Wacana Pemekaran Daerah

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04 Maret 2010, 16:07 | dibaca 128210 kali

Prof.Amzulian Rifai
Dekan Fakultas Hukum
Universitas Sriwijaya

Bukan main dampak yang ditimbulkan oleh otonomi daerah. Diantaranya, hasrat untuk memekarkan wilayah. Dalam lima tahun, bertambah sekitar sembilan provinsi baru dan lebih dari 450 kabupaten/kota. Sumatera Selatan tidak terkecuali dalam soal ini. Paling baru lahir kabupaten Lintang Empat Lawang sebagai pemekaran kabupaten Lahat. Bahkan wacana membentuk Sumatera Tengah, sebagai pemekaran Sumatera Selatan. Tulisan ini bermaksud mengkaji berbagai aspek wacana pemekaran wilayah [...]

Menjadi perdebatan luas soal alasan mengapa daerah-daerah berkeinginan melakukan pemekaran wilayah. Berbagai dugaan dan kajian dilakukan mencoba menjawab apa yang melatar belakangi fenomena ini. Memang argumentasi yang paling sering dimunculkan bahwa pemekaran wilayah itu bertujuan untuk meningkatkan pelayanan kepada masyarakat. Selain itu juga bertujuan mempermudah masyarakat berurusan dikarenakan jarak mereka menjadi lebih dekat dengan pusat pemerintahan.

Benarkah perluasan daerah semata-mata bertujuan agar ada peningkatan pelayanan kepada masyarakat serta untuk memperpendek jarak jangkau masyarakat terhadap administrasi pemerintahan? Ataukah ada motif lain. Misalnya agar tercipta lebih banyak jabatan-jabatan lowong baik di lembaga legislatif maupun di lembaga eksekutif. Saya berkeinginan untuk memberikan jawaban atas pertanyaan-pertanyaan itu.

Agar tulisan ini tidak ngalor-ngidul saya berusaha membatasi pokok bahasan menyangkut tiga hal saja. Pertama, secara hukum apa syarat-syarat pemekaran suatu wilayah. Kedua, apa kemungkinan yang melatarbelakangi upaya pemekaran wilayah. Ketiga, sikap apa yang sebaiknya dilakukan oleh pemerintah daerah apabila muncul hasrat warganya untuk memekarkan wilayah.

Secara hukum syarat-syarat pemekaran suatu wilayah untuk menjadi kabupaten/kota atau provinsi tidak terlalu sulit. Di era otonomi daerah hukum cukup memberikan kelonggaran kepada daerah untuk melakukan pemekaran. Ini pula yang menjadi sebab mengapa sekarang kita melihat banyak daerah yang “bernafsu” melakukan pemekaran mulai dari tingkat kecamatan sampai ketingkat provinsi. Di Sumatera Selatan sendiri sekarang muncul wacana pembentukan Provinsi Sumatera Tengah sebagaimana juga kehendak membentuk Kabupaten Musi Rawas Utara. Pertama ingin dijawab, secara hukum apa syarat-syarat pemekaran suatu wilayah? Pemekaran wilayah diatur dalam UU No 32 tahun 2004. Beberapa ketentuan dalam Undang-Undang ini adalah: Pasal 4 (3) “Pembentukan daerah dapat berupa penggabungan beberapa daerah atau bagian daerah yang bersandingan atau pemekaran dari satu daerah menjadi dua daerah atau lebih.”

Pemekaran wilayah harus memenuhi syarat administratif, teknis, dan fisik kewilayahan (Pasal 5(1)). Syarat administratif untuk provinsi meliputi adanya persetujuan DPRD kabupaten/kota dan Bupati/Walikota yang akan menjadi cakupan wilayah provinsi, persetujuan DPRD provinsi induk dan Gubernur, serta rekomendasi Menteri Dalam Negeri. Syarat administratif untuk kabupaten/kota meliputi adanya persetujuan DPRD kabupaten/kota dan Bupati/Walikota yang bersangkutan, persetujuan DPRD provinsi dan Gubernur serta rekomendasi Menteri Dalam Negeri. Sedangkan syarat teknis meliputi faktor yang menjadi dasar pembentukan daerah yang mencakup faktor kemampuan ekonomi, potensi daerah, sosial budaya, sosial politik, kependudukan, luas daerah, pertahanan, keamanan, dan faktor lain yang memungkinkan terselenggaranya otonomi daerah. Syarat fisik meliputi paling sedikit 5 (lima) kabupaten/kota untuk pembentukan provinsi dan paling sedikit 5 (lima) kecamatan untuk pembentukan kabupaten, dan 4 (empat) kecamatan untuk pembentukan kota, lokasi calon ibukota, sarana, dan prasarana pemerintahan.

Namun bukan berarti apabila suatu daerah telah memenuhi persyaratan administratif, teknis, dan fisik kewilayahan maka dengan sendirinya pemekaran wilayah dapat dilakukan. Hal ini disebabkan oleh adanya persyaratan jangka waktu jalannya pemerintahan induk. Ada batas minimal usia penyelenggaraan pemerintahan untuk dapat melakukan pemekaran wilayah. Untuk pembentukan Provinsi disyaratkan sepuluh tahun, Kabupaten/Kota disyaratkan tujuh tahun, dan untuk Kecamatan batas minimal penyelenggaraan pemerintahan adalah lima tahun.

Pokok bahasan kedua adalah apa kemungkinan yang melatarbelakangi upaya pemekaran wilayah? Secara teori, tujuan pemekaran wilayah antara lain adalah: untuk peningkatan pelayanan kepada masyarakat, peningkatan keamanan dan ketertiban, percepatan pertumbuhan kehidupan demokrasi, percepatan pengelolaan potensi daerah, dan agar terjadinya percepatan pembangunan ekonomi daerah. Sulit bagi kita tidak sepakat dengan alasan ideal ini. Kalau saja pemekaran wilayah semata-mata dengan alasan-alasan tersebut, bukan main kemungkinan hasil positif yang dapat dicapai bagi kepentingan masyarakat.

Dalam praktek, muncul dugaan adanya alasan-alasan lain mengapa “kencangnya” hasrat untuk memekarkan wilayah dibanyak daerah, bukan dikarenakan alasan ideal tadi. Bahkan dibeberapa tempat terjadi disharmonisasi antar berbagai komponen masyarakat akibat silang pendapat soal pemekaran wilayah. Ada kelompok yang sangat ingin terjadinya pemekaran wilayah. Namun disisi lain ada pihak yang dianggap mempersulit rencana itu. Dalam praktek, ada beberapa alasan yang mungkin menjadi latar belakang pemekaran wilayah. Boleh jadi ada alasan ideal sebagaimana dikemukakan pada aspek teori soal pemekaran wilayah tadi. Namun juga berkembang kemungkinan alasan lain tentang mengapa ada pihak yang kebelet mau memekarkan suatu wilayah. Dua kemungkinan alasan lain itu adalah: sebagai gerakan politik pihak yang kalah dalam PILKADA dan agar tercipta jabatan-jabatan baru di wilayah pemekaran.

PILKADA selalu saja menyisakan pihak yang kalah. Dalam PILKADA dibanyak daerah, jumlah calon yang biasanya sekitar empat pasang. Itu berarti ada tiga pasang calon yang kalah. Memang semua kandidat akan berbicara soal sportivitas, soal janji akan menerima segala hasil pemilihan. Namun dibeberapa tempat pihak yang kalah melakukan perlawanan baik secara diam-diam maupun secara terang-terangan. Secara terang-terangan dimulai dari penggunaan kekerasan hingga kepada mempersoalkan perhitungan suara. Boleh jadi memang ada soal dengan perhitungan suaranya, namun biasanya publik menafsirkannya sebagai indikasi tidak siap menerima kekalahan.

Sebagai pihak yang kalah, cara paling aman adalah melakukan gerakan-gerakan politik yang sah secara hukum. Diantara gerakan politik yang dianggap sah secara hukum itu adalah melalaui prakarsa pemekaran wilayah. Pemekaran wilayah berarti ada kesempatan untuk menjadi kepala daerah. Selain itu, bukan mustahil sebagai upaya “menggembosi” kekuasaan kepala daerah yang sedang berkuasa. Bukankah pada Pilkada lalu ia adalah lawan politik? Gerakan-gerakan dalam upaya pemekaran akan menjadi gesekan berarti atau malah cukup memusingkan kepala daerah tersebut.

Hampir setiap manusia normal menginginkan jabatan. Alurnya begini. Seseorang yang belum memiliki kekuasaan akan berusaha untuk mendapatkan kekuasaan. Siapa yang berkuasa akan berjuang mempertahankan kekuasaan itu. Jika telah berkuasa akan berusaha meraih jenjang kekuasaan yang lebih tinggi lagi. Pemekaran wilayah sebagai salah satu upaya untuk mendapatkan kekuasaan.

Katakanlah terjadi pemekaran wilayah yang menghasilkan kabupaten baru, bakal terbuka lebih banyak lowongan jabatan yang tersedia. Mulai dari jabatan kepala daerah dan wakil kepala daerah, para asisten, Sekda, para KABAG, para kepala dinas. Ini jabatan yang utama saja. Begitu juga di legislatif, tersedia lowongan puluhan anggota Dewan, Unsur pimpinan, Ketua Komisi, Sekretaris Dewan, para kepala bagian. Bagi banyak orang pastilah lowongan-lowongan ini sangat menggiurkan.

MASA LALU:

Kelompok masyarakat Kabupaten Padang Pariaman, Sumatera Barat (Sumbar), yang mengaku mewakili rakyat setempat dan tergabung dalam Forum Peduli Masyarakat Padang Pariaman (FPMP) mendaftarkan gugatan class action (perwakilan kelas) terhadap Dewan Perwakilan Rakyat (DPR) maupun pemerintah-diwakili presiden-yang mengesahkan Undang-Undang (UU) Nomor 12 Tahun 2002 tentang Pembentukan Kota Pariman. FPMP mewakili suku Mandailing, Jambak, dan Tandjung, keberatan daerahnya dimekarkan menjadi dua daerah tingkat dua (II), yakni Kabupaten Padang Pariaman serta Kotamadya Pariaman.

Tagged:  Pemekaran Wilayah

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  • 19 Juli 2016, 13:35

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  • 18 Juli 2016, 16:49

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