Saat ini terdapat dualisme rezim perizinan yang mengatur penempatan awak kapal Indonesia yang bekerja di kapal asing. Di satu sisi terdapat SIUKAK (Surat Izin Usaha Keagenan Awak Kapal) sebagai produk Kementerian Perhubungan yang terbit berdasarkan UU Pelayaran sebagaimana telah diubah terakhir dengan UU No. 66 Tahun 2024. Di sisi lain terdapat SIP3MI (Surat Izin Perusahaan Penempatan Pekerja Migran Indonesia) sebagai produk Kementerian Pelindungan Pekerja Migran Indonesia (KP2MI) yang terbit berdasarkan UU No. 18 Tahun 2017 tentang Pelindungan Pekerja Migran Indonesia ( dalam proses revisi ) dan diatur lebih lanjut dalam PP No. 22 Tahun 2022.
Dualisme ini bukan sekadar soal administrasi perizinan, melainkan menyangkut model pelindungan negara terhadap awak kapal Indonesia yang bekerja di kapal asing. Jika dicermati secara mendalam, terdapat perbedaan mendasar antara rezim SIUKAK dan SIP3MI, terutama dalam tiga aspek krusial: jaminan keuangan, keterlibatan negara, dan jaminan sosial.
1. Jaminan Keuangan: Deposit vs Surat Pernyataan
Dalam rezim SIP3MI, perusahaan penempatan wajib menyetor deposit (jaminan keuangan) sebagai bentuk tanggung jawab apabila terjadi kegagalan pemenuhan hak awak kapal, termasuk tidak dibayarnya upah oleh pemilik kapal asing. Jaminan ini bersifat nyata, terukur, dan dapat langsung dieksekusi untuk kepentingan korban.
Sebaliknya, dalam rezim SIUKAK, tidak terdapat kewajiban deposit sama sekali. Manning agency hanya diwajibkan membuat surat pernyataan kesanggupan yang dilegalisasi oleh notaris. Model seperti ini sangat lemah secara hukum, karena:
- Tidak ada dana riil yang bisa langsung digunakan untuk membayar hak awak kapal;
- Surat pernyataan tidak menjamin kemampuan finansial perusahaan;
- Dalam praktiknya, awak kapal tetap harus berjuang sendiri apabila terjadi wanprestasi.
Ini menimbulkan pertanyaan besar: bagaimana negara dapat menjamin hak pelaut jika instrumen perlindungan keuangannya hanya berbasis pernyataan moral?
2. Keterlibatan Negara: Absen dalam SIUKAK, Hadir Penuh dalam SIP3MI
Dalam rezim SIUKAK yang berbasis UU Pelayaran, tidak diatur secara tegas keterlibatan pemerintah desa, daerah, pusat, maupun perwakilan RI di luar negeri dalam sistem pelindungan awak kapal migran. Akibatnya:
- Proses keberangkatan minim pengawasan lintas lembaga;
- Tidak ada sistem rantai pelindungan dari hulu ke hilir;
- Ketika masalah terjadi di luar negeri, awak kapal sering dibiarkan menghadapi persoalannya sendiri.
Sebaliknya, dalam rezim SIP3MI berdasarkan UU PPMI dan PP 22 Tahun 2022, negara hadir secara terstruktur dan berlapis, mulai dari:
- Pemerintah desa;
- Pemerintah kabupaten/kota;
- Pemerintah provinsi;
- Pemerintah pusat;
- Hingga perwakilan RI di luar negeri.
Bahkan dalam PP 22 Tahun 2022, perwakilan RI di luar negeri wajib memberikan bantuan hukum kepada pekerja migran, termasuk awak kapal, dalam memperjuangkan hak-haknya. Ini menunjukkan bahwa SIP3MI dibangun dengan paradigma pelindungan negara, bukan semata-mata perizinan usaha.
3. Jaminan Sosial: Mandat MLC 2006 yang Diabaikan SIUKAK
Masalah paling serius dari rezim SIUKAK adalah tidak adanya pengaturan jaminan sosial bagi awak kapal, padahal:
- Indonesia telah meratifikasi Maritime Labour Convention (MLC) 2006 melalui UU No. 15 Tahun 2016;
- MLC 2006 secara tegas mewajibkan adanya jaminan sosial bagi pelaut, termasuk perlindungan sakit, kecelakaan kerja, hingga hari tua.
Namun ironisnya, UU Pelayaran beserta aturan turunannya tidak mengatur secara tegas jaminan sosial awak kapal yang bekerja di kapal asing. Akibatnya, ribuan pelaut Indonesia bekerja tanpa kepastian:
- Perlindungan kecelakaan kerja;
- Jaminan kematian;
- Jaminan hari tua;
- Perlindungan sosial saat sakit di luar negeri.
Sebaliknya, dalam rezim SIP3MI, jaminan sosial bersifat wajib selain asuransi dari pelikik kapal, termasuk:
- Perlindungan kecelakaan kerja;
- Perlindungan kematian;
- Perlindungan gagal berangkat setelah adanya perjanjian penempatan antara awak kapal dan P3MI.
- Jaminan hari Tua
Dengan demikian, hanya rezim SIP3MI yang benar-benar sejalan dengan mandat MLC 2006.
Dualisme yang Merugikan Awak Kapal
Keberadaan dua rezim perizinan ini telah menimbulkan:
- Kebingungan hukum di lapangan;
- Celah praktik penghindaran kewajiban oleh manning agency;
- Lemahnya penegakan pelindungan awak kapal migran;
- Saling klaim kewenangan antar-kementerian.
Lebih berbahaya lagi, rezim SIUKAK dalam praktik telah dijadikan alat justifikasi untuk menghindari kewajiban sebagai perusahaan penempatan pekerja migran, padahal awak kapal Indonesia yang bekerja di kapal asing secara hukum tetaplah pekerja migran.( Putusan MK 127/2023)
Penutup: Negara Harus Memilih Berpihak ke Siapa
Jika negara sungguh ingin melindungi awak kapal Indonesia yang bekerja di kapal asing, maka rezim pelindungan harus disatukan dalam satu sistem yang kuat, berbasis UU PPMI dan MLC 2006, bukan dibiarkan terfragmentasi dalam rezim perizinan sektoral yang lemah.
Negara harus berani menegaskan:
- Bahwa awak kapal di kapal asing adalah pekerja migran;
- Bahwa pelindungan mereka harus tunduk pada UU PPMI;
- Dan bahwa MLC 2006 bukan sekadar simbol ratifikasi, melainkan kewajiban negara yang harus dijalankan secara nyata.
Jika tidak, maka dualisme SIUKAK dan SIP3MI hanya akan terus menjadi pintu masuk bagi eksploitasi, pengabaian hak, dan hilangnya tanggung jawab negara terhadap pelautnya sendiri.
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