Rancang Bangun Model Manajemen Penanganan Konflik Pertanahan

Abstract

Tingginya konflik pertanahan di Indonesia menunjukkan bahwa mekanisme penanganan yang tersedia belum mampu menyelesaikan akar masalah secara tuntas dan berkelanjutan. Penanganan konflik selama ini masih dominan pada pendekatan yuridis/litigasi yang cenderung kaku, mahal, lama, dan sering menghasilkan pola menang-kalah. Meskipun Permen ATR/BPN Nomor 21 Tahun 2020 telah mengatur penanganan dan penyelesaian kasus pertanahan melalui pendekatan non-litigasi, implementasinya belum didukung prosedur baku, standard operating procedure (SOP), maupun model manajemen yang seragam. Akibatnya, proses penanganan konflik masih sangat bergantung pada diskresi tim yang ditunjuk, terutama dalam menentukan subjek, objek, serta hubungan historis antara subjek dan objek konflik. Padahal, ketiga unsur tersebut harus diverifikasi melalui bukti dan data yang akurat. Penelitian ini menawarkan model manajemen penanganan konflik pertanahan berbasis data generik, yaitu data Dukcapil untuk verifikasi subjek dan data Rencana Tata Ruang Wilayah (RTRW) untuk validasi objek. Data Dukcapil memiliki legitimasi hukum berdasarkan Undang-Undang Nomor 23 Tahun 2006 tentang Administrasi Kependudukan sebagaimana diubah dengan Undang-Undang Nomor 24 Tahun 2013, sedangkan RTRW menjadi acuan legal-spasial dalam menentukan zonasi dan fungsi ruang. Integrasi kedua data ini diharapkan meningkatkan akurasi, efisiensi, efektivitas, dan akuntabilitas penanganan konflik pertanahan. Penelitian ini bertujuan untuk: menganalisis tata cara penyelesaian konflik pertanahan oleh Kementerian ATR/BPN; memetakan regulasi penanganan konflik terhadap permasalahan berbasis data generik; mengembangkan model konseptual manajemen penanganan konflik pertanahan; serta merancang strategi prioritas penerapan model. Kebaruan penelitian terletak pada penguatan konseptual, metodologis, kontekstual, dan luaran kebijakan. Secara konseptual, penelitian memperkenalkan verifikasi berbasis data generik. Secara metodologis, penelitian mengintegrasikan POAC, Soft Systems Methodology (SSM), dan Analytical Hierarchy Process (AHP). Secara kontekstual, model diuji di Provinsi Jambi sebagai prototipe yang dapat direplikasi secara nasional. Pada level luaran, penelitian menghasilkan policy tool berupa rekomendasi tata kelola pertanahan yang partisipatif dan berbasis bukti. Metode penelitian dilakukan melalui empat tahapan. Pertama, analisis tata cara penyelesaian konflik pertanahan di Kementerian ATR/BPN menggunakan data primer dan sekunder. Kedua, pemetaan regulasi sebagai dasar perancangan model. Ketiga, pengembangan model konseptual melalui wawancara, FGD, kuesioner, observasi, dan analisis soft system methology (SSM) untuk menghasilkan rich picture serta model konseptual. Keempat, perumusan strategi prioritas menggunakan analytical herarchy process (AHP). Hasil penelitian menunjukkan perlunya transformasi paradigma dari pendekatan litigasi menuju manajemen non-litigasi berbasis data. Kasus di Provinsi Jambi memperlihatkan bahwa konflik dominan antara korporasi dan masyarakat dapat diredam melalui mediasi berbasis data yang lebih efektif dalam menciptakan harmoni sosial dan kepastian investasi. Peta RTRW terbukti menjadi instrumen valid untuk menentukan objek, sedangkan data Dukcapil menjadi dasar akurat untuk memverifikasi subjek. Integrasi keduanya mampu mengurangi manipulasi klaim sepihak dan mempercepat penyelesaian konflik. Model yang dikembangkan mengintegrasikan POAC dengan SSM sehingga menghasilkan kerangka kerja yang sistematis, adaptif, dan operasional. Berdasarkan hasil AHP, Model Hybrid Institusional atau Multi-Aktor ditetapkan sebagai skenario terbaik karena mensinergikan otoritas negara, kearifan lokal/adat, dan kepastian data generik. Model ini dapat direplikasi di berbagai wilayah Indonesia untuk mendukung tertib agraria yang berkelanjutan.

The high incidence of land conflicts in Indonesia indicates that existing conflict-handling mechanisms have not yet been able to address the root causes of disputes in a comprehensive and sustainable manner. To date, land conflict resolution has largely relied on juridical or litigation-oriented approaches, which tend to be rigid, costly, time-consuming, and often produce win–lose outcomes. Although Ministerial Regulation of ATR/BPN No. 21 of 2020 provides a framework for handling and resolving land cases through non-litigation mechanisms, its implementation has not yet been supported by a standardized procedure, standard operating procedure (SOP), or uniform management model. Consequently, the handling of land conflicts remains highly dependent on the discretion of appointed teams, particularly in determining the disputing subjects, the disputed objects, and the historical relationship between them. These three elements should, however, be verified through accurate evidence and reliable data. This study proposes a generic data based land conflict management model, in which population and civil registration data from Dukcapil are used to verify the disputing subjects, while Regional Spatial Plan (RTRW) data are used to validate the disputed objects. Dukcapil data have legal legitimacy under Law No. 23 of 2006 on Population Administration, as amended by Law No. 24 of 2013, whereas RTRW serves as a legal-spatial reference for determining zoning and spatial functions. The integration of these two data sources is expected to improve the accuracy, efficiency, effectiveness, and accountability of land conflict management. This research aims to: analyze the procedures for resolving land conflicts by the Ministry of ATR/BPN; map the regulatory framework for land conflict handling in relation to problems arising from generic-data-based case resolution; develop a conceptual model for land conflict management; and formulate priority strategies for implementing the model. The novelty of this research lies in its conceptual, methodological, contextual, and policy-output contributions. Conceptually, the study introduces generic-data-based verification. Methodologically, it integrates the POAC framework, Soft Systems Methodology (SSM), and the Analytical Hierarchy Process (AHP). Contextually, the model is tested in Jambi Province as a prototype for national replication. At the policy-output level, the study produces a policy tool in the form of governance recommendations for a more participatory and evidence-based land administration system. The research was conducted through four stages. First, it analyzed existing procedures for land conflict resolution within the Ministry of ATR/BPN using primary and secondary data. Second, it mapped relevant regulations as the basis for model development. Third, it developed a conceptual model through interviews, focus group discussions, questionnaires, observation, and SSM analysis, resulting in a rich picture and conceptual model. Fourth, it formulated priority implementation strategies using AHP. The findings indicate the need for a paradigm shift from litigation-oriented approaches toward data-driven non-litigation management. Evidence from Jambi Province shows that dominant conflicts between corporations and communities can be mitigated through data-based mediation, which is more effective in fostering social harmony and investment certainty. RTRW maps are proven to be valid instruments for determining disputed objects, while Dukcapil data provide the most accurate basis for verifying disputing subjects. The integration of both data sources can reduce unilateral claim manipulation and accelerate conflict resolution. The proposed model integrates POAC and SSM to produce a systematic, adaptive, and operational framework. Based on the AHP results, the Hybrid Institutional or Multi-Actor Model is identified as the best scenario because it synergizes state authority, local or customary wisdom, and generic-data certainty. This model can be replicated across various regions in Indonesia to support sustainable agrarian order.