Kesiapan Transformasi Penambang Tradisional menuju Pengolahan Emas Bebas Merkuri di Banyumas dalam Kerangka Konvensi Minamata

Abstract

ABSTRAK
Komitmen Indonesia untuk mengimplementasikan Konvensi Minamata 2013 menjadi dasar upaya nasional menghapus penggunaan merkuri, termasuk pada Penambangan Emas Skala Kecil (PESK). Meski ratifikasi melalui UU No. 11 Tahun 2017 dan implementasi RAN-PPM telah dilakukan, praktik di daerah masih menghadapi hambatan sosial, ekonomi, dan kelembagaan, terutama di wilayah PETI seperti Kecamatan Gumelar, Ajibarang, dan Pekuncen di Kabupaten Banyumas. Penelitian ini menganalisis kesiapan penambang tradisional Banyumas dalam bertransformasi menuju pengolahan emas bebas merkuri melalui pendekatan mixed methods, menggabungkan analisis normatif terhadap Konvensi Minamata, UU Minerba, UUPPLH, serta PP No. 96 Tahun 2021, dan wawancara empiris di Desa Paningkaban, sebagai wilayah dengan tingkat aktivitas pertambangan terbanyak di Banyumas. Hasil penelitian menunjukkan bahwa lebih dari 80% penambang telah meninggalkan merkuri dan beralih ke sianida atau teknologi konsentrasi gravitasi karena alasan teknis dan efektivitas ekstraksi. Meskipun beberapa wilayah seperti Pancurendang, Paningkaban, dan Cihonje telah memperoleh dasar WPR, keberadaan WPR belum otomatis menghasilkan legalitas substantif karena perolehan IPR masih belum terkonfirmasi secara efektif, disertai kompleksitas prosedur, lemahnya pendampingan teknis, serta belum optimalnya pengawasan lingkungan dan reklamasi. Temuan ini menunjukkan bahwa kepatuhan Indonesia terhadap Konvensi Minamata masih bersifat pragmatic compliance—yakni pemenuhan kewajiban formal pada tingkat kebijakan, tetapi belum sepenuhnya menghasilkan perubahan substantif di tingkat komunitas penambang.
Kata kunci: kesiapan transisi; merkuri; pertambangan emas skala kecil; pragmatic compliance; wilayah pertambangan rakyat.

ABSTRACT
Indonesia’s commitment to implementing the 2013 Minamata Convention provides the foundation for national efforts to eliminate mercury use, including in Artisanal and Small-Scale Gold Mining (ASGM). Although Indonesia has ratified the Convention through Law No. 11 of 2017 and adopted the National Action Plan for Mercury Reduction and Elimination (RAN-PPM), local practices continue to face social, economic, and institutional barriers, particularly in PETI areas such as Gumelar, Ajibarang, and Pekuncen Districts in Banyumas Regency. This study analyzes the readiness of traditional miners in Banyumas to transform toward mercury-free gold processing using a mixed-methods approach, combining normative analysis of the Minamata Convention, the Mining Law, the Environmental Protection Law, and Government Regulation No. 96 of 2021 with empirical interviews conducted in Paningkaban Village, one of the areas with the highest mining activity in Banyumas. The findings show that more than 80% of miners have abandoned mercury and shifted to cyanidation or gravity concentration technologies due to technical considerations and extraction efficiency. Although several areas, such as Pancurendang, Paningkaban, and Cihonje, have obtained a legal basis through WPR designation, the existence of WPR has not automatically produced substantive legality, as the effective acquisition of IPR remains unconfirmed, accompanied by procedural complexity, weak technical assistance, and suboptimal environmental supervision and reclamation. These findings indicate that Indonesia’s compliance with the Minamata Convention remains a form of pragmatic compliance—namely, the fulfillment of formal obligations at the policy level without fully producing substantive change within mining communities.
Keywords: artisanal and small-scale gold mining; mercury; pragmatic compliance; transition readiness; people’s mining area.