I n d o n e s i a s e n d i r i m e n g a d a k a n b a n y a k p e r j a n j i a n s e r u p a , m a l a h d e n g a n b e b e r a p a n e g a r a p e -n a n a m m o d a l d i I n d o n e s i a k i t a t e l a h m e m b u a t a p a y a n g d i s e b u t " I n v e s t ­m e n t G u a r a n t e e A g r e e m e n t " . *

P a d a t i n g k a t d o m e s t i k p u n l a l u l i n t a s e k o n o m i m e m b a w a p e r s o a l a n - p e r ­s o a l a n b a r u y a n g h a r u s d i p e c a h k a n d e n g a n j a w a b a n - j a w a b a n y a n g b a r u . B a ­n y a k p e r i s t i w a e k o n o m i d a n s e g i p r a n a t a e k o n o m i y a n g d u l u t i d a k k i t a j u m p a i d a n y a n g s e k a r a n g h a d i r d i t e n g a h k i t a . * A t a u a d a l e m b a g a b a r u y a n g b e r u p a p e r k e m b a n g a n e v o l u s i b e r p u l u h t a h u n s e p e r t i y a n g t e r j a d i p a d a k o n t r a k b a g i h a s i l p e r m i n y a k a n k i t a ( p r o d u c t i o n s h a r i n g c o n t r a c t ) . * S e m u a i n i t i d a k d i a t u r d a l a m k e t e n t u a n - k e t e n t u a n h u k u m k i t a . K a l a u p u n a d a k e ­t e n t u a n y a n g m e n g a t u r , m a k a k e t e n t u a n t e r s e b u t s a n g a t s u m i r d a n s e r i n g t i d a k m a m p u m e n y e l e s a i k a n p e r s o a l a n - p e r s o a l a n y a n g s e k a r a n g . * K a s u s " p e r -s a i n g a n t i d a k s e h a t " s u k a r s e k a l i d i s e l e s a i k a n s e m a t a - m a t a d e n g a n m e m a k a i

1 Sudargo Gautama, "ARBITRASE DAGANG INTERNASIONAL DARI NEGARA-NEGARA ASIA AFRICA" dalam HUKUM DAN PEMBANGUNAN, No. 6, Th IX, Nopember 1979, hal 571 - 591. 2 Pembahasan yang menarik bisa dibaca pada, Henry J. Steiner dan Detlev F. Vagts, TRANSNATIONAL LEGAL PROBLEMS, MATERIAL AND TEXT, New York, The Foundation Press Inc. 1976, hal. 1141 - 1168. 3 Ibid, hal. 1242 - 1417. 4 Ita Gambiro, PENGATURAN PEMINDAHAN TEKNOLOGI : SUATU DISKUSI MENGENAI PR AN AN PATENT, Jakarta, Pusat Studi Hukum dan Ekonomi, 1978 dan hal. 1 - 37. 5 Sudarjanto, INVESTMENT GUARANTEE AGREEMENT SEBAGAI PERJANJI-AN-PERJANJIAN ANTARA RI DENGAN BERBAGAI NEGARA (Skripsi), Fakultas Hukum Universitas Indonesia, 1972. Dalam Skripsi ini dibahas perjanjian antara RI dengan Amerika, Belanda, Belgia, Deiunark, Jerman, Korea Selatan, Norwegia dan Swiss. 6 Sunarjati Hartono, "TENTANG PENGERTIAN DAN LUAS LINGKUP HUKUM EKONOMI INDONESIA" dalam EKONOMI DAN KEUANGAN INDONESIA, vol XXVII, No. 1, Maret 1979, hal. 79. 7. T. Mulya Lubis, PERTAMINA : A STATES OIL ENTERPRISE IN A DEVELO PING COUNTRY, unpublished paper, 1978. 8 Sunarjati Hartono. loc-cit, hal 65 - 81.

2 0 4 E K I , Vol. XXVIII, No. 2, June 1980

a 5 p a s a l 1 3 6 5 K i t a b U n d a n g - U n d a n g H u k u m P e r d a t a . ' J u g a p a d a 3 8 2 b i s K i U n d a n g - U n d a n g H u k u m P i d a n a ( K U H P ) ' ° t i d a k b i s a m e n y e l e s a i k a n masa j i a p e r s a i n g a n t i d a k s e h a t i n i y a n g d i A m e r i k a t e l a h d i a t u r d e n g a n c u k u p njie m u a s k a n d a l a m Sherman Act s e r t a Clayton Act.''

K e t e r t i n g g a l a n h u k u m d a l a m l a l u l i n t a s e k o n o m i y a n g s e m a k i n k o j m -p l e k s i n i s e b a g i a n b e s a r k a r e n a s i f a t h u k u m y a n g s e b e t u l n y a k o n s e r v a t i p . I [uL k u m a d a l a h p o l i s i y a n g m e m e l i h a r a " s e c u r i t y a n d o r d e r " . H u k u m i t u s e r i s e k a l i b e r u b a h k a l a u n i l a i - n i l a i s u d a h b e r u b a h . P e n d a p a t i n i t i d a k s e p e n u h n W d i s e t u j u i o l e h p a r a a h h h u k u m y a n g c e n d e r u n g m e n a f s i r k a n h u k u m s e b a g a i " a g e n t o f m o d e r n i s a t i o n " a t a u s e p e r t i y a n g d i t u l i s o l e h R o s c o e P o u n d " 1 as a n i n s t r u m e n t o f s o c i a l e n g i n e e r i n g " . ' * K e d u a p e n d a p a t d i a t a s p u n y a b e n a r a n n y a s e n d i r i . K i t a d i I n d o n e s i a b i s a m e m b u k t i k a n a r g u m e n t a s i y a r j g m e m b e n a r k a n p e n d a p a t p e r t a m a , ' * j u g a b i s a p u l a d i b u k t i k a n h a l y a n g m e : d u k u n g p e n d a p a t y a n g k e d u a . ' * ^

9 Pasal 1365 KUHPer ini terlalu umum, dan suatu peraturan yang lebih detail adala i perlu apalagi jika Wta Ingln melindungj pengusaha-pengusaha kecil. Untuk lebih jelai Isi pasal tersebut dlkutlp dengan lengkap :

"Tlap perbuatan melanggar hukum yang membawa kerugian kepada seorang lain mewajlbkan orang yang karena salahnya menerbltkan kerugian Itu, mengganti ke rugian tersebut"

10 Pasal 382 bis KUHP Ini menurut beberapa ahli hukum justru tidak sepenuhnya mellndungl korban persaingan tidak sehat karena adanya unsur harus merugikan publlk. Sering terjadi publlk tidak dlrugikan, tetapi pengusaha yang besar seenaknya menggUas pengusaha yang kecU. Pasal 382 bis tersebut berbunyl sebagai berikut.

"Barangslapa melakukan suatu perbuatan menlpu untuk memperdayakan umum atau seorang dengan maksud untuk menetapkan, memelihara atau menambah hasU perdagangannya atau perusahaannya kepunyaan sendiri atau orang lain, dlhukum karena salahnya persaingan curang dengan hukuman penjara selama-lamanya satu tahun empat bulan atau denda sebanyak-banyaknya sembilan ratus rupiah, jika perbuatan Itu dapat menimbulkan kerugian bagi lawannya bersaing atau lawan ber­saing orang lain Itu".

11 Teks lengkap Sherman Act dan Qayton Act bisa dilihat pada appendix B dari, Phillip Areeda, ANTITRUST ANALYSIS, PROBLEMS, TEXT, CASES.lBoston. Little Brown and Company, 1974, hal. 1000 - 1017. 12 Roscoe Pound, AN INTRODUCTION TO THE PHILOSOPHY OF LAW. New Heaven, Yale University Press, 1972, hal. 25 - 47. 13 Seperangkat peraturan mengenai penanaman modal asing (PMA) dlbuat setelah ke-butuhan Itu terasa ada. Beberapa ketentuan yang membatasi Pertamlna untuk tidak mencari kredit jangka pendek dlbuat justru setelah Pertamlna dllanda krlsls. Lihat T. Mulya Lubis, opclt. 14 Contoh yang balk dl slnl adalah menurunnya angka perceraian dl beberapa daerah setelah dlundangkannya undang-undang Perkawinan (UU no. 1 th 1974) yang baru. Artikel yang bagus dalam hal Inl adalah June S. Katz dan Ronald S. Katz, "MEMBUAT UNDANG-UNDANG PERUBAHAN SOSIAL DI NEGARA YANG SEDANG MEM-BANGUN : UNDANG-UNDANG PERKAWINAN INDONESIA YANG BARU DITELI­TI KEMBALI" dalam HUKUM dan PEMBANGUNAN, No. 5, th IX, September 1979, hal. 515 - 528.

E K I , Vol. XXVIII, No. 2, June 1980 2 0 5

Hukum Dagang : Perlu Perubahan dan Perluasan" =

S e b e t u l n y a p e n g a t u r a n l a l u l i n t a s e k o n o m i d i I n d o n e s i a t i d a k s e m a t a - m a t a t e r d a p a t d i K i t a b U n d a n g - U n d a n g H u k u m D a g a n g ( K U H D ) , t e t a p i j u g a d i b a n y a k U n d a n g - U n d a n g y a n g l a i n s e p e r t i K U H P e r d , K U H P d a n s e j u m l a h o r d o n a n s i y a n g l a i n . K a l a u s u b - t i t e l i n i m e m a k a i i s t i l a h " H u k u m D a g a n g " se­b e t u l n y a y a n g d i m a k s u d a d a l a h s ega l a k e t e n t u a n - k e t e n t u a n y a n g l a i ^ u n g a t a u t i d a k l a n g s u n g b e r h u b u n g a n d e n g a n p e r d a g a n g a n ; d e n g a n l a l u l i n t a s e k o n o m i .

P e r t a n y a a n y a n g p e r t a m a h a r u s d i a j u k a n d i s i i i i a d a l a h : m e n g a p a H u k u m D a g a n g p e r l u p e r u b a h a n d a n p e r l u a s a n ? S e l a n j u t n y a , p e r u b a h a n se­p e r t i a p a y a n g d i l a k u k a n ? D a n , p e r l u a s a n k e a r a h m a n a k i t a m e s t i m e n g a r a h ? K e t i g a p e r t a n y a a n i n i a d a l a h p e r t a n y a a n y a n g p e n t i n g , d a n k a r e n a j a w a b a n ; a t a s p e r t a n y a a n i n i a k a n m e n j a d i i n d i k a s i m a u k e m a n a k i t a d e n g a n l a l u l i n t a s e k o n o m i k i t a . M e s k i j a w a b a n y a n g m u n c u l t e r a s a s a n g a t p r a k t i s , t e t a p i t e t a p a d a k a i t a n n y a d e n g a n i d e o l o g i y a n g m e n e n t u k a n a r a h s e s u a t u n e g a r a . H u k u m d a l a m b a n y a k n e g a r a s e r i n g d i j a d i k a n s e b a g a i a l a t l e g i t i m a s i , d a n i n i p u n t e r ­j a d i d i n e g a r a i n i . D a l a m k o n t e k s i n i h u k u m d a g a n g , a t a u a p a p u n n a m a n y a , b i s a sa ja b e r p e r a n s e b a g a i a l a t l e g i t i m a s i p o l i t i k p e r d a g a n g a n a t a u p e r e k o n o ­m i a n k i t a .

J a w a b a n a t a s p e r t a n y a a n p e r t a m a a d a l a b k a r e n a h u k u m d a g a n g , t e r ­u t a m a K U H D , a d a l a b h u k u m y a n g s u d a b k e t i n g g a l a n k e r e t a a p i . K U H D y a n g d i b e r l a k u k a n d i I n d o n e s i a s e j a k t a b u n 1 8 4 8 a d a l a b K U H D B e l a n d a y a n g d i c i p t a k a n p a d a t a b u n 1 8 3 8 d i B e l a n d a , a t a s d a s a r k o n d i s i s o s i a l e k o n o m i B e l a n d a w a k t u i t u . ' * K U H D B e l a n d a t e r s e b u t d i b e r l a k u k a n d i I n d o n e s i a m e ­l a l u i asas k o n k o r d a s i ; B u a t u / b i i k u m f o t o k o p i . K a r e n a K U H D t e r s e b u t d i b u a t p a d a t a b u n 1 8 3 8 , m a k a a d a l a b t i d a k m e n g b e r a n k a n j i k a K U H D t e r s e b u t t i d a k m a m p u m e n j a w a b p e r s o a l a n e k o n o m i b a r i i n L

K o n s e k w e n s i l o g i s d a r i s e m u a i n i a d a l a b m u t l a k n y a k e b a r u s a n d i l a k u ­k a n n y a p e r u b a b a n a g a r K U H D t e r s e b u t b i s a m e n g a t u r j u g a l a l u l i n t a s e k o ­n o m i y a n g s e k a r a n g t e r j a d i . D a l a m r a n g k a i n i s u a t u p e r u b a b a n y a n g d r a s t i s a d a l a b t i d a k m u n g k i n , k e c u a b b i l a k i t a b e r s e d i a m e r u b a b s i s t e m h u k u m k i t a . P e r u b a b a n y a n g b i s a d i l a k u k a n b a n y a l a b p e r u b a b a n p a r t i a l , p e o d a a b a n se­b a g i a n d e m i s e b a g i a n .

H e n d a k n y a d a l a m p e r u b a b a n y a n g a k a n d i l a k u k a n i n i a r a b p e r u b a b a n i t u d i p e r t i m b a n g k a n b e n a r . J a n g a n s a m p a i p e r u b a b a n t e r s e b u t j u s t r u m e r u g i ­k a n k e p e n t i n g a n u m u m d a n m e n g u n t u n g k a n s e g o l o n g a n o r a n g . P r i n s i p " k e -

15 Hukum Dagang di sini tidak terbatas pada Kitab Undang-Undang Hukum Dagang (Wetbook van Koophandel), tetapi j u ^ perangkat peraturan yang lain yang berhubungan langsung maupun tidak langsung dengan perekonomian. 16 H.M.N. Purwosutjipto, PENGERTIAN POKOK HUKUM DAGANG INDONESIA, Jakarta, Penerbit Jambatan, 1978, hal. 8 - 1 2 .

206 E K I , Vol. XXVIII, No. 2, June 1980

a d i l a n s o s i a l b a g i s e l u r u b r a k y a t I n d o n e s i a " b a r u s l a b d i j a d i k a n l a n d a s a n d i r i p e r u b a b a n K U H D i n i . P e r l i n d u n g a n t e r b a d a p p e n g u s a b a k e c i l b a r u s l a b t e d i j a m i n , j a n g a n m e r e k a j a d i k o r b a n p e r s a i n g a n t i d a k s e b a t d a r i p e n g u s ; b e s a r , n a s i o n a l m a u p u n a s i n g . A g a k n y a s u a t u p e r u b a b a n y a n g m e m b e r i k e m u d a b a n - k e m u d a b a n b a g i [ p e n g u s a b a k e c i l s u d a b p a d a t e m p a t n y a , a p a l i ; j i k a k i t a m a u b e r s e t u j u d e n g a n p e n d a p a t R o s c o e P o u n d y a n g m e n g a n g g i p b u k u m s e b a g a i a l a t " s o c i a l e n g i n e e r m g . ' *

Interaksi Pembangunan Hukum dan Pembangunan Ekonomi

E H a d a k a n n y a s u a t u d i k o t o m i a n t a r a p e m b a n g u n a n b u k u m d i s a t u p i b a k d s -n g a n p e m b a n g u n a n e k o n o m i d i l a i n p i b a k a d a l a b s a l a b d a n t i d a k t e p a t , t e r ­u t a m a d a l a m b e b e r a p a d e k a d e t e r a k b i r i n i d i m a n a p e r t u m b u h a n b u k u m dr n p e r t u m b u h a n e k o n o m i i t u s a l i n g b e r h u b u n g a n . ' * K a d a n g k a l a p e n g a r u h b i k u m t e r a s a k u a t , " t e t a p i l e b i b s e r i n g p e n g a r u h e k o n o m i l e b i b m e n e n t u k a n . ^ " A t a u s e r i n g p u l a b u k u m d a n e k o n o m i i t u b e r t a r u n g d u l u s e b e l u m k e t a b u a t i s i a p a y a n g b a k a l k e l u a r s e b a g a i p e m e n a n g . * '

Y a n g j e l a s i a l a b b a b w a s u a t u i n t e r a k s i m e m a n g t e n g a h t e r j a d i d a n m f n u r u t P o s n e r i n i b u k a n l a h b a l y a n g b a r u . I n t e r a k s i i n i t e l a b a d a s e j a k l a m a s e k a l i . D i A m e r i k a i n t e r a k s i y a n g p a l i n g intens t e r j a d i p a d a b i d a n g ' A n t t r u s t ' d a n ' S e c u r i t i e s r e g u l a t i o n s ' . * * S e k a r a n g b a l i n i m a l a b s u d a b a m a t b < -n y a k t e r j a d i d a l a m b a n y a k b i d a n g s e p e r t i U t i g a s i d a n a r b i t r a s e , * * m a l a b j u g i

d a l a m b a l - b a l y a n g s a n g a t p r i b a d i s e p e r t i p e r c e r a i a n . * * D a r i p e n e b t i a n [ y a n g p e m a b d i l a k u k a n d i A m e r i k a , P o s n e r m e n y i m p u -

k a n b a b w a s e b e t u b i y a a b b h u k u m s a m a sa j a d e n g a n a b b e k o n o m i , s a m a - s a m i " r a t i o n a l m a x i m i z e r " . D a l a m b a h a s a b u k u m s e b e t u l n y a k i t a b i s a m e n g a r t i k a i i

17 Roscoe Pound, op.cit. 18 • Richard A. Posner "THE ECONOMIC APPROACH TO LAW" dalam TEXAS LAV REVIEW, Vol 53, No. 4, May 1974, hal. 757 - 782. 19 June S. Katz dan Ronald S. Katz, loc. cit. 20 Dilahirkannya Undang-Undang Penanaman Modal Asing (UUPMA No. 1 th 1967 adalah karena pembangunan ekonomi sudah sangat membutuhkan seperangkat per aturan yang mengatur masuknya modal asing ke Indonesia. 21 Contoh yang baik di sini adalah Keppres 14/1979 yang ditujukan untuk membantv pengusaha lemah (= pengusaha pribumi). Pelaksanaan keppres ini sering mengalami ke-macetan karena realitas pembangunan ekonomi yang cenderung tidak mau membantu pengusaha lemah. Pertanyaan yang menarik di sini adalah sejauh mana Keppres ter­sebut effektip? (Cat Red. .Keppres tersebut kini telah diperbaiki). 22 Richard A. Posner, loc. cit. 23 Ibid 24 Robert H. Moonkin, BARGAINING IN THE SHADOW OF THE LAW : THE CASE OF DIVORCE, sebuah paper yang disampaikan pada sebuah seminar di Univer­sity College London, November 1978.

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" r a t i o n a l m a x i m i z e r " i n i d e n g a n " r e a s o n a b l e m a n " ; o r a n g y a n g m e m i U k i k e ­m a m p u a n u n t u k b e r b u a t s e s u a i d e n g a n a k a l s e h a t ( r e a s o n a b l e n e s s ) . K i r a n y a d i s i n i s o a l l o g i k a m e n j a d i m a s a l a b y a n g m e n g k a i t k a n s i f a t a t a u b a k e k a t d a r i b u k u m d a n e k o n o m i .

P o s n e r j u g a s a m p a i p a d a s a t u p e n d a p a t b a b w a s e r i n g t e r b u k t i s u a t u s i s t e m b u k u m i t u m e n d u k u n g e f f i s i e n s i e k o n o m i . P e n d a p a t i n i b a g i k i t a a g a k m e r a g u k a n s e b a b s e r i n g k i t a m e n d e n g a r k e l u b a n b a h w a t e r d a p a t c u k u p b a ­n y a k k e t e n t u a n b u k u m y a n g d i t a f s i r k a n m e n g b a m b a t k e m a j u a n e k o n o m i , t i d a k sa ja d i I n d o n e s i a * * t e t a p i j u g a d i n e g a r a - n e g a r a m a j u s e p e r t i A m e r i k a . * *

H a l l a i n y a n g d i k e m u k a k a n o l e b P o s n e r a d a l a b b e r b a s i l n y a d i y a k i n k a n -n y a a h l i h u k u m a g a r t i d a k b e r b e n t i p a d a k e t e n t u a n n o r m a t i p , t e t a p i m u l a i d e n g a n p e n d e k a t a n k u a n t i t a t i p , p e n d e k a t a n s t a t i s t i k . T i d a k s e m u a a b b b u ­k u m m e n e r i m a b a l i n i , t e t a p i s u a t u u s a b a p e r m u l a a n t e l a b d i r i n t i s . K i r a n y a k i t a b i s a b e r s e t u j u d e n g a n . P o s n e r b a b w a a n a b s a e k o n o m i a k a n a m a t m e m ­b a n t u d a l a m u p a y a k i t a m e n g a d a k a n p e m b a b a r u a n b u k u m .

D a r i b e b e r a p a a b l i b u k u m m u n c u l k r i t i k y a n g p a d a p r i n s i p n y a m e m -p e r t a n y a k a n s e j a u h m a n a a b b e k o n o m i p u n y a o t o r i t a s u n t u k m e m p e n g a r u h i a r a b p e r k e m b a n g a n b u k u m . A p a k a b a b b e k o n o m i t a b u t e n t a n g b u k u m i t u s e n d i r i ? B a g a i m a n a p u n , d e m i k i a n d i k e m u k a k a n , p e r s o a l a n b u k u m j e l a s t i d a k s a m a d e n g a n p e r s o a l a n e k o n o m i , t i d a k s e s e d e r h a n a s e p e r t i p e r s o a l a n " r a t i o n a l m a x i m i z i n g " d a n " e f f i c i e n c y " . L a g i p u l a , b u k u m i t u b e r u r u s a n d e n g a n k e -a d i l a n ( j u s t i c e ) y a n g s e r i n g s e k a b b e r t e n t a n g a n d e n g a n p r i n s i p " r a t i o n a l m a x i m i z i n g " d a n " e f f i c i e n c y " . K r i t i k - k r i t i k i n i k i r a n y a j u g a b i d u p d i I n d o ­n e s i a y a n g p a d a d a s a r n y a i n g i n t e t a p m e m p e r t a b a n k a n d i k o t o m i y a n g s u d a b t i d a k s e l a y a k n y a k i t a p e r t a b a n k a n .

Pendekatan Terpadu atas Pembangunan S e s u n g g u b n y a p e m b a n g u n a n y a n g d i c i t a - c i t a k a n d i d a l a m U U D ' 4 5 a d a l a b p e m b a n g u n a n y a n g m e n c a k u p sega l a b i d a n g ; t i d a k sa ja p e m b a n g u n a n e k o ­n o m i d a n p e m b a n g u n a n b u k u m t e t a p i j u s t r u m e n c a k u p p e m b a n g u n a n p o l i t i k d a n p e m b a n g u n a n b u d a y a . E s e n s i d a r i k a t a " m e w u j u d k a n k e a d i l a n s o s i a l b a g i s e l u r u b r a k y a t I n d o n e s i a " a d a l a b j u s t r u m e w u j u d k a n k e a d i l a n s o s i a l d a i a m s e g a l a s e g i . * * P a s a l - p a s a l y a n g t e r b a t a s p a d a U U D ' 4 5 j u s t r u t i d a k s e m a t a -

25 Pasal 54 lama KUHD adalah contoh yang menarik dari ketentuan hukum yang menghambat kemajuan pertumbuhan ekonomi Tidak mungkin ada modal asing mau mastk jika hak suaranya dibaUsi, dan karena ituiah akhirnya Pasal 54 KUHD tersebut dirobah menjadi "one share one vote ', melalui UU No. 4 th 1971. 26 Lambatnya penyelesaian perkara-perkara Antitrust di Amerika adalah contoh yang menarik dari adanya hambatan hukum terhadap kemajuan perusahaan. Kasus IBM sudah sekitar 10 tahun masih belum juga seiesai diperiksa di pengadiian. 27 T., Mulya Lubis, "PEMBANGUNAN DAN HAK-HAK ASASI MANUSIA" daiam PRISMA, No. 12, Desember 1979, Tahun VIII , hal. i2 - 14.

208 E K I , Vol. XXVIII, No. 2, June 1980

m a t a t e r b a t a s p a d a p e m e n u b a n k e b u t u b a n p o k o k ( b a s i c n e e d s ) t e t a p i ; u ; m e n g a n d u n g m a k n a p e r l u n y a p e m b a n g u n a n p o l i t i k , * * p e r l u n y a n e g a r a l i b a t d a l a m m e n g e l o l a k e k a y a a n n e g a r a u n t u k d i p e r g u n a k a n s e p e n u b n y a bja; k e m a k m u r a n r a k y a t b a n y a k . * '

K a l a u k i t a m e n g k a i t k a n U U D ' 4 5 d e n g a n p e m b a n g u n a n " m a n u s i a I n i o -n e s i a s e u t u b n y a " s e p e r t i y a n g k i t a b a c a p a d a G B H N , m a k a p e n a f s i r a n " p f nl-b a n g u n a n m a n u s i a I n d o n e s i a s e u t u b n y a " b a r u s l a b m e r u p a k a n p e m b a n g u i a j i d a l a m s e g a l a a s p e k k e b i d u p a n . * " K a l a u p u n G B H N m e n g e s a n k a n p e m b a n g Ir ­a n y a n g m e n g a n a k e m a s k a n p e m b a n g u n a n e k o n o m i n a m u n k a l a u k i t a b i c i r a s o a l " p e m b a n g u n a n " , m a k a y a n g b a r u s a d a d a l a m k e p a l a k i t a a d a l a b p e m ­b a n g u n a n y a n g t e r p a d u a t a u " p e m b a n g u n a n y a n g m u l t i - c o m p l e x " , k a l a u k i t a b o l e b m e n g u t i p S o e k a r n o . * '

D a l a m k e r a n g k a b e r p i k i r s e p e r t i i n i k i t a s u k a r u n t u k b e r s e t u j u d e n j a n p e m b a n g u n a n y a n g p a d a d i r i n y a m e l e k a t s u a t u s k a l a p r i o r i t a s k a r e n a b a l i n i b i s a sa ja s a m a d e n g a n m e m p e r b e s a r k u e n a s i o n a l l e b i b d u l u d a n b a r u k e n u -d i a n d i r a t a k a n . P e r t a n y a a n y a n g s e l a l u m u n c u l d i s i n i a d a l a b s k a l a p r i o r i a ! s a m p a i k a p a n d a n s i a p a y a n g m e n e n t u k a n s k a l a p r i o r i t a s ? S i a p a y a n g b e n n i m e n g a t a k a n b a b w a p e m b a n g u n a n e k o n o m i l e b i b p e n t i n g d a r i p e m b a n g u n i r b u k u m ? S i a p a y a n g b e r a n i m e n g a t a k a n p e m b a n g u n a n p o b t i k l e b i b p e n t i i g d a r i p e m b a n g u n a n e k o n o m i ?

K a l a u p e m b a n g u n a n b a r u s d i t a f s i r k a n s e b a g a i m e n c a k u p s e g a l a b i d a r { m a k a b u k u m y a n g m e n g a t u r p e m b a n g u n a n i t u s e n d i r i j e l a s m e r u p a k i r b u k u m s e g a l a b i d a n g , b u k u m d a g a n g , b u k u m t a t a n e g a r a , b u k u m a d m i n i s t r is: n e g a r a , b u k u m p i d a n a , b u k u m l i n g k u n g a n , b u k u m i n t e r n a s i o n a l d a n s e b a g i i -n y a . S o e n a r j a t i H a r t o n o a d a l a b b e n a r k e t i k a m e n g a t a k a n b a b w a s i f a t b u k c m e k o n o m i k i t a a d a l a b i n t e r d i s i p U n e r , m u l t i f b s i p l i n e r d a n t r a n s n a s i o n a l . * * P a i a a k b i r n y a k i t a b a r u s b e r h u b u n g a n d e n g a n b a n y a k d i s i p l i n d a n b a n y a k n e g a i a S e b a g a i b a n g s a y a n g t e n g a h b e r t u m b u h k i t a b e r a d a d a n a k a n t e r u s b e r a d a d i d a l a m p e r g a u l a n a n t a r - b a n g s a .

H a l l a i n y a n g m e m a k s a k i t a u n t u k m e n i l a i p e m b a n g u n a n s e b a g a i p e i b -b a n g u n a n y a n g t e r p a d u a d a l a b k a r e n a k i t a b e r a d a d a l a m d a e r a b p e n g a n b

28 Lihat misainya Pasai 28 UUD'45 yang berbunyi, "Kemerdekaan berserikat dan bf r-kumpui, mengeiuarkan pikiran dengan iisan dan tuiisan dan sebagainya ditetapkan ce-ngan undang-undang". 29 Lihat pasai 33 UUD'45 dan juga UU No. 18 Prp tahun 1960 mengenai Perusahaan Negara. 30 T. Mulya Lubis, loc. cit. 31 Suatu diskusi yang menarik mungkin bisa dibaca daiam tuiisan Malcolm Coidw^ii dan Ernst Utrecht, INDONESIA : AN ALTERNATIVE History, Sydney, Aitemati' Publishing Co-operative Limited, 1979, hal. 106 - 118. 32 Soenarjati Hartono, loc. cit.

E K I , Vol. XXVIII, No. 2, June 1980 2 0 ?

" w e l f a r e s t a t e i d e o l o g y " . * * E r a laissez faire s e b e t u l n y a b e l u m s e p e n u b n y a m u s n a b , t e t a p i i d e o l o g i n e g a r a k e s e j a b t e r a a n t e r a s a l e b i b m e n o n j o l . I d e n e g a r a k e s e j a b t e r a a n i n i k e l i b a t a n n y a m u l a i d i k e m b a n g k a n d e n g a n m e n g e ­i u a r k a n b e b e r a p a k e t e n t u a n p e m e r a t a a n s e p e r t i y a n g k i t a b a c a p a d a " d e l a p a n j a l u r p e m e r a t a a n " . * * P e m e r i n t a b s u d a b m u l a i m e n y a d a r i b a b a y a y a n g b a k a l t i m b u l j i k a p e m b a n g u n a n b e r j a l a n t e r u s t a n p a d i s e r t a i p e m e r a t a a n . P e m ­b a n g u n a n p a d a p r i n s i p n y a b a r u s l a b j u g a m e m i l i k i p e r a s a a n k e a d i l a n ( s e n s e o f j u s t i c e ) . * *

D e n g a n k e r a n g k a b e r f i k i r s e p e r t i d i a t a s k i t a b i s a m e l i b a t b e t a p a p e n ­t i n g n y a p e r a n a n b u k u m d a n a b l i b u k u m d a l a m p e m b a n g u n a n . H u k u m b a m s -l a b d i r o b a b d a n d i s e s u a i k a n d e n g a n k e b u t u b a n s e k a r a n g s e r t a r a s a k e ­a d i l a n s e d a n g k a n f u n g s i a b U b u k u m t i d a k l a g i t e r b a t a s p a d a m e m p e r k u a t s i s t e m t e t a p i j u s t r u m e m p e r c e p a t b e r u b a b n y a s i s t e m . * * A b b b u k u m b a r u s l a b m e n e m p a t k a n d i r i n y a p a d a k e p e n t i n g a n r a k y a t b a n y a k , b u k a n s e b a U k n y a .

D u a s i s i y a n g k e l i b a t a n n y a m e n o n j o l d i s i n i a d a l a b p e r t a m a , p e m ­b a n g u n a n i t u s e n d i r i , d a n k e d u a , s i s i p e m e r a t a a n . D u a s i s i i n i m e r u p a k a n outcome ymg w a j a r . I n i l a b y a n g k i r a n y a m e n g g i r i n g S o e n a r j a t i H a r t o n o p a d a 2 k a t e g o r i b u k u m e k o n o m i y a i t u H u k u m E k o n o m i P e m b a n g u n a n d a n H u k u m E k o n o m i S o s i a l . * *

Hukum Ekonomi atau "Hukum dan Ekonomi"

K a l a u k i t a s e m u a s e p a k a t b a b w a l a l u l i n t a s e k o n o m i y a n g s e m a k i n m e l u a s d a n k o m p l e k s i n i m e m b u t u b k a n s u a t u r a n g k a i a n k e t e n t u a n b u k u m y a n g m e n g a t u m y a , m a k a p e r t a n y a a n y a n g l a y a k d i a j u k a n d i s i n i a d a l a b a p a k a b r a n g k a i a n k e t e n t u a n b u k u m i t u d i l e k a t k a n sa ja p a d a " b u k u m d a g a n g ? " A t a u s e b a l i k n y a b a r u s d i c i p t a k a n s u a t u b u k u m b a r u y a n g a g a k t e r p i s a b d a r i b u k u m d a g a n g ?

S e b e t u l n y a , k a l a u m a s a l a b n y a b a n y a l e k a t - m e l e k a t k a n , t e n t u s o a l n y a t i d a k s u l i t . K e s u l i t a n k i t a a d a l a b k a r e n a a b l i - a b U b u k u m d a g a n g k i t a m e r a s a " b u k u m d a g a n g " i t u s u d a b c u k u p , d a n t i d a k p e r l u d i t a m b a b l a g i . A d a k e s a n b a b w a d a r i s e g i b u k u m s e b e t u l n y a t i d a k a d a p e i s o a l a n , b a n y a d a r i s eg i p e ­l a k s a n a a n k i t a m e n e m u i k e m a c e t a n * 33 Wolfgang G. Friedmann, "THE ROLE OF LAW AND THE FUNCTION OF THE LAWYER IN THE DEVELOPING COUNTRIES" dalam VanderWJt Law Review. vW 17, th. 1963, nal. 181 - 191. 34 Lihat Pidato Kenegaiaan Piesiden Soehaito di DPR t ^ 16 Agustus 1978 yang diterWtlcM oleh Departemen Penerangan R J . 35 T. Mulya Lubis, loc. cit. 36 Wolfgang G. Friedmann, loc. cit. 37 Soenarjati Hartono, loc. cit. 38 Di sini soal mental dan kultur sering dijadikan kamWng hitam. Tidak ditanyakan lebih jauh "mengapai ketentuan hukum itu tidak jalan? Faktor ketidaksiapan ihukum dalain menghadapi kompleloinva lalu/lintas ekonomi sering diabaikan.

2 1 0 feKI, Vol. XXVIH. No. 2, June 1989

B a g i s e m e n t a r a a h l i h u k u m d a g a n g k i t a h a r u s l e b i h d u l u m e r o m j a k b u k u m d a g a n g y a n g s e k a r a n g , d a n i n i b u k a n p e k e r j a a n y a n g m u d a b . B u can sa ja s o a l w a k t u y a n g b a k a l l a m a s e k a l i , t e t a p i j u s t r u k a r e n a b u k u m d a g i r g b u k a n sa ja t e r b a t a s d e n g a n " K U H D " s e m a t a . L a l u a p a k a b k i t a b a r u s m e r u ) a h j u g a k e t e n t u a n b u k u m y a n g l a i n y a n g d i l u a r K U H D ? * '

P e r s o a l a n y a n g d i h a d a p i m e m a n g c u k u p r u m i t , d a n k i t a s e d i k i t s e l a j i m e m i b k i k e b e r a n i a n u n t u k m e m u l a i p e r u b a b a n . K i t a t e r j e b a k d a l a m p r t s^s m e n u n g g u y a n g b e r k e p a n j a n g a n , e n t a b s a m p a i k a p a n s e d a n g k a n s e m e n l a r p i t u l a l u l i n t a s e k o n o m i m e n j a d i s e m a k i n k o m p l e k s . K i t a d e n g a n s e n g a j a i i e -n u t u p m a t a k i t a t e r b a d a p k e t i d a k l b e r l a k u a n p a s a l - p a s a l K U H D d a n ce-t e n t u a n p e r u n d a n g a n y a n g l a i n . S e o l a b k i t a m e n y e r a b k a n l a l u U n t a s e k o n c t n i k e d a l a m t a n g a n " k e b i a s a a n " b a r u y a n g d i t e n t u k a n o l e b i n t e r a k s i e k o n o r a d i p a s a r . A b U b u k u m s e c a r a d i a m - d i a m m e n y e r a b k e p a d a e k o n o m i d a n a i l i -a b l i e k o n o m i .

rtbak p e m e r i n t a b s e n d i r i t i d a k m e n u n j u k k a n s i k a p y a n g t e g a s . S u i t u t i n d a k l a n j u t y a n g m e n d u k u n g p e m b a n g u n a n e k o n o m i t i d a k d i l a k s a n a l aiji s e c a r a t e r p a d u . P e m e r i n t a b s e o l a b m e r a s a s u d a b m e l a k s a n a k a n t u g a s r y a d e n g a n m e n g e i u a r k a n UUPMA,*° U U P M D N * ' d a n U U P e r o b a h a n P a s a l 5 4 K U H D . * * S e m e n t a r a i t u p e r a t u r a n m e n g e n a i p e n g a l i b a n t e k n o l o g i , k o n t i a k m a n a j e m e n , k e r j a s a m a r e g i o n a l , l i n g k u n g a n d a n s e b a g a i n y a b e l u m j u g a t ! r l p i k i r k a n . * * M u n g k i n t i d a k b e r l e b i b a n j i k a d i k a t a k a n b a b w a p e m b a n g u n i r . b u k u m j a u b t e r t i n g g a l j i k a d i b a n d i n g k a n d e n g a n p e m b a n g u n a n e k o n o n i

K a r e n a i t u s u a t u u s a b a m e n ^ n v e n t a r i s i r p e r s o a l a n - p e r s o a l a n b u k i n j y a n g t i m b u l d a l a m l a i n l i n t a s e k o n o m i k i t a s u d a b w a k t u n y a d i k e r j a l a n | K a l a u p e r a t u r a n n y a b e l u m a d a , p e r a t u r a n n y a b a r u s s e g e r a d i b u a t . U n t i k b e b e r a p a p e r u s a h a a n b e s a r k i r a n y a k i t a s u d a b m u l a i b a r u s m e n j a d i k a n m e r e ca s e b a g a i " r e p o r t i n g c o m p a n i e s " y a n g s e c a r a b e r k a l a m e l a p o r k a n a k t i v i l a s b i s n i s n y a . L a l u s u a t u k e t e n t u a n y a n g a n t i s u a p - m e n y u a p , s e m a c a m " A r t i B r i b e r y A c t " y a n g s e k a r a n g b a n g a t d i p e r d e b a t k a n d i l i n g k a r a n b i s n i s A m e r i k a , m u n g k i n p e r l u j u g a d i j a j a g i . I n i b a n y a d u a c o n t o h , t e n t u b a n y a k c o n t o h l a n y a n g b i s a k i t a p a p a r k a n , t a p i d a f t a r c o n t o h i t u a k a n t e r l a l u p a n j a n g j i l ; a b a r u s d i s e b u t k a n d i s i n i .

S e k b k n a p b k a b b b u k u m d a n a b b e k o n o m i m e r a s a u n t u k s e m u a h d y a n g b a r u i n i b a r i i s a d a s u a t u c a b a n g b u k u m t e r s e n d i r i . P e n d a p a t i r u c u k i p m e n d a p a t t a n t a n g a n . M e n g a p a t i d a k b u k u m d a g a n g sa j a y a n g d i p e r k u a t , c i -

39 Pertanyaan sejenis ini muncui dari sementara ahii hukum dalam simposium mengle-nai "Aspek-Aspek Hukum Perusahaan Multinasional" yang diselenggarakan oleh Badsn Pembinaan Hukum Nasional, 17 - 19 September l979 di Jakarta. 40 Lihat UU no. 1 th 1967. 41 Lihat UU No 6 th 1968. 42 lihat UU No 4 th 1971. 43 Ita Gambiro, op. cit.

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r o m b a k d a n d i p e r b a b a r u i ? S u a t u p e n d a p a t y a n g s i m p a t i k , t e t a p i p a t u t d i -c a t a t d i s i n i b a b w a s e b u a b t e a m y a n g b e r t u g a s m e n y u s u n K U H D y a n g b a r u y a n g b e r a d a d i b a w a h n a u n g a n B a d a n P e m b i n a a n H u k u m N a s i o n a l ( B P H N ) t i d a k p e n a h b e r h a s i l k e l u a r d e n g a n r a n c a n g a n y a n g b a r u . * * M a s a l a h n y a m e m a n g c u k u p s u l i t d a n a k a n m a k a n w a k t u y a n g l a m a .

H a l l a i n , y a n g d i p e r m a s a l a b k a n a d a l a b d u a l i s m e b u k u m y a n g b a k a l t u m b u b . K e k b a w a t i r a n i n i a d a l a b k e k b a t v a t i r a n y a n g k l a s i k , d a n s e d i k i t a g a k b e r l e b i b a n . H a r u s n y a d i s a d a r i b a b w a h u k u m b a r u y a n g a k a n d i c i p t a k a n i n i a d a l a b b u k u m y a n g b e l u m t e r d a p a t p a d a k e t e n t u a n p e r u n d a n g a n s e b e l u m n y a . L a g i p u l a k i t a b i c a r a s o a l l a l u U n t a s e k o n o m i s e k a r a n g y a n g s e m a k i n k o m ­p l e k s d a n m e n u n t u t p e n g a t u r a n y a n g b a r u p u l a .

J a d i , m a u t i d a k m a u m e m a n g b a r u s a d a s u a t u c a b a n g h u k u m y a n g b a r u . P e r t a n y a a n n y a a d a l a b a p a n a m a c a b a n g b u k u m t e r s e b u t ? S e b a g i a n m e n a m a k a n n y a " h u k u m e k o n o m i " , * * d a n s e b a g i a n l a g i m e n a m a k a n n y a " h u k u m d a n e k o n o m i " . * * J u g a a d a y a n g m e n a m a k a n n y a " h u k u m d a n p e m ­b a n g u n a n " . * * B e l u m a d a k e s e p a k a t a n d a l a m b a l i n i .

I s t i l a h " b u k u m e k o n o m i " c e n d e r u n g l e b i b m e n e k a n k a n s o a l d a l i l - d a U l e k o n o m i y a n g b e r h u b u n g a n d e n g a n b u k u m p e n a w a r a n d a n p e r m i n t a a n m i s a l ­n y a . K u r v e L o r e n z d a n G i n i C o e f f i c i e n t t e r m a s u k d a l a m j a l u r i n i . K i r a n y a i s t i l a h i n i b i s a m e n g u n d a n g k e k a b u r a n - k e k a b u r a n .

I s t i l a h " h u k u m d a n e k o n o m i " a g a k n y a l e b i h m e n a r i k d a n l e b i b l u a s d a y a j a n g k a u n y a . N a m a " P u s a t S t u d i H u k u m d a n E k o n o m i " ( P S H E ) y a n g t e r d a p a t p a d a F a k u l t a s H u k u m U n i v e r s i t a s I n d o n e s i a a d a l a b n a m a y a n g d i p i l i h m e n g g a n t i k a n n a m a " P u s a t S t u d i H u k u m D a g a n g " ( P S H D ) y a n g d i r a s a k a n t e r l a l u s e m p i t . D e n g a n m e n e m p a t k a n k a t a p e n g b u b u n g " d a n " a n t a r a b u k u m d e n g a n e k o n o m i s e b e t u l n y a k i t a m e m b u k a b a n y a k k e m u n g ­k i n a n p e r l u a s a n d i m a s a d a t a n g . P e n u l i s l e b i h c o n d o n g p a d a i s t i l a h i n i w a l a u p u n i s t i l a h " h u k u m d a n p e m b a n g u n a n " j u g a t i d a k b e g i t u b e r b e d a .

Penutup T u i i s a n i n i a d a l a b s u a t u u s a b a a w a l u n t u k m e n c o b a m e U b a t r e l e v a n s i " H u ­k u m d a n E k o n o m i " s e b a g a i s u a t u c a b a n g k u l i a h b a r u y a n g b i s a d i k e m b a n g ­k a n d i F a k u l t a s H u k u m d a n F a k u l t a s E k o n o m i . K a l a u t u i i s a n i n i m a m p u m e n g a j a k o r a n g l a i n u n t u k m e m i k i r k a n m a s a l a h fail, m a k a t u i i s a n i n i b i s a d i a n g g a p b e r b a s i l .

44 Prof. Soekardono almarhum pemah duduk dalam team ini. Sampai hari ini kita belum melihat ada hasil yang kongkrit dari team ini. 45 Soenarjati Hartono, loc.cit. 46 Richard. A. Posner, loc.cit. 47 Elliot M. Burg, "LAW AND DEVELOPMENT : A REVIEW OF THE LITERA­TURE & A CRITIQUE OF 'SCHOLARS IN SELF-ESTRANGEMENT" dalam THE AMERICAN! JOURNAL OF COMPARATIVE LAW, Vol XXV, Summer 1977, Number 3, hal 4 9 2 - 530.

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