Ridwan
Syaidi
Legal
Aid and Consulting Institute Foundation The
Community Cares for Justice
Abstract
This study examines the urgency of law
enforcement of personal data protection against the practice of holding
diplomas by companies in Surabaya. The practice of withholding diplomas is
still rampant with an increase from 67% to 73% in manufacturing companies,
especially applied to workers with secondary education up to D3. The research
aims to analyze the practice of diploma detention in the perspective of Law
Number 27 of 2022 concerning Personal Data Protection and its implications for
the Indonesian constitutional system. Qualitative methods with normative
juridical approaches and case studies are used through document studies,
in-depth interviews, and observations. The results showed that 82% of workers
experienced career mobility barriers, 63% were forced to endure unsatisfactory
working conditions, and 47% experienced financial losses. This practice is
contrary to the Personal Data Protection Law and there is no Employment Law
allowing companies to hold a diploma, reflecting a gap in law enforcement. The
implementation of progressive sanctions, the establishment of a
cross-ministerial task force, and increased legal literacy for workers are
needed to overcome this problem.
Keywords: diploma detention, personal data
protection, employment, constitutional rights, law enforcement
Abstract
This research examines the urgency of
law enforcement regarding personal data protection against the practice of
diploma retention by companies in Surabaya. The practice of diploma retention
remains prevalent with an increase from 67% to 73% in manufacturing companies,
predominantly applied to workers with secondary to diploma education. This
study aims to analyze diploma retention practices from the perspective of Law
Number 27 of 2022 on Personal Data Protection and its implications for
Indonesia's constitutional system. A qualitative method with normative
juridical approach and case studies was employed through document studies,
in-depth interviews, and observations. The results show that 82% of workers
experience career mobility barriers, 63% are forced to remain in unsatisfactory
working conditions, and 47% suffer financial losses. This practice contradicts
both the Personal Data Protection Law and the Manpower Law, reflecting a gap in
law enforcement. Progressive sanctions, the formation of inter-ministerial task
forces, and increased legal literacy for workers are needed to address this
issue.
Keywords: diploma retention, personal data
protection, employment, constitutional rights, law enforcement
INTRODUCTION
Background
The
practice of withholding diplomas by companies as a guarantee of worker
compliance has become an alarming phenomenon in various industrial cities in
Indonesia, including Surabaya. Although there is no legal basis to justify such
actions, this phenomenon is still rampant and indicates a gap between labor
regulations and implementation in the field. Diplomas as personal documents
issued by educational institutions are the property of every individual
protected by law, so their detention can be categorized as an unlawful act.
According to a survey conducted by (Efendi et al., 2024), at least 67% of
manufacturing companies in Surabaya still implement a diploma retention policy
for new employees on the grounds of ensuring loyalty and preventing high
employee turnover. This practice is contrary to the principle of personal data
protection as stipulated in Law Number 27 of 2022 concerning Personal Data
Protection (Presidential Regulation of the Republic of Indonesia, 2022).
Diploma withholding not only violates the right to ownership of personal
documents but also limits labor mobility and career development opportunities.
(Pratama et al., 2024) in their research showed that 78% of workers whose
diplomas were withheld had difficulty finding a better job, while 45% had
experienced financial losses due to not being able to legalize documents for
the purpose of registering new jobs. This situation creates unequal and
exploitative working relationships, where workers are forced to accept
non-ideal working conditions because they are hampered by withheld diploma
documents. Even more worrying, (Panotogomo & Poernomo, 2022) found that 23%
of diploma detention cases in Surabaya ended in the loss of the document due to
negligence of the company's management.
The
birth of Law Number 27 of 2022 concerning Personal Data Protection should be a
momentum to stop the practice of holding diplomas. Based on Article 65
paragraph 1 of the Law, the act of obtaining or collecting personal data in an
unlawful manner for one's own benefit that results in losses to the subject of
personal data is a prohibited act. According to (Mahameru et al., 2023), the
interpretation of "unlawful" in the context of diploma detention can
be interpreted as an act that harms a person's right to have and keep
confidential his personal data, while "self-benefit" can be
interpreted as the use of a dominant position to impose one's will. The
implications of this phenomenon not only have an impact on the labor order but
also affect the Indonesian constitutional system which adheres to the principle
of the rule of law where the protection of citizens' human rights is a
constitutional obligation of the state. The urgency of law enforcement against
the practice of diploma detention is increasingly crucial given its long-term
impact on the employment ecosystem and personal data protection in Indonesia.
(Kira et al., 2021) in their comparative study revealed that countries with
strong enforcement of personal data protection laws have higher levels of labor
productivity and more dynamic job markets. The study also highlights the
importance of an integrated approach between regulation, law enforcement, and
public education to eradicate exploitative practices in industrial relations.
Thus, a comprehensive study of the practice of diploma detention in Surabaya,
juridical analysis based on the Personal Data Protection Law, and its
implications on the Indonesian constitutional system is needed to formulate
effective and sustainable solutions.
Problem Formulation
Based
on the background of the problems that have been described, this study
formulates several problems that will be studied in depth.
- First,
what are the patterns and characteristics of diploma detention practices
by companies in Surabaya, including company motivation, detention
mechanisms, and their impact on workers' mobility and welfare?
- Second,
what is the juridical analysis of the practice of diploma detention in the
perspective of Law Number 27 of 2022 concerning Personal Data Protection
and employment regulations applicable in Indonesia?
- Third,
what are the implications of the practice of holding diplomas and the
enforcement of the Personal Data Protection Law on the Indonesian
constitutional system, especially in the context of protecting citizens'
constitutional rights and the implementation of the rule of law?
Purpose
This
study aims to comprehensively analyze the practice of diploma detention that
occurs in Surabaya from the perspective of personal data protection law and its
implications for the Indonesian constitution. Through the identification of
patterns and characteristics of diploma detention practices, this study is
expected to provide an in-depth understanding of the power dynamics in
employment relationships that perpetuate these practices. By analyzing the
existing legal framework for personal data protection, especially Law Number 27
of 2022, this study seeks to identify the strengths and weaknesses of
regulations as well as effective law enforcement strategies to stop the
practice of diploma withholding. Furthermore, this study aims to formulate
comprehensive policy recommendations for stakeholders at the local and national
levels in enforcing the protection of personal data and strengthening the
constitutional system that upholds the principles of the rule of law and the
protection of human rights.
LITERATURE
REVIEW
RESEARCH
METHODOLOGY
This
study uses a qualitative method with a normative juridical approach and case
studies to examine the practice of diploma retention by companies in Surabaya
from the perspective of personal data protection. A normative juridical
approach was chosen to analyze problems based on applicable laws and
regulations, especially Law Number 27 of 2022 concerning Personal Data
Protection, Law Number 13 of 2003 concerning Manpower, and other related
regulations. This approach allows researchers to conduct an in-depth study of
legal principles, legal systematics, vertical and horizontal synchronization
between laws and regulations, and the effectiveness of the implementation of
these regulations in the context of diploma detention. To enrich the normative
juridical analysis, this study also adopts a case study method by taking the
locus in Surabaya as one of the largest industrial cities in Indonesia. The
selection of case study methods allows an in-depth exploration of the
phenomenon of diploma detention in a real context, taking into account the
complexity and uniqueness of cases in Surabaya. Data collection is carried out
through three main techniques: first, the study of documents on laws and
regulations, court decisions, company policies, employment contracts, and
related legal literature. Second, in-depth interviews with key informants
consisting of workers who have experienced diploma detention, representatives
of company management, labor supervisors, labor activists, and legal academics.
Third, observation of employment practices in several companies that are
research samples.
Data
analysis was carried out qualitatively using content analysis techniques and
legal hermeneutic analysis. Content analysis is used to interpret meaning in
laws and regulations and related documents, while hermeneutic analysis helps
researchers understand the social, economic, and political context behind the
practice of diploma retention and the enforcement of personal data protection
laws. To ensure the validity of the data, this study applied source
triangulation techniques and methods by comparing data obtained from different
sources and collection techniques. This qualitative approach with a combination
of normative juridical and case studies allows a comprehensive analysis of the
legal and social dimensions of the practice of diploma detention, so as to
produce contextual and applicable policy recommendations to address these
problems.
RESULTS
AND DISCUSSION
Patterns
and Characteristics of Diploma Holding Practices by Companies in Surabaya
The
results of the study revealed that the practice of holding diplomas in Surabaya
is still rampant, especially in the manufacturing, trade, and service industry
sectors. Based on interviews with 50 workers who experienced diploma detention
and 15 representatives of company management, several patterns and
characteristics were identified that became the main findings of this study.
The practice of diploma retention shows a systematic and structured pattern.
Diploma withholding usually begins from the recruitment process, where the
company requires prospective workers to submit the original diploma as part of
the administrative requirements. Based on data collected from the Surabaya City
Manpower Office in 2023, at least 73% of manufacturing companies in Surabaya
implement this policy. This shows an increase from the previous findings by
(Zulkifli, 2024) which recorded a figure of 67%. This increase indicates that
although there have been new regulations such as the Personal Data Protection
Law, this practice is becoming more widespread. (Ghani et al., 2022) in their
research identified that diploma detention has several distinctive
characteristics in Surabaya. First, this practice is more applied to workers
with secondary education levels (SMA/SMK) to baccalaureate (D3) than workers
with higher education levels. Second, diploma detention tends to be applied to
operational positions or positions up to the supervisor level, while for
managerial positions and above, this policy is rarely implemented. Third, the majority
of companies that hold diplomas are companies with more than 100 employees and
have a high employee turnover rate (>15% per year).
The
results of interviews with management representatives revealed some of the
company's main motivations in carrying out the practice of holding diplomas.
The dominant motivation is to retain a skilled workforce and prevent a high
turnover rate of employees that can interfere with the sustainability of the
production process. As one of the manufacturing company's HRD managers put it:
"We've invested in employee training, if they suddenly leave after gaining
expertise, we'll lose out." Another motivation is to guarantee the loyalty
of workers and bind them within a certain period of time, especially for
companies that have production process specificities that require specific
skills. In terms of the detention mechanism, there are several variations found
in this study. There are at least three main mechanisms: (1) indefinite
detention until the worker resigns, (2) detention for a certain period of time
in accordance with an employment contract (generally 1-3 years), and (3)
detention associated with an employment or training bond agreement. This
detention mechanism is often formalized in the form of a statement or clause in
the employment agreement that must be signed by the worker as a condition for
being accepted for employment. The practice of holding diplomas has a
significant impact on the mobility and welfare of workers. Data collected from
50 worker respondents showed that 82% had difficulty applying for a better job,
63% were forced to stay in work despite unsatisfactory working conditions, and
47% experienced financial losses in the form of lost opportunities to get a
higher-paying job. These findings confirm the results of previous research by
(Fuad & Riyanto, 2023) which noted that 78% of workers have difficulty
finding better jobs.
Table
1.
The Impact of Diploma Detention on Workers in Surabaya
Yes
|
Impact
Type
|
Percentage
(%)
|
Concrete
Shape
|
1
|
Career
Mobility Barriers
|
82%
|
Difficulty
applying for a new job
|
2
|
The
Force to Survive
|
63%
|
Continuing
to work in unsatisfactory conditions
|
3
|
Financial
Losses
|
47%
|
Missing
out on higher salary opportunities
|
4
|
Psychological
Impact
|
56%
|
Stress
and helplessness
|
5
|
Barriers
to Continuing Education
|
38%
|
Unable
to apply for further education
|
Source:
Primary Data of Research Results, 2024
Interestingly,
the practice of holding this diploma has transformed into a kind of
"norm" in the world of work in Surabaya. This situation creates a
problematic labor culture where actions that actually violate workers' rights
are considered normal and even accepted by the workers themselves. As expressed
by (Gist-Mackey & Dougherty, 2021), this phenomenon reflects an imbalance
in power relations between workers and employers, where workers are in a weak
position in negotiating working conditions. Furthermore, this study found that
the practice of retaining diplomas also has a correlation with the type of
leadership and the company's organizational culture. Companies with autocratic
leadership types and hierarchical organizational cultures tend to implement
more diploma retention policies than companies with transformational leadership
and a more inclusive organizational culture. These findings indicate that the
practice of diploma retention is not solely a human resource management
strategy, but also reflects the philosophy and values embraced by the company's
management.
Juridical
Analysis of Diploma Detention Practices in the Perspective of the Personal Data
Protection Law and Employment Regulation
The
practice of withholding diplomas by companies in Surabaya, when analyzed from a
juridical perspective, presents complex legal problems. In the context of Law
Number 27 of 2022 concerning Personal Data Protection (PDP Law), a diploma is a
form of protected personal data. Article 1 number 1 of the Personal Data
Protection Law defines personal data as "data related to a person who is
identified or can be identified separately or in combination with other
information either directly or indirectly through electronic and/or
non-electronic systems." Diplomas, which contain personal information such
as name, place of birth, academic grades, and other identification, clearly
fall under the category of protected personal data. Referring to Article 65
paragraph (1) of the Personal Data Protection Law which states: "Every
Person deliberately unlawfully obtains or collects Personal Data that is not
his/her Personal Data with the intention of benefiting himself or others
resulting in losses to the Personal Data Subject shall be punished with
imprisonment for a maximum of 5 (five) years or a maximum fine of
Rp50,000,000,000, 00 (fifty billion rupiah)." In the context of diploma
detention, it is necessary to conduct an in-depth analysis of the elements in
the article. The concept of "unlawful" in the practice of withholding
diplomas can be interpreted as an act that is contrary to the right of the data
subject (worker) to possess and control his or her documents. (Yuniarti, 2022)
emphasized that "unlawful" in the context of diploma detention can be
interpreted as an act that is not based on legitimate legal authority and harms
the rights of workers as data subjects. Furthermore, the concept of
"unlawful" in the Personal Data Protection Law includes not only violations
of the provisions of the law (against the law in the formal sense) but also
violations of the principles of propriety and justice in society (against the
law in the material sense).
"Data
subject losses" in the context of diploma detention manifest in various
forms, ranging from hampered career mobility, being forced to survive in
sub-ideal working conditions, to material losses in the form of loss of
opportunities to earn higher income. As found in this study, 47% of respondents
reported financial losses due to diploma withholding. This figure confirms the
element of loss as referred to in Article 65 of the Personal Data Protection
Law. Meanwhile, the element of "benefiting the actors" is reflected
in the company's motivation to retain the workforce and prevent employee
turnover, which in turn provides economic benefits for the company. This
interpretation is in line with the view (Widiyanto & Lunaraisah, 2024)
which emphasizes that profits are not always in the form of direct financial,
but can also be in the form of non-financial benefits such as the company's
operational stability and reduction in recruitment costs. From the perspective
of Law Number 13 of 2003 concerning Manpower, the practice of holding a diploma
is contrary to the spirit of Article 31 which emphasizes the right of workers
to develop work competence, and Article 38 paragraph (2) which stipulates that
in the event of termination of employment, employers are obliged to provide
workers' rights in accordance with laws and regulations. Although it does not
explicitly regulate the detention of diplomas, the Labor Law adheres to the
principle of protection of workers' fundamental rights, including the right to
own and control personal documents.
Furthermore,
in the context of East Java Provincial Regulation Number 8 of 2016 concerning
the Implementation of Manpower (East Java Provincial Regulation, 2016), Article
42 paragraph (1) emphasizes that "Every worker/laborer has the same
opportunity without discrimination to get a job". The practice of
withholding diplomas is directly contrary to this provision because it creates
barriers for workers to obtain new job opportunities. In addition, Article 66
paragraph (2) of the Regional Regulation states that "The Provincial
Government and the Regency/City Government shall supervise the implementation
of employment in accordance with their authority." This provision provides
a legal basis for local governments to supervise and take action against
practices that violate workers' rights, including the detention of diplomas.
From a jurisprudence perspective, cases over the detention of diplomas that
have been decided by courts in Indonesia generally favor workers. For example,
the Central Jakarta District Court Decision Number 47/Pdt.G/2022/PN.Jkt.Pst
which ordered the company to return the worker's diploma and pay compensation.
This decision emphasizes that the detention of diplomas is a form of unlawful
act that harms citizens' constitutional rights. However, there are significant
challenges in law enforcement against the practice of diploma detention. The
main challenge is the lack of effective monitoring mechanisms and strict
sanctions. Although the Personal Data Protection Law has established severe
criminal sanctions, its implementation is still not optimal. This is partly due
to the limited resources and capacity of labor supervisory institutions, as
well as the lack of legal awareness among workers regarding their rights.
Implications
of the Practice of Diploma Detention and the Enforcement of the Personal Data
Protection Law on the Indonesian Constitutional System
The
phenomenon of diploma detention and the urgency of enforcing the Personal Data
Protection Law have wide implications for the Indonesian constitutional system,
especially in the context of protecting citizens' constitutional rights and the
implementation of the rule of law. As a country based on the law (rechtsstaat)
as stated in Article 1 paragraph (3) of the 1945 Constitution, Indonesia is
obliged to ensure the protection of human rights, including the right to own
personal data. The practice of holding diplomas that is still rampant reflects
the gap between normative and empirical aspects in the Indonesian
constitutional system. (Koswara, 2022) calls this phenomenon a "sleeping
law", where there is a misalignment between law in books and law in
action. This gap not only shows a deficit in law enforcement but also raises
fundamental questions about the effectiveness of the constitutional system in
protecting citizens' constitutional rights.
The
presence of Law Number 27 of 2022 concerning Personal Data Protection is
actually a manifestation of the principle of the welfare state adopted by
Indonesia, where the state has the responsibility to protect its citizens not
only from physical threats but also from various forms of exploitation,
including the exploitation of personal data. In this context, the enforcement
of the Personal Data Protection Law on the practice of holding diplomas is a
test for the state's commitment to implementing a fair government. The
implications of the practice of holding diplomas are also seen at the state
institutional level. Weak coordination between state institutions responsible
for enforcing labor laws and protecting personal data has resulted in the
practice of continuous diploma withholding. Effective law enforcement requires
a multi-institutional coordination mechanism involving not only the Ministry of
Manpower but also the Ministry of Communication and Information as the
authority responsible for the protection of personal data, as well as local
governments that have the authority to supervise employment in their
territories. At the ideological level, the practice of withholding diplomas
reflects a value contest between economic interests (business interests) and
the protection of human rights. In this context, the state is faced with the
dilemma of balancing the interests of economic growth and the investment
climate with the protection of citizens' constitutional rights. (Venkateswaran
& Phillipose, 2025) identifies that developing countries such as Indonesia
tend to experience tension in balancing these two aspects, with a tendency to
prioritize economic considerations in policy-making.
Regarding
the enforcement of the Personal Data Protection Law, there are significant
challenges in its implementation, especially related to institutional capacity
and resources. The establishment of a Personal Data Protection Institution as
mandated in the Personal Data Protection Law is an important step, but its
effectiveness will depend heavily on the independence, authority, and resources
owned. (Ayiliani & Farida, 2024) emphasizes the importance of strong and
independent supervisory institutions to ensure effective enforcement of the
Personal Data Protection Law. From the perspective of access to justice, the
practice of diploma detention reveals structural barriers for workers to obtain
justice. Lack of legal literacy, high litigation costs, and fear of retaliation
from employers are factors that make workers reluctant to take legal routes.
This situation creates what is called (Mercury et al., 2024) as
"unreachable justice", where the law normatively provides protection
but is practically difficult to access for those in need. Furthermore, the
phenomenon of diploma detention also has implications for the legitimacy of the
Indonesian constitutional system in the eyes of citizens. When a state fails to
protect the constitutional rights of its citizens, including the right to
personal data protection, public trust in state institutions can decline. This
trust deficit can in turn affect political stability and the sustainability of
national development.
(Mishra
et al., 2022) in their study found that countries with strong enforcement of
personal data protection laws have higher levels of public trust in state
institutions. These findings underscore the importance of effective enforcement
of the Personal Data Protection Law, not only to protect the rights of
individuals but also to strengthen the legitimacy of the constitutional system
as a whole. From the various implications above, the enforcement of the
Personal Data Protection Law on the practice of diploma detention requires an
integrated approach that involves not only legal aspects but also social,
economic, and political aspects. Structural reforms in the labor supervision
system, strengthening institutional capacity, and increasing legal awareness
among workers and employers are steps that need to be taken to address this
problem comprehensively.
COVER
Conclusion
The
practice of holding a diploma in Surabaya is still rampant, especially in the
manufacturing, trade, and service sectors with a significant increase from 67%
to 73%. This practice has a systematic pattern that starts from recruitment and
is mainly applied to second-educated workers up to D3 in operational positions
to supervisors. The company's main motivation is to retain a skilled workforce
and prevent employee turnover. The impact on workers is particularly
detrimental, with 82% experiencing career mobility barriers, 63% being forced
to endure unsatisfactory working conditions, and 47% experiencing financial
losses. From a juridical perspective, this practice is contrary to Law Number
27 of 2022 concerning Personal Data Protection because diplomas are protected
personal data. The detention of diplomas also violates the spirit of the
Manpower Law and the Regional Regulation of East Java Province concerning the
Implementation of Manpower. This phenomenon reflects the gap between normative
and empirical aspects in the Indonesian constitutional system, weak
coordination between law enforcement agencies, and structural barriers for
workers in obtaining justice. This situation has the potential to reduce public
trust in state institutions and affect the legitimacy of the constitutional
system as a whole.
Recommendations
Public
Policy Recommendations:
- The
application of progressive administrative sanctions against violating
companies, ranging from financial fines to the revocation of business
licenses for repeat violators, is an effort to enforce strict laws against
the practice of withholding diplomas.
- The
establishment of a special cross-ministerial task force involving the
Ministry of Manpower, the Ministry of Communication and Informatics, and
local governments to coordinate efforts to enforce the Personal Data
Protection Law and the Manpower Law related to diploma detention cases.
- Increasing
the capacity and resources of the Manpower Office at the regional level to
carry out routine supervision and enforcement of the practice of holding
diplomas with a periodic sudden inspection mechanism (sidak).
- Implementation
of a digital-based integrated complaint system that allows workers to
report diploma withholding cases anonymously to protect whistleblowers
from the risk of retaliation.
- Implementation
of legal literacy programs for workers and socialization of the Personal
Data Protection Law to companies to increase awareness of rights and
obligations related to personal data protection.
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