Implikasi Hukum Penghapusan Sanksi Administratif Dalam Kebijakan Rehabilitasi Hutan: Analisis Komparatif PP No. 76 Tahun 2008 dan PP No. 26 Tahun 2020

Fitra Kyan Tegar, Teguh Yuwono, S.Hut., M.Sc.

2026 | Skripsi | KEHUTANAN

Rehabilitasi hutan dan lahan merupakan instrumen kritis pemulihan ekosistem dan pencapaian komitmen iklim nasional Indonesia, namun perubahan regulasi dari PP No. 76 Tahun 2008 ke PP No. 26 Tahun 2020 menghapus seluruh ketentuan sanksi administratif tanpa menyediakan mekanisme penegakan pengganti yang setara. Penelitian ini bertujuan untuk menganalisis implikasi hukum penghapusan sanksi administratif tersebut terhadap lima dimensi, yaitu normatif, kelembagaan, prosedural, penegakan hukum, dan substantif, serta mengidentifikasi tantangan dalam tata kelola rehabilitasi hutan guna merumuskan rekomendasi penguatan kerangka hukumnya.

Penelitian ini merupakan penelitian yuridis normatif sebagai jenis penelitian utama yang diperkuat dengan yuridis empiris melalui wawancara mendalam dengan dua penyuluh kehutanan senior menggunakan teknik purposive sampling. Penelitian ini menggunakan metode  penelitian hukum normatif yang bersifat deskriptif analitis komparatif dengan pendekatan perundang-undangan, komparatif diakronis, dan konseptual, didukung perspektif implementasi lapangan melalui wawancara dengan penyuluh kehutanan senior.

Hasil penelitian menunjukkan bahwa penghapusan sanksi administratif menciptakan enforcement gap berlapis di dua level hierarki regulasi sekaligus karena Permen LHK No. 23/2021 tidak dapat mengatur sanksi tanpa amanat PP induknya. Pada dimensi kelembagaan terjadi paradoks desentralisasi di mana pelimpahan kewenangan tidak disertai instrumen penegakan yang memadai. Pada dimensi prosedural, hilangnya kewajiban menyusun Rencana Teknik Tahunan Rehabilitasi Hutan dan Lahan memutus rantai akuntabilitas prosedural. Pada dimensi penegakan hukum, piramida regulasi kehilangan lapisan koersifnya. Pada dimensi substantif, terjadi paradoks partisipasi di mana penguatan hak formal masyarakat tidak diimbangi mekanisme pengawasan yang efektif. Temuan ini dikonfirmasi secara langsung oleh perspektif lapangan yang menyatakan bahwa ketiadaan sanksi telah menciptakan kebingungan kelembagaan dan membuka celah bagi praktik pemanfaatan yang tidak memiliki dasar hukum jelas. Penelitian ini merekomendasikan revisi Peraturan Menteri Lingkungan Hidup dan Kehutanan Nomor 23 Tahun 2021 dalam jangka pendek, reintroduksi sanksi administratif yang adaptif melalui revisi PP Nomor 26 Tahun 2020 dalam jangka menengah, serta reformasi regulasi terpadu dan penguatan kapasitas kelembagaan daerah dalam jangka panjang.

Forest and land rehabilitation is a critical instrument for ecosystem restoration and the achievement of Indonesia's national climate commitments, yet the regulatory shift from Government Regulation No. 76 of 2008 to Government Regulation No. 26 of 2020 eliminated all administrative sanction provisions without providing an equivalent substitute enforcement mechanism. This study aims to analyze the legal implications of the elimination of administrative sanctions across five dimensions, namely normative, institutional, procedural, law enforcement, and substantive dimensions, as well as to identify normative weaknesses in the governance of forest rehabilitation  in order to formulate recommendations for strengthening the legal framework.

This study is a normative juridical research as the primary research type, reinforced with empirical juridical research through in-depth interviews with two senior forestry extension officer using purposive sampling technique. This study employs a normative legal research method that is descriptive, analytical, and comparative in nature, using statutory, diachronic comparative, and conceptual approaches, supported by field implementation perspectives obtained through interviews with the senior forestry extension officer.

The results show that the elimination of administrative sanctions creates a layered enforcement gap across two levels, as Ministerial Regulation of Environment and Forestry No. 23/2021 cannot regulate sanctions without a mandate from its parent regulation. In the institutional dimension, a decentralization paradox occurs in which the delegation of authority is not accompanied by adequate enforcement instruments. In the procedural dimension, the elimination of the obligation to prepare an Annual Technical Plan for Forest and Land Rehabilitation severs the chain of procedural accountability. In the law enforcement dimension, the regulatory pyramid loses its coercive layer. In the substantive dimension, a participation paradox occurs in which the strengthening of communities' formal rights is not balanced by effective oversight mechanisms. These findings are directly confirmed by field perspectives indicating that the absence of sanctions has created institutional confusion and opened loopholes for utilization practices lacking a clear legal basis. This study recommends a short-term revision of Ministerial Regulation of Environment and Forestry No. 23 of 2021, a medium-term reintroduction of adaptive administrative sanctions through revision of Government Regulation No. 26 of 2020, and long-term comprehensive regulatory reform along with strengthening of regional institutional capacity.

Kata Kunci : Forest and Land Rehabilitation, Administrative Sanctions, Legal Implications, Legal Effectiveness, Enforcement Gap