Skip to main content
Original Research Article Open Access SINTA 2 Accredited

Harmonization of Penal and Non-penal Policies in the Governance of Narcotics Control in Indonesia

Authors

  • Gazali Ahmad * Corresponding author
  • Nashriana
  • Henny Yuningsih
DOI
10.21787/jbp.17.2025-2836
Published & Pages
31 December 2025
Manuscript History
Received3 Dec 2025 Published31 Dec 2025
License
CC Attribution-NonCommercial-ShareAlike 4.0
Read PDF 357 KB Cite

670 Views 1,025 Downloads

Abstract

Background of Study: The circulation of narcotics in Indonesia has evolved into a complex, asymmetrical threat, demanding a policy reorientation from a purely punitive approach (war on drugs) to collaborative governance, especially following the enactment of Law No. 1 of 2023 (the National Criminal Code). The problem: A repressive penal approach has proven unsuccessful in reducing prevalence and has instead led to extreme overcapacity in correctional institutions, while regional autonomy has not been optimal in supporting prevention due to sectoral egos. Gap of Study: There has been no comprehensive study that integrates the analysis of the new criminal law transition with the collaborative governance model of local government. Theory: This study uses Friedman’s Legal System Theory (Grand), Barda Nawawi Arief’s Criminal Policy (Middle-Range), and Ansell & Gash’s Collaborative Governance (Applied). Aim: Analyzing the harmonization of penal-non-penal policies and reconstructing a collaborative governance model. Research Question: How is the harmonization of legal construction after Law No. 1 of 2023 and how does the collaborative model overcome institutional fragmentation? Method: Juridical-normative with a sociological approach based on secondary data. Results: The National Criminal Code changes the death penalty into a special penalty with a probationary period, requiring the readiness of a rehabilitation structure. Discussion: The failure of penal is due to the disorientation of the legal structure, while non-penal is hampered by weak regional institutional design. Conclusion: Effective drug control requires a balance between criminal policy and facilitative regional leadership. Recommendation: Implementation of the Hexa-Helix collaboration model and integration of P4GN indicators into regional development planning documents (RPJMD/IKU) and the issuance of rehabilitative prosecution guidelines.

Keywords:

Read the Full Text

The full text of this article is available as PDF. Version of record published in Vol. 17 No. 3 (2025).

Open PDF

References

48 references
  1. Ansell, C., & Gash, A. (2008). Collaborative Governance in Theory and Practice. Journal of Public Administration Research and Theory, 18(4), 543–571. https://doi.org/10.1093/jopart/mum032
  2. Ariani, N. V., Yusuff, Y. Md. I., Yusof, Y., & Salleh, A. S. M. (2025). Reforming Indonesia’s Drug Sentencing Law: Normative, Comparative and Restorative Justice Perspectives. Journal of Cultural Analysis and Social Change, 10(2), 3301–3313. https://doi.org/10.64753/jcasc.v10i2.2099
  3. Arianto, G. N., Azzahro, S. S., Tanri, A., Warneri, M. R., Wening, P. P. P., Bajammal, M., Guevarrato, G., Masfufah, A., Permatasari, T. I. D. C., & Dharmalaksana, K. E. (2025). Research on Impacts and Costs of Handling Narcotics Crime in Indonesia. Indonesia Judicial Research Society. https://ijrs.or.id/en/publikasi-ijrs/research-on-impacts-and-costs-of-handling-narcotics-crime-in-indonesia/
  4. Ariawan, I. G. K. (2013). Metode Penelitian Hukum Normatif. Kertha Widya, 1(1), 21–30. https://doi.org/10.37637/kw.v1i1.419
  5. Arief, B. N. (2017). Bunga Rampai Kebijakan Hukum Pidana: Perkembangan Penyusunan Konsep KUHP Baru. Kencana.
  6. Aryanda, A. D., Masyhar, A., & Wulandari, C. (2025). Obstacles to the Implementation of Death Penalty Sanctions for Perpetrators of Corruption in Indonesia. Journal of Administrative and Sosial Science, 6(1), 81–92. https://doi.org/10.55606/jass.v6i1.2094
  7. Barus, Z. (2013). Analisis Filosofis tentang Peta Konseptual Penelitian Hukum Normatif dan Penelitian Hukum Sosiologis. Jurnal Dinamika Hukum, 13(2), 307–308. https://doi.org/10.20884/1.jdh.2013.13.2.212
  8. Benuf, K., & Azhar, M. (2020). Metodologi Penelitian Hukum sebagai Instrumen Mengurai Permasalahan Hukum Kontemporer. Gema Keadilan, 7(1), 20–33. https://doi.org/10.14710/gk.2020.7504
  9. Cullen, D., & Hoyle, C. (2025). The Role of Socioeconomic Factors in Indonesia’s Punitive Drug Policy Regime. https://www.law.ox.ac.uk/death-penalty-research-unit/report-role-socioeconomic-factors-indonesias-punitive-drug-policy
  10. Rizkia, N. D., & Fardiansyah, H. (2023). Metode Penelitian Hukum (Normatif dan Empiris) (E. Jaelani, Ed.). Widina Media Utama.
  11. Efendi, J., & Ibrahim, J. (2018). Metode Penelitian Hukum: Normatif dan Empiris (E. Wahyudin, Ed.). Prenadamedia Group.
  12. Faisal, Yanto, A., Rahayu, D. P., Haryadi, D., Darmawan, A., & Manik, J. D. N. (2024). Genuine Paradigm of Criminal Justice: Rethinking Penal Reform Within Indonesia New Criminal Code. Cogent Social Sciences, 10(1), 1–17. https://doi.org/10.1080/23311886.2023.2301634
  13. Febriansyah, R., Rahardian, R., Sofyan, M. M., & Yusup, R. M. (2025). The Hexahelix Model in the Prevention and Eradication of Narcotics Abuse in Bandung City. Spirit Publik: Jurnal Administrasi Publik, 20(2), 231–246. https://doi.org/10.20961/sp.v20i2.109972
  14. Flora, H. S., Thuong, M. T. H., & Erawati, R. D. (2023). The Orientation and Implications of New Criminal Code: An Analysis of Lawrence Friedman’s Legal System. Jurnal IUS Kajian Hukum dan Keadilan, 11(1), 113–125. https://doi.org/10.29303/ius.v11i1.1169
  15. Fransiska, A., Okta, S., Istiqomah, M., Putri, N. S., Nelson, F. M., Aristo, A., Pangaribuan, P., Sofian, A., Rahmawati, M., & Ginting, G. L. A. (2025). Buku Ajar Kaukus Akademik Reformasi Kebijakan Narkotika. Divisio Legal Design. https://divisio.id/buku-ajar-kaukus-akademik-reformasi-kebijakan-narkotika/
  16. Friedman, L. M. (1975). The Legal System: A Social Science Perspective. Russell Sage Foundation. https://www.russellsage.org/publications/book/legal-system
  17. Harianja, T., Halawa, F., & Mandasari, Y. (2024). Implementation of the Role of the National Narcotics Agency in Implementing Rehabilitation for Drug Addicts. International Journal of Law, Crime and Justice, 1(2), 132–142. https://doi.org/10.62951/ijlcj.v1i2.80
  18. Hariyanti, A., & Rahayu, T. P. (2024). Implementation of Good Governance in Improving Public Service Performance at BNNP Central Borneo. Journal of Public Administration Science: Policy Dynamics Public Services and Bureaucracy Transformation, 1(1), 1–6. https://doi.org/10.70074/jaspdt.v1i1.2
  19. Jaya, C., & Hikmah, F. (2024). Legal Reform on Rehabilitation for Drug Users as an Ultimum Remedium Effort. Jurnal USM Law Review, 7(1), 364–375. https://doi.org/10.26623/julr.v7i1.8803
  20. Latif, S. A., & Febrian, R. (2022). Collaborative Governance: Countering Narcotics Abuse in Indonesia. Journal of Governance, 7(3), 678–686. https://doi.org/10.31506/jog.v7i3.16673
  21. Lubis, A. F. (2023). The Right to a Fair Trial: Comparative Analysis of International Human Rights Standards. The Easta Journal Law and Human Rights, 1(03), 116–126. https://doi.org/10.58812/eslhr.v1i03.88
  22. Mahadewi, K. J., & YudhaPradnyana, I. M. (2024). Restorative Justice in the Enforcement of Narcotics Crimes in the Jurisdiction of the Badung Police. Jihad: Jurnal Ilmu Hukum dan Administrasi, 6(4), 2746–3842. https://doi.org/10.58258/jihad.v6i4.7553
  23. Mahendra, J. R. (2024). Non Penal Policy to Reduce the Rate of Narcotics Crime Through a Double Track System. Dialogia Iuridica, 15(2), 029–052. https://doi.org/10.28932/di.v15i2.7888
  24. Maruf, M. M., Hasan, L., Chowdhury, A., & Nabi, M. H. (2024). Current Perspectives on Substance Use Disorder in Bangladesh. In Current Perspectives on Substance Use Disorders in South Asia (pp. 37–62). Springer Nature Singapore. https://doi.org/10.1007/978-981-97-6619-2_3
  25. Maryani, I. (2021). Dekriminalisasi Pengguna Narkoba: Politik Kriminal Penanggulangan Problematika Overcapacity Lembaga Permasyarakatan di Indonesia. Yustitia, 7(2), 159–172. https://doi.org/10.31943/yustitia.v7i2.141
  26. Mubarok, R., & Pujiyono, P. (2025). Analysis of the Impact of the Implementation of the Death Penalty in the New Indonesian Criminal Code. International Journal of Social Science and Human Research, 08(09), 7135–7141. https://doi.org/10.47191/ijsshr/v8-i9-51
  27. Munandar, T. I., Siregar, E., Rakhmawati, D., & Adamy, Z. (2025). Restorative Justice in Narcotics Crimes Investigation: Implementation, Challenges and Obstacles. Mimbar Keadilan, 18(1), 159–170. https://doi.org/10.30996/mk.v18i1.11961
  28. Badan Narkotika Nasional Republik Indonesia. (2023). Indonesia Drugs Report (Vol. 5).
  29. Nasir, S. (2025). The Ambivalence of Drug Policy in Indonesia: Law Amendment but “War on Drugs” and Punitive Approach Remain. Pakistan Journal of Life and Social Sciences (PJLSS), 23(1), 6531–6539. https://doi.org/10.57239/PJLSS-2025-23.1.00509
  30. Nasution, R. P., Siregar, R. A. M., Ritonga, R. F., Ritonga, A. Z., & Siregar, R. A. (2023). Penghapusan Hukuman Mati pada Sistem Peradilan Pidana di Indonesia atas Lahirnya UU No 1 Tahun 2023 tentang KUHP. Jurnal Hukum, Politik, dan Ilmu Sosial, 3(1), 225–232. https://doi.org/10.55606/jhpis.v3i1.3249
  31. Ngaisah, S., Haryono, H., & Yuliastuti, G. E. (2025). Literature Review on Public Policy and Social Impact in Drug Rehabilitation in Indonesia. West Science Social and Humanities Studies, 3(08), 1213–1221. https://doi.org/10.58812/wsshs.v3i08.2186
  32. Nurhaliza B., S., Kaluku, J. A., & Puluhulawa, I. (2024). Mapping the Effectiveness of Restorative Justice Through Rehabilitation in Handling Drug Abuse Cases. Estudiante Law Journal, 6(1), 210–227. https://doi.org/10.33756/eslaj.v1i1.25590
  33. Nurhayati, Y., & Ifrani, I. (2021). Metodologi Normatif dan Empiris dalam Perspektif Ilmu Hukum. Jurnal Penegakan Hukum Indonesia, 2(1), 1–20.
  34. Putra, A. W., & Sutanti, R. D. (2020). Kebijakan Formulasi Pidana Mati Bersyarat dalam Perspektif Pembaharuan Hukum Pidana Indonesia. Jurnal Pembangunan Hukum Indonesia, 2(3), 319–330. https://doi.org/10.14710/jphi.v2i3.319-330
  35. Rifa’i, I. J., Muksalmina, M., Harahap, K. N., Churniawan, E., Saragih, G. M., Pustaka, S. K., Purwoto, A., Rusydi, M. T., Mardiyanto, I., Junaedi, M., Bariah, C., Ramadhani, M., Agustiwi, A., & Surasa, A. (2023). Metodologi Penelitian Hukum (A. Ifititah, Ed.). Sada Kurnia Pustaka. https://repository.sadapenerbit.com/index.php/books/catalog/book/54
  36. Shodiq, M., & Yuwannita, L. (2024). Criminal Law Policy (Penal Policy) in the Formulation of Criminal Sanctions Against Narcotics Crimes in Indonesia. International Journal of Social Science and Human Research, 7(04), 2461–2475. https://doi.org/10.47191/ijsshr/v7-i04-60
  37. Sukmawan, Y. A., & Damayanti, D. (2025). Metode Penelitian Hukum Normatif dan Empiris sebagai Strategi Penguatan Perspektif Kajian Ilmu Hukum. Notary Law Journal, 4(1), 114–128.
  38. Sukmawati, C., & Alviandi, D. (2024). Collaborative Governance in the Rehabilitation of Drug Abuse Victims in Medan City. Proceedings of International Conference on Social Science, Political Science, and Humanities (ICoSPOLHUM), 4, 1–9. https://doi.org/10.29103/icospolhum.v4i.401
  39. Sulastri, L. (2023). Pengaruh Obstruction of Justice yang Dilakukan Aparat Penegak Hukum terhadap Kepercayaan Masyarakat pada Sistem Peradilan di Indonesia. Pustaka Aksara.
  40. Suprianto, A., & Handayati, N. (2024). Penerapan Restoratif Justice pada Tahap Penyidikan terhadap Pelaku Tindak Pidana Narkotika. Jurnal Penelitian Ilmiah Multidisiplin, 8(12), 2118–7451.
  41. Susanto, A., Sukama, S., & Jarodi, O. (2024). Pidana Mati Menurut Perspektif Undang-Undang Nomor 1 Tahun 2023 tentang KUHP. Journal of Correctional Studies, 1(1), 84–91. https://doi.org/10.52472/jcs.v1i1.369
  42. Tjandrawinata, R. R., & Heliany, I. (2024). National Drug Resilience within the Legal Framework: An Analysis of Regulation and Implementation of Law Number 17 of 2023. International Journal of Science and Society, 6(4), 378–394. https://doi.org/10.54783/ijsoc.v6i4.1339
  43. United States Department of State Bureau for International Narcotics and Law Enforcement Affairs. (2025). 2025 International Narcotics Control Strategy Report. https://www.state.gov/2025-international-narcotics-control-strategy-report
  44. UNODC. (2024). World Drug Report 2024. https://www.unodc.org/unodc/en/data-and-analysis/world-drug-report-2024.html
  45. Vian, P. L., & Saleh, M. (2024). Effective Criminal Law Structure for Addressing Drug Abuse Cases. International Journal of Social Science Research and Review, 7(10), 175–180.
  46. Wardani, E. A. K., & Rustamaji, M. (2024). The Implementation of Restorative Justice Policy for Narcotics Abuse Crime. Prosiding Seminar Nasional Ilmu Pendidikan, 1(2), 340–349. https://doi.org/10.62951/prosemnasipi.v1i2.63
  47. Wibiyanto, F. S., & Sudarwanto, A. S. (2024). Perpetrator Abuse Narcotics Ongan Goal 1 Based on Perspective Sociology Law. International Journal of Educational and Life Sciences, 2(8), 972–983. https://doi.org/10.59890/ijels.v2i8.2414
  48. Wulandari, S., & Setiyanegara, E. (2025). Legal Analysis of the Death Penalty for Drug Traffickers from the Perspective of Human Rights. Jurnal Sosial, Sains, Terapan dan Riset (Sosateris), 13(2), 68–79. https://doi.org/10.35335/3ew5ts32

Copyright & Open Access License

Copyright (c) 2025 Author(s). This article is licensed under CC Attribution-NonCommercial-ShareAlike 4.0.