Attribution-ShareAlike 4.0 International (CC BY-SA 4.0)
Vol. 03, No. 10, October 2023
e-ISSN: 2807-8691 | p-ISSN: 2807-839X
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Reconstructing Legal Frameworks: Central-Local
Government Collaboration during the Pandemic in
Indonesia
Trubus Rahardiansah Prawiraharja
Legal Sciences, Faculty of Law, Universitas Trisakti, Indonesia
Email: trubu[email protected]
Keywords
ABSTRACT
Reconstruction, Regional
Government, Legal Relations,
Pandemic.
This research discusses the issue of centralization and
decentralization in handling the COVID-19 pandemic,
focusing on the Indonesian context. Criticism of
decentralization in COVID-19 was conveyed by Smith (2012),
who considered it a form of centralization that strengthens
narrow interests and threatens the public interest. This
research also looks at the implementation of health
decentralization in Natuna, which is experiencing severe
challenges such as a shortage of medical personnel, lack of
timely available funds, and inadequate availability of vaccines
and medical materials. In addition, the COVID-19 pandemic
has raised challenges in coordinating and managing
responses in various countries, with some adopting a
centralized approach and others favoring decentralization.
This research tries to explore the legal links between the
central and regional governments in handling COVID-19 in
Indonesia, with a focus on the impact of existing regulations
such as Law No. 24 of 2007 concerning Disaster Management,
Law No. 23 of 2014 concerning Regional Government, and
Law no. 6 of 2018 concerning Health Quarantine regarding
cooperation and coordination between the central and
regional governments in handling the pandemic. This
research is vital because COVID-19 is a global health crisis
affecting various social, economic, and political aspects. With
a better understanding of the legal relationship between
central and regional governments in handling the pandemic,
it is hoped that response coordination and effectiveness can be
improved, thereby saving lives and reducing adverse social
and economic impacts. This research has the advantage of
focusing on the legal relationship between the central and
regional governments in handling the COVID-19 pandemic in
Indonesia and recommendations for reconstructing this legal
relationship by referring to the 1945 Constitution. Good
collaboration between the central and regional governments
is considered vital in handling the COVID-19 pandemic -19 in
the future.
INTRODUCTION
During efforts to find appropriate regulatory alternatives in dealing with the Covid-19 pandemic,
issues regarding centralization and decentralization have emerged (Aubrecht et al., 2020; García-Avila
et al., 2023; Hegele & Schnabel, 2021; Janssen & Van der Voort, 2020; Lv et al., 2022; Navarro & Velasco,
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2022). Smith (2012) criticized decentralization, which also occurred in Indonesia. This criticism
contains centralization, which makes it separatist and parochial (narrow-minded) (Bush, 1986).
Decentralization also strengthens sectional and narrow needs and threatens the general will. The
Natuna district government has demonstrated decentralization in Covid-19 (Sambuaga et al.,
2023)(Soesilo & Rahman, 2022). President Joko Widodo asked the people on Natuna Island to prioritize
their sense of humanity towards the people quarantined on Natuna Island. Health decentralization
shows a hostile situation with evidence of non-fulfillment of training and health standards for health
workers (Samerkhanova, 2006).
Community health centers are still not running effectively even though they are the people's
mainstay in health work; the indications are a lack of medical personnel and substandard medical
personnel, inadequate availability of funds on time, and inadequate availability of vaccines/drugs and
consumable medical materials. Seeing the danger of Covid-19 and the WHO has designated Covid-19 as
a danger to people's health; the government should designate this situation as a health emergency
(Fakhruddin et al., 2020)(Liu et al., 2022). Then, in line with the role of each central government in terms
of its capacity to involve the Regional Government (then abbreviated to Pemda) in health consideration
work carried out in the context of decentralization in Indonesia (Barr et al., 2006; Ha & Kumar, 2021;
Hasanuzzaman et al., 2013; M. S. Hidayat et al., 2018; R. Hidayat et al., 2017; Malik et al., 2020; Moenta,
2019; Rudi, 2020; Sutiyo & Maharjan, 2017).
Right now, the world is facing a global pandemic caused by Covid-19. Pandemic This has
influenced almost every aspect of human life, including health, economic, social, and political (Clemente-
Suárez et al., 2021; Demirbaş et al., 2020; McNeely, 2021; V. Mishra et al., 2020; Mofijur et al., 2021;
Strong, 2019; Tisdell, 2020). Policy handling the pandemic varies significantly across countries, with
some countries implementing an approach of centralization, while others are more push
decentralization. It produces some challenges in coordinating and managing responses to the pandemic.
This study will explore the connection law between government central and regional in handling
the Covid-19 pandemic in Indonesia. The focus is on how existing regulations, such as Law No. 24 of
2007 concerning Countermeasures Disaster, Law No. 23 of 2014 concerning Regional Government, and
Law No. 6 of 2018 concerning Health Quarantine, affect cooperation and coordination between
government central and regional in handling pandemics (Djamali, 2012; Gadjong, 2007; Santoso, 2013).
Previously, many studies have been done on handling the COVID-19 pandemic in various
countries. However, research that discusses explicitly an aspect of the legal connection between
government central and regional in the Indonesian context still needs to be completed (Diantha & Sh,
2016). Therefore, research tries to fill in the gap in knowledge by analyzing existing regulations and
practices related to fields of the COVID-19 pandemic (Sulistyawati et al., 2021).
This study is very important because the COVID-19 pandemic is a global health crisis that has
never happened before and has been influencing every layer of society. More understanding and good
connection law between government central and regional in handling the pandemic can help increase
coordination and effective response, saving lives and reducing the impact of detrimental social and
economic consequences.
This Novelty research lies in its particular focus on relationships law between government
central and regional in the context of handling the Covid-19 pandemic in Indonesia. Study this will give
an outlook on How existing regulations _ influence coordination and cooperation between government
central and regional in emergency people's health situations.
Implications from the study this can cover changes in policy public related to handling the
COVID-19 pandemic in Indonesia, improvements in existing regulations, and improvements in
coordination between government central and regional in response to crisis health like this.
Additionally, research _ can also be done to contribute to the development of knowledge law in
Indonesia in the context of handling emergency people's health.
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Trubus Rahardiansah Prawiraharja
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METHODS
This Methodology study law analyzes the connection law between government central and
regional in handling the Covid-19 pandemic in Indonesia. This Study use method studies law normative
with approach conceptual and legal positive. Source material primary law covers various constitutions,
such as the 1945 Constitution, the Law on Regional Government, Mitigation Law Disasters, Regional
Government Law, Health Quarantine Law, and others. Source material law secondary covers journal law,
books, encyclopedia law, and relevant dictionaries with topic research (Garner & Black’Law Dictionary,
2019). Collection material law combines technique studies libraries and snowball methods to get more
data. Material law is analyzed using the concept and foundation interpretation of law based on theories
relevant to law. This study also has novelty with focus on reconstruction connection law between
government central and regional in regulations enforcement pandemic as well as use paradigm
sociology laws and approaches theory law positive and responsive (Ali & Heryani, 2015).
RESULTS
A. Meaning Legal Relations between Government , Central and Regional Governments in a
Unitary State
1. Concept of Indonesia as a Unitary State
The meaning of legal relations between the government, center, and regions in the Unitary
State of Indonesia is complex and involves various aspects such as power, finance, supervision, and
institutions. Indonesia is a constitutional state that maintains a unique system based on the 1945
Constitution. Regions are divided into cities/districts with regional governments subject to the
central government, which, although providing autonomy, still holds primary responsibility. The
central government has powers based on the 1945 Constitution.
Changes in the Regional Government Law over the last few years have confused regional
governments, so there needs to be further explanation in the text of the 1945 Constitution. The
Covid-19 pandemic has also prompted the need to review the relationship between central and
regional governments for more effective handling of the situation.
This relationship also gives rise to the concept of centralization and decentralization in
government, with Regional Governments having autonomy in determining policies and governance
of their regions but with certain limitations imposed by the central government. All of this is an
effort to balance state unity and Indonesia's diverse regional interests.
2. Autonomy Concept
Differences in interpretation regarding regional autonomy (Otda) among practitioners and
scholars. Several figures, such as Van der Pot, Laica, Soehino, Tresna, and others, have different
views on the meaning and scope of regional autonomy. Some support the broadest possible concept
of autonomy, while others emphasize the link between autonomy and the unity of the state.
Understanding autonomy is also related to Indonesia's historical, legal, and political aspects.
The history of the development of regional autonomy in Indonesia was influenced by various
governments and regimes in power, such as the times of Soekarno, Suharto, Habibie, Abdurrahman
Wahid, Megawati Soekarnoputri, and Susilo Bambang Yudhoyono. Each period has a different legal
basis and views regarding regional autonomy.
In addition, there was a discussion regarding the role of the central and regional governments
in the decentralized system. Some views put forward the principle of compensation, where regions
have independence in determining their fate, while others emphasize the principle of delegation,
which maintains central authority.
Finally, the discussion also covers issues related to the legal basis and innovation in regional
government. There are problems related to a lack of legal basis, which often hinders innovation at
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the regional level. UU no. 23 of 2014 is considered a positive step in overcoming some of these
problems by providing a stronger foundation for regional government.
In conclusion, this discussion covers various aspects of regional autonomy in Indonesia,
including differences in views, history, law, politics, and innovation. The importance of finding a
balance between regional autonomy and state unity was also emphasized in this discussion.
3. Draft Legal Relations between the Central Government and the Regions
The relationship between central and regional governments in the legal context in Indonesia.
The law here regulates the relationship between individuals and the government, emphasizing the
concepts of authority, obligations, and rights.
Law regulates relationships between individuals, and this cannot be separated from the
activities of all individuals. It can be concluded that law is a relationship between two legal subjects
involving the obligations and rights of both parties.
Indonesia is a legal state with a legal basis in the form of a constitution (UU), which shows
that the government does not have an absolute nature by the constitution. The central and regional
governments have obligations and authorities related to government management, which must be
under the law.
Authority in this context refers to the government's ability to carry out specific legal actions.
This authority can be divided into several dimensions, including legitimacy and legitimacy.
The separation of authority between central and regional governments is essential in the
context of regional autonomy. This can be seen in the separation of duties and responsibilities
between the center and regions in managing government. This separation of authority can be
regulated in the highest regional laws and regulations.
Several central teachings regulate the separation of authority in government work, including
formal, material, and actual housekeeping teachings. Each teaching has a different view of how the
separation of authority should be carried out.
This separation of authority aims to balance economic demands and the need for unity in
managing government. Decentralization is essential to this separation of authority because it
accommodates the diversity of community needs.
Models of the relationship between central and regional governments can be divided into
several types: relative autonomy, agency, and interaction. The interaction model is the one that
emphasizes the mutual dependence between the central and regional governments in managing
government.
The term "regional household" reflects the freedom and independence of regional
governments in managing their affairs. However, this separation of authority is also related to
broader autonomy and regulations established by the central government.
In this research, the concept of "regional household" in the context of regional autonomy is
also discussed, and there are three different types of regional household systems: formal, material,
and authentic. Each has a different approach to separating authority between the center and the
regions.
It is essential to understand that the separation of authority between central and regional
governments is an integral part of the government system in Indonesia and is very influential in
managing government effectively and efficiently.
4. Concept of Public Regulation: Rational Decisions Making Process
The meaning of regulations in the relationship between government and society is as a means
of communication that allows the unification of opinions and knowledge. However, the regulatory
process is often complicated and complex due to the various theories that surround it. Several
theories, such as Systems Theory, Elite Theory, and Group Theory, provide different perspectives
on how public regulation is formed. Systems Theory sees it as the result of a political system that
includes organizational responses to people's needs. Elite Theory highlights the role of government
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elites in determining regulations, often prioritizing their preferences over the needs of the general
public. Meanwhile, Group Theory considers regulation as the result of the struggle of various
interest groups.
Apart from that, there are several problems related to public regulation, such as problems in
systems, opportunities, capacity, communication, interests, processes, and ideology. Conflicts often
arise due to differences in understanding and views regarding regulations and competition
between different interests. This conflict can become an obstacle to reaching an agreement on
public regulations.
It is important to note that effective public regulation requires compromise and agreement
among all parties involved. However, this can be challenging if individual or group egoism hinders
the process. Resolving conflicts and reaching agreements in public regulations are essential steps
to ensure that the interests of all parties can be accommodated. Therefore, a deep understanding of
regulatory theories and wisely handling conflicts is essential in complex public regulations.
5. Concept of Legal Certainty
Legal certainty is a legal principle that guarantees the existence of explicit norms and can be
used as a guide by society in regulations. The aim is to avoid public misinterpretation of the law.
Legal certainty also has an essential role in creating justice, ensuring that the law applies
indiscriminately to anyone and allowing individuals to predict the consequences of their actions.
Legal certainty is also closely related to the principle of truth, where the applicable law must
be under existing reality and facts. Laws must be clear, consistent, and not influenced by subjective
situations. This helps avoid norm conflicts, distortions, and conflicts between legal rules.
Legal certainty can be defined as a situation where there are clear legal rules implemented
consistently by the government, obeyed by citizens, applied somewhat by judges, and can be
implemented concretely. This creates a harmonious relationship between state and society,
ensures a consistent understanding of the legal system, and leads to the actualization of positive
law.
In addition, several theories are related to the purpose of law, including protection theory,
ethical theory, and utility theory. These theories underline the importance of legal certainty in
achieving various legal goals, such as justice, prosperity, and peace.
In creating legal certainty, it is crucial to fulfill internal requirements, such as consistency of
legal norms, clarity of the hierarchy of authority of law-forming institutions, and clear concepts.
This ensures that the rule of law has a strong foundation and can be implemented well by society.
Legal certainty is essential for achieving justice, prosperity, and social order. By having clear
and consistent laws, we can create a legal environment that is fair and just for all individuals.
6. Draft Legal Effectiveness
The effectiveness of law is the key to maintaining balance and order in a society. This term
describes the extent to which the existing legal and regulatory system achieves its objectives. In a
legal context, effectiveness is the primary determinant in maintaining justice, protecting individual
rights, and maintaining social order. To measure the effectiveness of the law, we must look at the
level of public compliance with the law, the ability of the justice system to resolve disputes fairly
and efficiently, and the law's impact on society and the economy. Factors such as clarity of legal
regulations, professionalism of law enforcement, and adequate infrastructure also play an essential
role in creating high legal effectiveness. The role of law enforcers in carrying out their duties with
justice and proportionality dramatically determines the success of the law's effectiveness. Good
laws and clear regulations are an essential basis for legal effectiveness, and legal education of the
public is also a key component in achieving this goal. Legal effectiveness is the foundation for
maintaining peace, justice, and order in a well-functioning society.
7. Draft Legal Protection
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Legal effectiveness is a concept related to legal protection in society. Natural law theory,
influenced by the thoughts of Aristotle, Plato, and Zeno, considers law to come from God and is
closely related to morals. Law is considered a tool for coordinating and integrating the various
needs of society and limiting each other's needs.
Salmond's theory of legal protection explains that the purpose of law is to coordinate and
integrate the needs of society, especially in terms of individual rights and obligations. The legal
protection process includes making legal rules legal provisions, and implementing rules recognized
by society.
The opinions of various experts regarding legal protection are included in this concept. They
view legal protection as an effort to maintain a balance of societal values and norms, protect
individuals from arbitrary government actions, and create order between humans. Legal protection
must cover all individuals regardless of their gender or social status.
Besides that, legal protection also includes legal aspects and sanctions provided by the state
to ensure compliance with regulations. This includes dispute resolution institutions outside the
court, such as the police and prosecutor's office. The main goal of legal protection is to ensure
justice, maintain order, and protect human rights. Means of legal protection include preventive and
repressive efforts, which include the recognition and protection of human rights.
Pancasila, as the basis of the Indonesian state, emphasizes the importance of equal legal
protection for all individuals, which can help achieve a prosperous life. Legal protection is essential
in maintaining balance and order in society and safeguarding individual rights and obligations.
8. Meaning of the Concept of Legal Action
Legal action is a crucial stage in implementing legal rules in real life. This involves
understanding the values underlying the law and the rules of behavior regulated by the law. Legal
action aims to create and maintain peace in society.
Legal action's three main aspects are justice, certainty, and benefits. Justice refers to the fair
treatment of individuals, although law is not always synonymous with the concept of justice. Legal
certainty emphasizes that the law must be implemented without exception, and individuals must
know what is expected. Benefit refers to the expected positive impact of legal action, including
maintaining social order.
Legal enforcement involves several stages, including the formulation of legal rules by
lawmakers, the application of rules by law enforcers, and the execution of rules by law enforcement
officials. These stages together form a legal action process that must be carried out clearly and
rationally to achieve the stated goals.
In criminal law, legal action focuses on enforcing criminal rules to prevent crime, achieve
justice, and appropriately punish criminals (Adami, 2010). This involves law enforcement officials,
from the police to the courts. These stages of legal action form a broken chain between legal values
and the resulting punishment.
CONCLUSION
Based on the results of the analysis that has been carried out, it can be concluded that the legal
relationship between the central and regional governments in the context of handling the Covid-19
pandemic, as regulated in Law no. 24/2007, Law no. 6/2018, and Law no. 23/2014, unclear. This causes
frequent legal conflicts between the central and regional governments, hampering the handling of
Covid-19 in Indonesia. Even though regional governments have the right to autonomy in managing their
regional affairs, including handling health problems such as Covid-19, the apparent legal construction
in the current regulations needs to be clarified in implementing enforcement. Apart from that, legal
action against Law No. 6/2018 is also less effective due to various factors such as unclear regulations,
lack of understanding by law enforcement officials regarding the substance of the law, and an ignorant
legal culture. Therefore, it is necessary to reconstruct the legal relationship between the central and
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regional governments by referring to the 1945 Constitution, which prioritizes the principles of
partnership and interdependence between the two. Thus, good collaboration between the center and
regions will be vital in handling the Covid-19 pandemic in the future.
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