CHAPTER I
INTRODUCTION
On
November 18, 2008, Governor of the Province of Aceh of the Republic of
Indonesia Irwandi Yusuf was signed a Memorandum of Understanding (Mou) on
Reducing Emission from Deforestation and Land Degradation (REDD) between
several Governor of the States of the USA. The
Memorandum of Understanding commits the California, Illinois and Wisconsin to
work with the governors of six states and provinces within Indonesia and Brazil
to help slow and stop tropical deforestation, a source of roughly 20 percent of
global greenhouse gas emissions. The governors include Governor Antônio Waldez
Góes da Silva of Amapa, Brazil; Governor Eduardo Braga of Amazonas, Brazil;
Governor Blario Maggi of Mato Grosso, Brazil; Governor Ana Júla de Vasconcelos
Carepa of Para, Brazil; Governor Yusof Irwandi of Aceh, Indonesia; and Governor
Barnamas Suebu of Papua, Indonesia.[1]
The
agreement was proposed to reduce greenhouse gas emissions from deforestation
and land degradation; the signatories of the agreement intend to develop a new
effective plan to cope with that issue. Governor Schwarzenegger said.
"With this agreement, we are focusing our collective efforts on the
problem and requiring our states to jointly develop rules, incentives and tools
to ensure reduced emissions from deforestation and land degradation. We are
also sending a strong message that this issue should be front and center during
negotiations for the next global agreement on climate change."[2]
According to Teuku
Rafli Pasha[3],
Governor Irwandi was invited personally by Arnold Schwarzenegger because he amazed with Irwandi’s
innovative program Aceh Green; Arnold also said that Aceh Green Program will make
Aceh plays a significant role in global scope in order to reduce the emission
of green house effect.[4]
But, based on information expressed by a current
research, Governor Irwandi did not hold a full power to sign the MoU at that
time and they assume that the MoU is illegal. However, according to my analysis
of this case, that is not true, and there are several arguments can support and verify that this MoU is
legal.
CHAPTER II
THEORETICAL
BASIS
The definition of treaty is
described in Article 2 para. 1(a) of Vienna Convention[5]:”treaty means an international agreement
concluded between States in written form and governed by international law,
whether embodied in a single instrument or in two or more related instruments
and whatever its particular designation”. According to this, we can make a
simple decision about the elements required of treaty: between states, in
written form, and governed by international law. All of these elements have to
be fullfiled of a treaty.
There are several terms that relate
to treaty, such as convention, declaration, statute, charter, covenant, agreement,
pact, and protocol[6].
But, how about MoU? "The term memorandum
of understanding (MoU) is often used to denote a less formal international
instrument than a typical treaty or international agreement. It often sets out
operational arrangements under a framework international agreement. It is also
used for the regulation of technical or detailed matters; An MoU typically
consists of a single instrument and is entered into among States and/or
international organizations. The United Nations usually concludes MoU with
Member States in order to organize its peacekeeping operations or to arrange
United Nations conferences. The United Nations also concludes M.O.U.s regarding
cooperation with other international organizations. The United Nations
considers M.O.U.s to be binding and registers them if submitted by a party or
if the United Nations is a party."[7]
Another definition, A memorandum of
understanding (MOU) is a document
describing a bilateral or multilateral
agreement between parties. It expresses a convergence of will between the
parties, indicating an intended common line of action. It is often used in
cases where parties either do not imply a legal commitment or in situations
where the parties cannot create a legally enforceable agreement.[8] The Province of Aceh under Article 8 UU
No. 11/2006[9]
is given a special autonomy status to make an international cooperation. Pasal 8(1): “ Rencana persetujuan internasional yang berkaitan langsung dengan
Pemerintahan Aceh yang dibuat oleh Pemerintah dilakukan dengan konsultasi dan
persetujuan DPRA”. Although Aceh Government can build international
cooperation, they cannot make an agreement with international in part of
political aspect, defense and security of nation, judicial, national monetary
and fiscal, and religion.[10]
Well, in term of full power there
are several definitions given:
Article
2 para. 1 (c)[11],
“full powers”
means a document emanating from the competent authority of a State designating
a person or persons to represent the State for negotiating, adopting or
authenticating the text of a treaty, for expressing the consent of the State to
be bound by a treaty, or for accomplishing any other act with respect to a
treaty;
Article
1 para. 1[12], Surat Kuasa (Full Powers) adalah surat yang dikeluarkan oleh Presiden atau
Menteri yang memberikan kuasa kepada satu atau beberapa orang yang mewakili
Pemerintah Republik Indonesia untuk menandatangani atau menerima naskah
perjanjian, menyatakan persetujuan negara untuk mengikatkan diri pada
perjanjian, dan/atau rnenyelesaikan hal-hal lain yang diperlukan dalam
pembuatan perjanjian internasional.
The rule of full powers under 1969
Vienna Convention in Article 7:
1. A person is
considered as representing a State for the purpose of adopting or
authenticating the text of a treaty or for the purpose of expressing the
consent of the State to be bound by a treaty if: (a) he produces appropriate full powers; or (b) it appears from the practice of
the States concerned or from other circumstances that their intention was to
consider that person as representing the State for such purposes and to
dispense with full powers.
2. In virtue of their
functions and without having to produce full powers, the following are
considered as representing their State: (a)
Heads of State, Heads of Government and Ministers for Foreign Affairs, for the
purpose of performing all acts relating to the conclusion of a treaty; (b) heads of diplomatic missions, for
the purpose of adopting the text of a treaty between the accrediting State and
the State to which they are accredited; (c)
representatives accredited by States to an international conference or to an
international organization or one of its organs, for the purpose of adopting
the text of a treaty in that conference, organization or organ.
Article 8: An act relating
to the conclusion of a treaty performed by a person who cannot be considered
under article 7 as authorized to represent a State for that purpose is without
legal effect unless afterwards confirmed by that State.
CHAPTER III
ANALYSING DATA
The agreement that was signed by Irwandi
relates to his initiative program ‘Aceh Green’ or ‘the Green Economic
Development and Investment Strategy fo Aceh. One of the purpose of this concept
is Aceh commits to prevent and preserve all of natural resources in Aceh and
this program was absolutely agreed by President Susilo Bambang Yudhoyono. Governor
Irwandi was called by Governor Arnold Schwarzenegger because of this vision to
attend and make a corporation according to this issue.
As mentioned above, Memorandum of
Understanding is used to less formal international instrument than a typical treaty
or international agreement. Relating to MoU that was signed by Irwandi, the 3
requirements of treaty mentioned in 1969 Vienna Convention has been fulfilled.
UU No. 32/2004 also gives a legal access to provincial government to make an
international cooperation relating to this aspect. The legal basis still
ambiguous relating to the procedure of making the Mou is Article 8(1) UU No.
11/2006[13].
This article mentions that an international agreement that is build by the
Government of Aceh has to be consulted and considered by DPRA. We can analyse
that the donation of Aceh Green Program comes from APBA (provincial fund) and
APBA is formulated by DPRA. So, it means that DPRA agree with the program.
Furthermore, the MoU on Environmental Cooperation is the advancement of the
program in order to create the visions that was reported. If we look into the
provisions of the MoU[14]
in Article 12: “The Parties acknowledge
that this Memorandum of Understanding is only intended to provide for
cooperation between the Parties, and does not create any legally binding rights
or obligations”. This MoU does not like other treaty as usuall and create
any legally binding. it only to build a strong friendship between both
countries and do a cooperative efforts focused on environmental issue. So,
Governor Irwandi interprets that there are no illegal procedures about signing
the MoU.
In the provision of full powers,
national constitution regulates a strong rule in part of an international
agreements. It can be found in Article 7 of UU No. 24/2000[15]. 1969
Vienna Convention regulate the same provisions in regard to full power
with UU No. 24/2000. Both regulations
see full power is on thing that very important. But in article 8 of Vienna
convention, in case of if someone who cannot show the full power document in
making an international agreement considered as illegal,except if the national
government see the agreement is legal. As long as we know, the MoU signed by
Irwandi get a positive support by President SBY, because it relates to
environmental issue.
I Wayan Parthiana in
his book “ Hukum Perjanjian Internasional”[16]
mentioned that full power document is not a significant condition that make a
treaty is illegal. The important thing of this is each parties of an agreement
know the capacity each other or know who is she or he. Relating to the case, of
course others governor of USA know who Irwandi is. So, based on this the
agreement is legal.
CHAPTER IV
CONCLUSION
Under UU No. 11/2006, the Provincial
Government of Aceh is given a chance to make an international cooperation in
some aspects, including on environmental cooperation. Irwandi Yusuf as his
capacity as Governor of Aceh Province has signed a Memorandum of Understanding
on Environmental Cooperation with the State of California, Illionis and
Wisconsin of the United States of America. Although some people consider that
the MoU is illegal, because of Irwandi did not hold a full power to sign the
MoU at that time. But in my analysis that argument was wrong. My analysis based
on these reasons:
a. The
term of MoU itself is different with the real definition of treaty; MoU is
often used to denote a less formal international instrument than a typical
treaty or international agreement. So, the provisions relate to a treaty which
are mentioned in some regulation explained above cannot be totally implemented
and the characteristic of the MoU itself only to build a cooperative plan to
save the environment.
b. The
requirements of a treaty has been fulfilled.
c. In
todays world, without holding full power is not a condition that make an
international cooperation illegal. The important thing is each parties know the
capacity of other parties of a treaty and the MoU is accepted by the national
government.
BIBLYOGRAPHY
Vienna
Convention on the Law of Treaties 1969;
I Wayan
Parthiana, SH. MH, Hukum Perjanjian
Internasional Bagian 1, Bandung:
Penerbit Mandar Maju, 2002;
United Nations, Treaty
Handbook ,New York: Treaty Section of the Office of Legal Affairs, 2006;
Republik
Indonesia, “Undang-Undang No. 11 Tahun 2006 Tentang Pemerintahan Aceh”;
Republik
Indonesia, “UU No. 32 Tahun 2004 Tentang Pemerintahan Daerah”;
Republik
Indonesia, “Undang-Undang No. 24 Tahun 2000 Tentang Perjanjian Internasional”;
Memorandum
of Understanding on Environmental Cooperation Between The Province of Aceh of
The Republic of Indonesia, and The States of California, Illinois and Wisconsin
of The United States of America;
[1]
www.guianashield.org
[2]
ibid
[3]
Teuku Rafli Pasha adalah Koordinator Tim Asistensi Pemerintah Aceh dan
didampingi oleh Tim Komunikasi, Ahmad Kandang yang juga hadir dalam pertemuan
tersebut.
[4]
www.beritasore.com
[5]
Vienna Convention on the Law of Treaties 1969
[6]
Didalam Bahasa Inggris, dikenal banyak istilah yang digunakan untuk menyebut
suatu perjanjian internasional. Beberapa istilah itu antara lain; treaty,
convention, agreement, arrangement, declaration, charter, covenant, statute,
protocol, pact, process verbal, modus Vivendi, act, final act, general act. ….
Istilah-istilah tersebut satu dengan lainnya tidak begitu jelas perbedaannya,
bahkan beberapa dari istilah itu juga tidak jelas artinya dan dalam hal apa
saja harus digunakan, See I Wayan Parthiana, SH. MH, Hukum Perjanjian Internasional Bagian 1, Bandung: Penerbit Mandar Maju, 2002, p. 26
[7]
United Nations, Treaty Handbook ,New York: Treaty Section of the Office
of Legal Affairs, 2006, p.61
[8]
www.wikipedia.com
[9]
Republik Indonesia, “Undang-Undang No. 11 Tahun 2006 Tentang Pemerintahan
Aceh”, BAB IV, pasal 8(1).
[10]
UU No. 32 Tahun 2004 Tentang Pemerintahan Daerah Pasal 10 ayat (1):
Pemerintahan daerah menyelenggarakan urusan pemerintahan yang menjadi
kewenangannya, kecuali urusan pemerintahan yang oleh Undang-Undang ini
ditentukan menjadi urusan Pemerintah. (3) Urusan pemerintahan yang menjadi
urusan Pemerintah sebagaimana dimaksudkan pada ayat (1) meliputi: a. politik
luar negeri; b. pertahanan; c. keamanan; d. yustisi; e. moneter dan fiscal
nasional; dan f. agama.
[11]
Vienna Convention on the Law of Treaties 1969
[12]
Republik Indonesia, “Undang-Undang No. 24 Tahun 2000 Tentang Perjanjian
Internasional”, BAB I pasal 1(1).
[13]
UU No. 11 Tahun 2006 Tentang Pemerintahan Aceh Pasal 8(1): Rencana persetujuan
internasional yang berkaitan langsung dengan Pemerintahan Aceh yang dibuat oleh
Pemerintah dilakukan dengan konsultasi dan pertimbangan DPRA.
[14]
Memorandum of Understanding on Environmental Cooperation Between The Province
of Aceh of The Republic of Indonesia, and The States of California, Illinois
and Wisconsin of The United States of America
[15]
Pasal 7 (1) Seseorang
yang mewakili Pemerintah Republik Indonesia, dengan tujuan menerima atau
menandatangani naskah suatu perjanjian atau mengikatkan diri pada perjanjian internasional,
memerlukan Surat Kuasa. (2) Pejabat yang tidak memerlukan Surat Kuasa
sebagaimana dimaksud dalam Pasal 1 Angka 3 adalah :a. Presiden, dan b. Menteri;
(3) Satu atau beberapa orang yang menghadiri, merundingkan, dan/atau menerima
hasil akhir suatu pertemuan internasional, memerlukan Surat Kepercayaan. (4)
Surat Kuasa dapat diberikan secara terpisah atau disatukan dengan Surat
Kepercayaan, sepanjang dimungkinkan, menurut ketentuan dalam suatu perjanjian
internasional atau pertemuan internasional. (5) Penandatangan suatu perjanjian
internasional yang menyangkut kerja sama teknis sebagai pelaksanaan dari
perjanjian yang sudah berlaku dan materinya berada dalam lingkup kewenangan
suatu lembaga negara atau lembaga pemerintah, baik departemen maupun non
departemen, dilakukan tanpa memerlukan Surat Kuasa.
[16]
“kecenderungan masyarakat international untuk tidak terlalu menjadikan kuasa
penuh sebagai syarat formal untuk dapat melakukan perundingan maupun mengadopsi
naskah suatu perjanjian internasional,
mengingat kemajuan ilmu pengetahuan dan teknologi telekomunikasi, transportasi,
dan informasi… see I. Wayan Parthiana, SH. MH, Hukum Perjanjian Internasional Bagian 1, Bandung: Penerbit Mandar
Maju, 2002, p.105
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