Available at:

http://ejournal.unida.gontor.ac.id/index.php/tsaqafah
https://dx.doi.org/10.21111/tsaqafah.v17i1.6704

Analysis of Alternative Dispute Resolution in

non-litigation dispute resolution on Islamic
Mortgage: at the Ombudsman Institution
Yogyakarta
Mulyono Jamal*
Universitas Darussalam Gontor
Email: [email protected]
Akhmad Afandi Mahfudz*
Universitas Darussalam Gontor
Email: [email protected]
Syamsuri*
Universitas Darussalam Gontor
Email: [email protected]
Resi Handayani*
Universitas Darussalam Gontor
Email: [email protected]

Abstract
Limited information, experience, and very low economic conditions
are the background of business dispute cases, especially in Islamic mortgages.
Business dispute cases, including Islamic mortgage, have so far been resolved
using non-litigation settlements using Alternative Dispute Resolution (ADR), it is
considered easier, does not incur expensive costs, is familial, and achieves the goal
of dispute resolution, namely win-win solutions. Settlement of disputes using this
method has been regulated in Law Number 30 of 1999 concerning arbitration
and alternative dispute resolution. In this case, the Yogyakarta Ombudsman
as one of the non-litigation institutions also takes part in resolving disputes
non-litigation. This study aims to analyze the method used, namely alternative
dispute resolution in resolving disputes over sharia mortgage loans. Finally, this
research finds that in the process of resolving disputes over sharia mortgages
with alternative dispute resolution, the method of consultation, negotiation,

* Jl. Raya Siman, Ponorogo, Jawa Timur, Indonesia, 63471.

Volume 17, Number 1, May 2021, 207-228

208 Mulyono Jamal, Akhmad Afandi Mahfudz, Syamsuri, Resi Handayani

mediation, and expert judgment is used. The alternative dispute resolution

method prioritizes peace and a win-win solution or conditions that are favorable
to the parties, but in this case, the non-litigation dispute resolution method does
not succeed in bringing about peace or a win-win solution.

Keywords: Business disputes, non-litigation resolution, alternative dispute resolution,

Islamic mortgage.

Abstrak
Keterbatasan informasi, pengalaman dan kondisi ekonomi yang sangat
rendah melatarbelakangi adanya kasus sengketa bisnis khususnya di kredit
pemilikan rumah syariah. Kasus persengketaan bisnis termasuk pada sengketa
kredit pemilikan rumah syariah selama ini diselesaikan menggunakan penyelesaian
non-litigasi dengan menggunakan Alternative Dispute Resolution (ADR),
hal itu dianggap lebih mudah, tidak mengeluarkan cost yang mahal, bersifat
kekeluargaan, dan tercapainya tujuan dari penyelesaian sengketa yaitu win-win
solution. Penyelesaian sengketa dengan menggunakan cara tersebut telah diatur
dalam Undang-undang Nomor 30 tahun 1999 tentang arbitrase dan alternative
penyelesaian sengketa. Dalam hal ini lembaga Ombudsman Yogyakarta
sebagai salah satu lembaga non-litigasi juga turut andil dalam menyelesaikan
persengketaan secara non-litigasi. Penelitian ini bertujuan untuk menganalisa
metode yang digunakan yaitu alternative dispute resolution dalam menyelesaikan
sengketa kredit pemilikan rumah syariah. Akhirnya penelitian ini mendapati
bahwa dalam proses penyelesaian sengketa kredit pemilikan rumah syariah dengan
alternative dispute resolution ini menggunakan metode konsultasi, negosiasi,
mediasi, dan penilaian ahli. Metode alternative dispute resolution mengedepankan
perdamaian dan win-win solution atau keadaan yang menguntungkan untuk para
pihak, namun dalam kasus ini metode penyelesaian sengketa non-litigasi tidak
berhasil membawa perdamaian atau win-win solution.

Kata Kunci: Sengketa bisnis, Penyelesaian non-litigasi, Alternative dispute resolution,

Kredit pemilikan rumah syariah.

Journal TSAQAFAH
 Analysis of Alternative Dispute Resolution in non-litigation dispute resolution... 209

Introduction

B
ased on the 2015-2019 Government Development Plans of
Indonesia set at 172,650 houses in 2015, now it is adjusted
to 1 million housing units each year, with details of 603,516
houses for Low-Income Communities (MBR) and 396,484 houses
for Middle-Upper Communities (Non-MBR).1 The scheme used for
the Housing Development Program for low-income people is the
Housing Financing Liquidity Facility Scheme (FLPP), which is in the
form of down payment assistance or subsidies for public mortgage.2
In 2016 to 2020, the Central Bureau of Statistics (BPS) reported that
during the past 5 years, nationally there have been fluctuating
changes in the indicators of ownership houses. While in 2016 to 2020
mortgage increased to 0.79, this is can be a great opportunity for any
product development of Islamic banks. Homeownership indicators,
especially in the field of sharia, relate to the growth in the number of
Islamic banking institutions operating in Indonesia. 3
The mortgage is a credit facility provided by banks to individual
customers who are going to buy or repair houses.4 A Mortgage is a
form of credit facility provided by banks to the public or customers
who wish to buy a new or used house and the payment is made in
installments.5 Mortgages are a type of consumptive loan, namely
loans that are used to finance goods and services aimed to making it
easier for people to build houses, renovate, buy or expand land with
payments that can be paid in installments every month.6
In the scheme of financing, Mortgage is divided into two 1)
Mortgage subsidies are credits allocated to Low-income Communities.
2) Mortgage Non-subsidy or Commercial are mortgages that are
intended for the entire community.7

1
Pembangunan Perumahan, Biro Analisa Anggaran dan Pelaksanaan APBN-
SETJEN DPR-RI., 1
2
Ibid. 2
3
Badan Pusat Statistik, “indicator perumahan”, Badan Pusat Statistik (bps.go.id) ,
downloaded at February 3, 2021. 18.01 WIB.
4
Sari, “Analisis Perbandingan Perhitunganpembiayaan Kepemilikan Rumah Di Bank
Konvensional Dan Syariah (Studi Kasus Pada Bank Mandiri Dan Bri Syari’ah),” 86.
5
Muhtarom, “Implementasi Akad Murabahah Pada Produk Pembiayaan Kredit Pemilikan
Rumah (KPR) Di Bank Syariah Mandiri KC Bojonegoro Menurut Hukum Ekonomi Syariah,” 2–3.
6
Islami, “Analisis Pemberian Kredit Pemilikan Rumah (KPR) Untuk Mengurangi NPL
(Studi Kasus BTN Cabang Bogor),” 1.
7
Hudiyati et al., “Kajian Perlindungan Konsumen Sektor Jasa Keuangan : Kredit Pemilikan
Rumah ( KPR ),” 9.

Volume 17, Number 1, May 2021

210 Mulyono Jamal, Akhmad Afandi Mahfudz, Syamsuri, Resi Handayani

Than for avoid the receipt and payment of interest (riba), the
Islamic banking to resort to providing some product of financing
(financing).8 The increasing demand and need for residential housing
makes the mortgage facility a soaring business opportunity.9 Because
of several parties, the problems of mortgage related to the property
industry and banking institutions during the last 3 years have always
been recorded as the highest dispute.10
During 2019, in the Indonesian Consumers Foundation recorded
a 81 cases or 14.4% of which were complaints related to the housing
sector. From the housing property sector, 26.1% include construction,
23.8% refunds, 9.5% documents, 9.5% building specifications and 5.9%
transaction systems. Meanwhile, the National Consumer Protection
Agency stated that from January to March 2019, 154 complaints were
received and it was estimated that this would continue to increase.11
The chairman of the Ombudsman Institution Yogyakarta,
Suryawan Raharjo said that total public complaints reached 459 cases
in 2019. This case is dominated by the property sector which is focused
on the subsidized housing program, the complaint in this case is
68.3%, with the number of complaints in the property sector as many
as 149 complaints.12 Many case complaints indicate a large number
of disputes. In this case, it is very possible to have a dispute.13 The
occurrence of disputes is due to several reasons.14 Generally, disputes
occur due to fraud or broken promises, the contents of the agreement
or agreement.15
This occurs due to actions that the agreements made, the
existence of default on an agreement, unfair competition, betrayal,

8
Arifin, Dasar-Dasar Manajemen Bank Syariah, 217.
9
https://responsibank.id/banks/studi-kasus/kpr-dan-konsumen/ accessed, Sunday,
5 July 2020 at 20.56 WIB
10
https://ekonomi.bisnis.com/read/20200204/47/1197166/ylki-pengaduan-
konsumen-properti-pada-2019-masuk-tiga-besar accessed, Sunday 5 July 2020 at 21.02 WIB
11
https://www.cnbcindonesia.com/news/20190408134507-4-65182/kuartal-i-2019-
konsumen-paling-banyak-keluhkan-perumahan accessed, Sunday, 5 July 2020 at 22.38 WIB
12
https://jogjapolitan.harianjogja.com/read/2020/01/06/510/1028708/ditipu-
pengembang-perumahan-kasus-properti-paling-banyak-diadukan-warga-ke-ombudsman-
diy- accessed, tuesday, 7 July 2020 pukul 09.07 WIB
13
Lathif and Habibaty, “Disparatis Penyelesaian Sengketa Jalur Litigasi Pada Polis
Asuransi Syariah Dan Putusan Pengadilan,” 77.
14
Kapindha, M, and Febrina, “Efektivitas Dan Efisiensi Alternative Dispute Resolution
(ADR) Sebagai Salah Satu Penyelesaian Sengketa Bisnis Di Indonesia,” 2.
15
Hervina, “Kewenangan Penyelesaian Sengketa Ekonomi Syari’ah Pada Perbankan
Syari’ah Di Samarinda,” 266.

Journal TSAQAFAH
 Analysis of Alternative Dispute Resolution in non-litigation dispute resolution... 211

fraud, forgery, different interpretations of the rule of law and so

on.16 The dispute settlement institutions is consist of two, namely
litigation dispute resolution institutions and non-litigation dispute
resolution institutions.17 Meanwhile, non-litigation dispute resolution
has alternative options, divided into 2 (two), namely Arbitration and
Alternative Dispute Resolution.18
In this discussion, the Ombudsman Institution Yogyakarta can
become a facilitator between business actors and consumers in the
event of gaps in order. This authority was strengthened by the issuance
of the Yogyakarta Governor’s Regulation No. 69/2014, concerning the
Organization and Governance of the DIY LO, the Private Ombudsman
Institution and the Regional Ombudsman Institution merged into one
starting from the 2015-2018 membership period.19
The ombudsman institution receives approximately 200
consultations and complaints a year. Detailed data of complaints for
the period 2019 resulted in 106 final products. Whereas in 2020 the
details of the consultation and complaints that were submitted 24
cases of complaints and 247 consultations, in 2020 it’s counted 165 final
products.20 That indicates a non-litigation dispute resolution institution
that is trusted by the public.
The Ombudsman Institutions Yogyakarta as a mediator and a
facilitator for the peace of the disputing parties. That by the Islamic
law prespective, the mediation step is very influential because it is
an important part of resolving disputes. The resolution of the non-
litigation model is considered to be more able to coordinate the
weaknesses of the litigation model as producing a win-win solution
agreement and obtaining social justice. From the discussion and
explanation of the matters above, the author feels and need to examine
further and in depth the matters on Islamic mortgage. Thus it is
needed to study, research and analyze problems regarding “Analysis
of Alternative Dispute Resolution in non-litigation dispute resolution on
Islamic Mortgage: at the Ombudsman Institution Yogyakarta.”
16
Cahyadi, “Penyelesaian Sengketa Perbankan Syariah,” 18.
17
Mukarromah and Wage, “Penyelesaian Sengketa Ekonomi Syari’ah Di Lembaga
Keuangan Syari’ah Kabupaten Banyumas,” 71.
18
Muthia Sakti and Yuliana Yuli Wahyuningsih, “Tanggung Jawab Badan Arbitrase
Syariah Nasional (Basyarnas) Dalam Penyelesaian Sengketa Perbankan Syariah,” Jurnal Yuridis
4, no. 1 (2017): 78,.
19
Brosur Lembaga Ombudsman Daerah Istimewa Yogyakarta, Mitra Masyarakat,
Pelaku Usaha dan Masyarakat. Hlm. 1
20
https://ombudsman.jogjaprov.go.id/ diakses Ahad, 12 Juli 2020. Time 22.46 WIB

Volume 17, Number 1, May 2021

212 Mulyono Jamal, Akhmad Afandi Mahfudz, Syamsuri, Resi Handayani

Methodology
This research uses qualitative methods that are descriptive-
analytical in nature. Qualitative research is analyzes data using a
qualitative approach. The data is not in the form of numbers but verbal
words.21 Object of research at the Ombudsman Institution Yogyakarta.
Source of data will used primary data by interviews (with Mrs. Evi
Nur Akhidhah, S. Sos, serving as a case manager and assistant in the
field of socialization, cooperation, and network strengthening and Mrs.
Yusticia Eka Noor Ida, S.T, is the commissioner and vice chairman of
Research, Development, and Institutional Relations) discussion, and
observation unstructure and secondary data which is a collection of
journals, laws and regulations, books, papers, websites, and others.
The data collection tools used study of document22, Interview23 and
observation. The data analysis technique used Deductive Method using
theorization generally ends with discussions of the theory which are
accepted, doubted and criticized, revised or denied, even supported
and strengthened24 and the Descriptive Method have been obtained
from interviews and document collection are processed properly
and with deep thought so that they can be narrated in written form
properly and perfectly.25

Literature Review
Mardani discussed the settlement of sharia business disputes
using the Alternative Dispute Resolution method. The results of his
research stated that the dispute resolution method was chosen by the
disputing parties for several reasons, including volunteerism in the
process, fast procedures, confidentiality, saving time, cost-saving,
non-judicial decisions, flexibility in designing provisions, dispute
resolution, win-win solution, maintain good relations between
disputing parties.26
Another research from Erie Hariyanto discussed the resolution
of Indonesian sharia economic disputes, which states that disputes or
21
Suteki and Taufani, Metodologi Penelitian Hukum : (Filsafat, Teori Dan Praktik), 139.
22
Mulyana, Metodologi Penelitian Kualitatif, 241.
23
Widi Winarni, Teori Dan Praktik Penelitian Kuantitatif Kualitatif, 164.
24
Bungin, Penelitian Kualitatif, 27.
25
Bungin, 136.
26
Mardani, “Penyelesaian Sengketa Bisnis Syariah,” Mimbar Hukum 22, no. 2 (2010): 299,
https://doi.org/10.31219/osf.io/m98vd.

Journal TSAQAFAH
 Analysis of Alternative Dispute Resolution in non-litigation dispute resolution... 213

differences of opinion in the Islamic civil sector can be resolved by the

parties through Alternative Dispute Resolution based on good faith
by ruling out litigation resolution The results from the research state
sharia economic dispute resolution is directed at the non-litigation
path either through Deliberation-Consensus or Alternative Dispute
Resolution.27
Hervina’s research discusses about the authority for sharia
economic dispute resolution in Islamic banking. The results from the
research state that dispute resolution using arbitration or mediation,
she also states that non-litigation resolution using the mediation
method is in demand because dispute resolution through mediation
is straightforward, fast, settlement is amicable, and confidentiality is
more guaranteed.28
Parman Komarudin also discussed the settlement of sharia
economic disputes through non-litigation channels. The results of his
research in resolving the disputes it faces, Islamic banking are more
likely to choose mediation institutions. This is because mediation is
more efficient, both in terms of time and cost, and is more confidential
so that the public’s credibility is maintained, because in the business
world, “trust” is one of “goodwill” or a sufficiently calculated asset.29
Muaidi discussed Dispute Resolution in Sharia Economic Law.
The result states that alternative dispute resolution is one of the
methods of settlement. The solution to sharia economic problems
in Indonesian positive law also adopts the Sulh method which is
popularly known as the Alternative Dispute Resolution (ADR). Peace
has been supported by its existence in positive law, Law Number 30
of 1999 concerning Arbitration and Alternative Dispute Resolution.
Apart from “sulh”, dispute resolution also uses Arbitration. Usually,
in a business contract, it has been agreed in a contract that is made to
resolve disputes that occur in the future between them.30
Sulistyowati discusses the resolution of disputes between Sharia
Banks and problem customers through the National Arbitration Board
27
Erie Hariyanto, “Penyelesaian Sengketa Ekonomi Syariah Di Indonesia,” Iqtishadia:
Jurnal Ekonomi & Perbankan Syariah, 2014, 57, https://doi.org/10.19105/iqtishadia.v1i1.365.
28
Hervina, “Kewenangan Penyelesaian Sengketa Ekonomi Syari’ah Pada Perbankan Syari’ah
Di Samarinda,” 274.
29
Parman Komarudin, “Penyelesaian Sengketa Ekonomi Syariah Melalui Jalur Non
Litigasi,” Jurnal Ekonomi Syariah Dan Hukum Ekonomi Syariah 1, no. 1 (2014): 87–105, https://ojs.
uniska-bjm.ac.id/index.php/IQT/article/view/138.
30
Muaidi, “Penyelesaian Sengketa Dalam Hukum Ekonomi Syariah,” TAFAQQUH:
Jurnal Hukum Ekonomi Syariah Dan Ahwal as Syakhsiyah 2, no. 2 (2017): 22.

Volume 17, Number 1, May 2021

214 Mulyono Jamal, Akhmad Afandi Mahfudz, Syamsuri, Resi Handayani

according to Law of Republic of Indonesia No.30 of 1999. The results

of her research revealed that in practice the National Arbitration Board
has proven in resolving cases filed and has decided cases that meet
the parties’ sense of justice. So, there is no need for appeal, cessation,
and reconsideration. 31
From several previous studies as a whole discusses non-litigation
dispute resolution in the sharia aspect using alternative dispute
resolution methods but have not yet discussed the application of
alternative methods of dispute resolution in Islamic mortgage at the
ombudsman institution Yogyakarta. Several previous studies have
discussed sharia business disputes, but have not discussed in dispute
resolution, especially Islamic mortgage disputes at the Ombudsman
Institution Yogyakarta which incidentally is not a sharia resolution
institution. This research wants to complement the previous research
by analyzing alternative dispute resolution in the settlement of
sharia mortgage disputes in non-litigation institutions, namely the
Ombudsman Institution Yogyakarta.

Definition of Business Dispute

Good economic growth can improve the performance of
cooperation between various parties which also leads to an increase
in the potential for disputes that occur between the parties. This will
continue to develop when the party who feels aggrieved has expressed
dissatisfaction.32 The main factor in the occurrence of disputes is the
failure to fulfill the contract agreed upon or the non-compliance with
the agreed principles.33 If the existing disputes are not resolved quickly
and effectively, it will become a separate obstacle for operational
sustainability.34
A dispute is a conflict that occurs between two or more
parties relating to rights of value, money or goods.35 The dispute is
31
Sulistyowati, “Penyelesaian Sengketa Antara Bank Syariah Dengan Nasabah
Bermasalah Melalui Badan Arbitrase Shari’ah Nasional (BASYARNAS) Menurut UU No.30
Tahun 1999,” ISLAMICA 9, no. September 2014 (2014): 193–222.
32
Idik Saeful Bahri, “Efisiensi Jalur Mediasi Dalam Penyelesaian Sengketa Bisnis Di Indonesia,”
no. February (2020): 7.
33
Hasanuddin Muhammad, “Implementasi Penyelesaian Sengketa Perbankan Syariah Di
Pengadilan Agama” (Universitas Islam Indonesia, 2015), 40.
34
Abdul Hamid, “Aplikasi Teori Mashlahah (Maslahat) Najm Al-Din Al-Thufi Dalam
Penyelesian Sengketa Perjanjian Bisnis Di Bank Syariah,” AL-‘ADALAH 12, no. 4 (2015): 739.
35
Amran Suadi, Penyelesaian Sengketa Ekonomi Syariah; Teori Dan Praktik, 2nd ed. (Depok:
Kencana, 2017), 30.

Journal TSAQAFAH
 Analysis of Alternative Dispute Resolution in non-litigation dispute resolution... 215

a continuation of the conflict, which has surfaced; there is already

action and reaction; the parties can be identified. In business, conflicts
between parties are involved in various kinds of business activities
such as trading36 banking, investment, corporate and industrial which
arises and develops into a dispute is called a business dispute. Business
activities in the financial services sector are one example of business
activities, if there is a difference of opinion between consumers and
financial service institutions until a dispute occurs, it can also be
categorized as a business dispute.37
In general, disputes cannot be avoided in all activities, especially
financial and commercial transactions for various reasons,38 especially
because of a conflict of interest between the parties,39 Such as fraud or
broken promises by the parties or one of the parties promised not to
do what was promised or agreed to do, the parties or one of the parties
have carried out what was agreed upon but not exactly as agreed but
it was too late, and the parties or one of the parties do something that
according to the agreement can not do so that these actions cause a
dispute.

Alternative Dispute Resolution

Alternative Dispute Resolution is the settlement of problems
outside the court channels, generally using different methods
from dispute resolution through courts.40 The processes are often
differentiated from one another based on the degree of control that
a neutral third party has over the process, substance, and formality
of the trial.41 Alternative Dispute Resolution is needed because court

36
Kapindha, M, and Febrina, “Efektivitas Dan Efisiensi Alternative Dispute Resolution (ADR)
Sebagai Salah Satu Penyelesaian Sengketa Bisnis Di Indonesia,” 2.
37
Bustanul Arifien Rusydi, “Perlindungan Konsumen Sektor Jasa Keuangan Melalui Lembaga
Alternatif Penyelesaian Sengketa” (Universitas Islam Indonesia, 2015), 54.
38
Umar A. Oseni, “Dispute Resolution in the Islamic Finance Industry in Nigeria,”
European Journal of Law and Economics 40, no. 3 (2015): 546, https://doi.org/10.1007/s10657-012-
9371-y.
39
Kapindha, M, and Febrina, “Efektivitas Dan Efisiensi Alternative Dispute Resolution
(ADR) Sebagai Salah Satu Penyelesaian Sengketa Bisnis Di Indonesia,” 2; Rusydi, “Perlindungan
Konsumen Sektor Jasa Keuangan Melalui Lembaga Alternatif Penyelesaian Sengketa,” 54.
40
Idris Talib, “Bentuk Putusan Penyelesaian Sengketa Berdasarkan Mediasi,” Lex et
Societatis I, no. 1 (2013): 19.
41
Carrie J. Menkel-Meadow, “Mediation, Arbitration, and Alternative Dispute Resolution
(ADR),” in International Encyclopedia of the Social & Behavioral Sciences: Second Edition, Elsevier Ltd.
(Irvine, CA, USA: UC Irvine School of Law Research Paper, 2015), 2,

Volume 17, Number 1, May 2021

216 Mulyono Jamal, Akhmad Afandi Mahfudz, Syamsuri, Resi Handayani

processes as the main means of dispute resolution are expensive and

irrational. Litigation costs are very large in terms of both direct and
indirect costs.42
In principle, Alternative Dispute Resolution aims to create an
efficient, long-term, win-win solution,43 reduce the existence of disputes
for the disputing parties. Whatever be the case, Alternative Dispute
Resolution is an alternative to formal court litigation. When disputes
are channeled through the formal court system, the parties tend to be
farther from each other after the judgment because the judgment of
the court leads to a win-lose situation where one of the parties gloat
while the other party wallow in anguish.44 Non-litigation dispute
resolution is an attempt to bargain for a mutually beneficial ending.
Dispute resolution through Alternative Dispute Resolution has gained
legitimacy in the laws and regulations through Law Number 30 of
1999 concerning Arbitration and Alternative Dispute Resolution.45
Settlement of disputes through peace mechanisms or Alternative
Dispute Resolution and Arbitration.
The form of settlement out of court through this Alternative
Dispute Resolution institution can be done by way of consultation,
negotiation, mediation, conciliation, or expert judgment.46 Although
certain methods of alternative dispute resolution differ from one
another, they share the feature that a third party is involved in offering
opinions or communicating information about the dispute to the
disputing parties,47 and although conflicts and disputes are universal,
people’s perceptions of the phenomena and preferences of the best
way to handle them differ from one socio-cultural context to another,
and commercial disputes are no exception.48

42
David H. Sohn and B. Sonny Bal, “Medical Malpractice Reform: The Role of Alternative
Dispute Resolution,” Clinical Orthopaedics and Related Research 470, no. 5 (2012): 1371,
43
R. Lestari, “Perbandingan Hukum Penyelesaian Sengketa Secara Mediasi Di Pengadilan
Dan Di Luar Pengadilan Di Indonesia,” Jurnal Ilmu Hukum Riau 3, no. 2 (2013): 218.
44
Umar A Oseni and Abu Umar Faruq Ahmad, “Dispute Resolution in Islamic Finance:
A Case Analysis of Malaysia,” 8th International Conference on Islamic Economics and Finance
DISPUTE, 2011, 2.
45
Eko Priadi, “Kedudukan Hukum Advokat Pada Penyelesaian Sengketa Ekonomi
Syariah Secara Nonlitigasi Dalam Sistem Peraturan Perundang-Undangan Di Indonesia,” Jurnal
Hukum, 2015, 2.
46
Sidiartama, Setyowati, and Muhyidin, “Choice of Forum Penyelesaian Sengketa Dalam
Klausula Akad Perbankan Syariah”; Suadi, Penyelesaian Sengketa Ekonomi Syariah; Teori Dan Praktik.
47
Steven Shavell, “Alternative Dispute Resolution: An Economic Analysis,” The Journal
of Legal Studies 24, no. 1 (1995): 1.
48
Haytham Besaiso, Peter Fenn, and Margaret Emsley, “Alternative Dispute Resolution

Journal TSAQAFAH
 Analysis of Alternative Dispute Resolution in non-litigation dispute resolution... 217

The disputing parties choose alternative dispute resolution

for several reasons, including; volunteerism in the process, fast,
confidential procedures, time-saving, cost-effective, non-judicial
decisions, flexibility in designing the terms of dispute resolution,
win-win solutions, maintaining good relations between the disputing
parties. This process has proven effective in avoiding the burdens of
litigation.49 However, this method is only used to resolve disputes in
the civil sector50:
1. Consultation
There are no legal rules that give the meaning or meaning of
consultation, also in Law Number 30 of 1999 concerning arbi-
tration and alternative dispute resolution, it does not provide
detailed definitions and procedures for the implementation of
consultations. In the Black Law Dictionary the meaning of the
word Consultation is “…a conference between the counsels engaged
in a case, to discuss its questions or arrange the method of conducting
it…”51. Settlement of disputes through conciliation is personal
between the party called the client and the conciliation institu-
tion called the consultant.52 The consultant’s role in resolving
existing disputes or disputes is not at all dominant, consultants
only provide legal opinions53 if this method provides a peace
agreement, then the consultant can assist the parties to formulate
and make a peace agreement in writing signed by both parties.
2. Negotiation
In carrying out daily life, everyone actually has made negotia-
tions, such as between the seller and the buyer. Negotiation is
the basic of means of getting what the other person wants.54 A
in Palestine: The Myth and Dilemma of Construction Mediation,” International Journal of Law in
the Built Environment 8, no. 3 (2016): 273.
49
Umar A., Oseni Sodiq O., and Omoola, “Prospects of an Online Dispute Resolution
Framework for Islamic Banks in Malaysia : An Empirical Legal Analysis,” Journal of Financial
Regulation and Compliance 25, no. 1 (2017): 3.
50
I Gede Tor Kaesar Nero, Siti Hamidah Amir, and I Gusti Ayu Puspawati, “Wanprestasi
Dan Penyelesaiannya Dalam Perjanjian Kredit Pemilikan Rumah (KPR) Pada Bank BTN Cabang
Singaraja Bali,” Kumpulan Jurnal Mahasiswa Fakultas Hukum 1, no. 1 (2014): 11.
51
https://thelawdictionary.org/consultation/
52
Amran Suadi, Penyelesaian Sengketa Ekonomi Syariah (Teori Dan Praktik) (Depok: PT
Balebat Dedikasi Prima, 2017), 20.
53
Muchamad Taufiq, Aspek Hukum Dalam Ekonomi, 1st ed. (Malang: Tim MNC Publishing,
2017), 37.
54
Dyah Probondari, “Analisis Penyelesaian Sengketa Perbankan Melalui Lembaga
Mediasi Di Indonesia (Studi Kasus Bank X Dengan PT Y Dan Bank ABC Dengan Nasabah Z)”
(Universitas Indonesia, 2012), 15.

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218 Mulyono Jamal, Akhmad Afandi Mahfudz, Syamsuri, Resi Handayani

survey on dispute resolution methods reported that more than

70% of disputes are resolved through negotiation.55 Negotiation
is a way to seek dispute resolution through direct discussion
between the disputing parties whose results are accepted by the
parties.
3. Mediation
Mediation outside the court is a process of peaceful dispute reso-
lution that is commonly used by the community on a daily basis,
mediated by third parties, namely traditional leaders, religious
leaders, or other community leaders.56 The final result of this
mediation method is not determined by the mediator because
the mediator does not have the authority to decide or enforce a
settlement, because the form of mediation is entirely the desire
of the disputing parties. Whereas in Islam it also has a mediation
method called Al-Sulh. The requirements in As-Sulh are that on
the subject side or the disputing parties must understand the
law and have the authority, on the object side it must be tangi-
ble, valuable and useful, on the problem side only in the field
of muamalah. Sulh is usually conducted in an informal manner,
but can be facilitated by an institution. Sulh is also a traditional
method of reconciliation in Islam and is mentioned in several
verses of the Quran.57
4. The main task of the arbitrator is to examine and deliver an arbi-
tration award within a predetermined period of time (maximum
180 days from the time of appointment or appointment), to be
proven independent in carrying out its duties in order to achieve
a fair and speedy decision for parties with different opinions,
disagreements or those who dispute.58
Whereas in Islam the arbitration method is known as Tahkim.
Tahkim is the appointment of one or more persons as a referee
or peacemaker by the disputing parties, in order to settle the

55
Thomas Haugen and Amarjit Singh, “Dispute Resolution Strategy Selection,” Journal
of Legal Affairs and Dispute Resolution in Engineering and Construction, 2015, 3.
56
Bachro and Fariana, Model Alternatif Mediasi Syariah Dalam Penyelesaian Sengketa
Perbankan Syariah, 47.
57
Jonathan Lawrence, Peter Morton, and Hussain Khan, “Dispute Resolution in Islamic
Finance,” in Global Islamic Finance, vol. 53, 2012, 7.
58
Sulistyowati, “Penyelesaian Sengketa Antara Bank Syariah Dengan Nasabah
Bermasalah Melalui Badan Arbitrase Shari’ah Nasional (BASYARNAS) Menurut UU No.30
Tahun 1999,” 205.

Journal TSAQAFAH
 Analysis of Alternative Dispute Resolution in non-litigation dispute resolution... 219

case they are disputing about peacefully.59 It is also stated that

Tahkim is an agreement between the disputing parties to appoint
someone who has the ability to resolve their disputes, which is
commonly called hakam or muhakkam. There are several ad-
vantages to using arbitration, namely finality, confidentiality,
speed, cost, and flexibility.60 This makes the arbitration process
more attractive as a reasonable dispute resolution mechanism
for Islamic financial transactions as it allows parties to selectively
incorporate Sharia principles into governing clauses.

Discussion
The Ombudsman is an independent agency or officer in charge
of accommodating complaints from the public regarding improper
behavior of civil servants, such as abuse of authority, delays in
completing tasks in the field of work, also regarding issues in consumer
protection, civil rights, taxation, the environment, prisons and others.
The Ombudsman is neither a judicial institution nor an administrative
out court process (administratief quasi rechtspraak), because the results of
the Ombudsman’s examination are in the form of recommendations.61
The Ombudsman Institution Yogyakarta is based on Pancasila
(The Indonesian State Ideology), and has principles on the following;
Independent, Impartial, Justice, Non-discrimination, Equation,
Transparency, Accountability. The mission of the Ombudsman
Institution Yogyakarta states that the ideals of this institution are,
among others:
a. Serving and resolving public complaints about administrative
irregularities in government administration and law enforcement
without discrimination.
b. Cultivate, develop and institutionalize a culture of community
service that is honest and fair, open, responsible and anti-KKN
(Corruption, Collusion and Nepotism) in government adminis-
tration and law enforcement.
c. Helping to create and develop conducive situations and con-

59
Reny Hidayati, “Eksistensi Klausul Arbitrase Dalam Penentuan Penyelesaian Sengketa
Syariah,” Mazahib: Jurnal Pemikiran Hukum Islam 14, no. 2 (2015): 170–71.
60
Aida Maita, “Arbitration of Islamic Financial Disputes,” Annual Survey of International
& Comparative Law 20, no. 1 (2014): 52–53.
Radjab, “Kekuatan Mengikat Putusan Ajudikasi Ombudsman Dalam Proses
61

Penyelesaian Sengketa Pelayanan Publik,” 451.

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220 Mulyono Jamal, Akhmad Afandi Mahfudz, Syamsuri, Resi Handayani

ditions for the implementation of good and clean government,

and free from KKN (Corruption, Collusion and Nepotism).
d. Prioritizing services that are more sensitive to the demands and
needs of the community, by providing optimal services and
fostering good coordination and cooperation with all parties
(government institutions, universities, non-governmental or-
ganizations, experts, practitioners, professional organizations,
etc.)
Every dispute that exists always has a cause that gives rise to a
dispute, this is not easy to avoid, especially in financial and commercial
transactions.62 One of the causes of dispute is default63 or the non-
fulfillment of the contract agreement made by both parties.64 Related to
this case, the default occurred because the developer did not carry out
the construction of the house according to the contract that was agreed
upon and there was falsification of information provided to consumers
or the reported party,65 So that consumer complaints about this matter
to the Ombudsman Yogyakarta to be investigated and resolved.
From 150 reporting parties, there are only 6 reporting parties
whose contracts have been received by the Islamic bank in collaboration
with the developer as the reported party, all of whom use the Murābaḥah
contract, while the others are waiting for certainty of receipt of the
financing contract from the Islamic bank. The application of Murābaḥah
in Islamic financial institutions is when a customer in Islamic banking
applies for the purchase of an item,66 a bank that provides funds in order
to provide goods related to Murābaḥah transactions with customers
as the buyer of the goods.67 Islamic mortgage with a Murābaḥah (sale
and purchase) contract, the implementation system is carried out in
various ways, namely in the form of cash after receiving the goods, it
can also be deferred with installments (installments) after the process

62
Oseni, “Dispute Resolution in the Islamic Finance Industry in Nigeria,” 547.
63
Maulidizen, “Penyelesaian Wanprestasi Dalam Kredit Kepemilikan Rumah (KPR)
Dengan Akad Murābaḥah Studi Kasus Di Bank Tabungan Negara Syariah Surabaya,” 58.
64
Sari and Hasnita, Penyelesaian Sengketa Perbankan Syariah Melalui Lembaga Arbitrase,
27.
65
Interview with Ms. Yusticia Eka Noor Ida, S.T, is the commissioner and vice
chairman of Research, Development, and Institutional Relations, Ombudsman Institution
Yogyakarta.
66
Maulidizen, “Penyelesaian Wanprestasi Dalam Kredit Kepemilikan Rumah (KPR)
Dengan Akad Murābaḥah Studi Kasus Di Bank Tabungan Negara Syariah Surabaya,” 61.
67
Bank Indonesia, Liabilitas Dan Modal Liabilitas Dan Modal, 7.

Journal TSAQAFAH
 Analysis of Alternative Dispute Resolution in non-litigation dispute resolution... 221

of receiving the goods.68

The Financial Services Authority of Indonesia says the Murābaḥah
contract is structured in such a way that the provider buys the house
on behalf of the customer based on the agreement that the customer
will buy the house back from the provider at a price that includes a
pre-arranged profit premium above the original cost of the house.
The customer then pays this mark-up price in installments during the
financing term.69
However, the implementation of the Islamic mortgage financing
contract is not in accordance with the existing mechanisms and
procedures. Before entering into a financing contract with the bank,
the reporting party has entered into an agreement with the developer
and provided a number of funds for down payment.70 Then, the party
requesting financing is from the developer, not from the reporting
party as consumers or customers of Islamic banks. This is one of the
reasons housing construction does not run smoothly, because Islamic
banks do not immediately trust the attitude of the developer and there
has been an agreement before the contract with the bank.
This Islamic mortgage is one of the toughest disputes to be
resolved. This dispute involves many parties, is related to a lot of
funds and a long time. So it is said to be a quite complicated dispute
because the dispute resolution process requires a lot of time, effort
and thought. After seeing the efforts and also the process of settling
disputes over Islamic Mortgage disputes, almost all of them apply the
Alternative Dispute Resolution method.
Alternative Dispute Resolution Methods generally use a
different method from the method of dispute resolution in court,71 as
stated in the law of republic Indonesia number 30 of 1999 concerning
Arbitration and Alternative Dispute Resolution72 namely through

68
Andriani, “Implementasi Akad Murabahah Dan Musyarakah Mutanaqishah
Dalam Pembiayaan Pemilikan Rumah Pada Perbankan Syariah,” 98.
69
Otoritas Jasa Keuangan, Standar Produk Perbankan Syariah Murabahah, 7.
70
Interview with Mrs. Evi Nur Akhidhah, S. Sos, serving as a case manager and
assistant in the field of socialization, cooperation, and network strengthening, Ombudsman
Institution Yogyakarta.
71
Talib, “Bentuk Putusan Penyelesaian Sengketa Berdasarkan Mediasi,” 20.
72
Undang-Undang Nomor 30 Tahun 1999 Tentang Arbitrase dan Alternatif
Penyelesaian Sengketa.

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222 Mulyono Jamal, Akhmad Afandi Mahfudz, Syamsuri, Resi Handayani

consultation,73 negotiation,74 mediation,75 conciliation,76 and expert

judgment.77 It begins with a complaint report which is also a media
for consultation with the reporting parties with the implementing
agency for non-litigation dispute resolution. Consultation, namely the
existence of personal talks between the two parties,78 The consultation
method carried out at the Yogyakarta ombudsman institution, does not
consider the term consultant or facilitator because all case resolution
activities are carried out by the commissioner and assistant of the the
ombudsman institution yogyakarta,79 however, in accordance with
the role of a consultant to provide a legal opinion,80 the ombudsman
institution also plays a role the same one.
Consultation and receipt of reports at the Yogyakarta ombudsman
institution can be carried out by various media such as telephone or
via email but in complicated cases, the reporting parties are advised
to come directly to the ombudsman institution Yogyakarta office.81
Follow-up of consultations and receipt of reports on case resolution
was carried out by listening to the Reporting Party’s chronology and
continued with clarifying the Reported Party. From the chronology
and clarification of the two parties, a follow-up was developed by
coordinating with the relevant agencies, namely the Sharia Bank.
Alternative non-litigation dispute resolution that promotes
mutually beneficial results82 for the parties, it is necessary to clarify and
coordinate with the parties prior to the holding of mediation. Mediation

73
Taufiq, Aspek Hukum Dalam Ekonomi, 37–38.
74
Soemartono, “Cara Penyelesaian Sengketa Dan Alternatif Penyelesaian Sengketa,”
18.
75
Bachro and Fariana, Model Alternatif Mediasi Syariah Dalam Penyelesaian Sengketa
Perbankan Syariah, 48.
76
Kapindha, M, and Febrina, “Efektivitas Dan Efisiensi Alternative Dispute
Resolution (ADR) Sebagai Salah Satu Penyelesaian Sengketa Bisnis Di Indonesia,” 9.
77
Parman Komarudin, “Penyelesaian Sengketa Ekonomi Syariah Melalui Jalur
Non Litigasi,” Jurnal Ekonomi Syariah Dan Hukum Ekonomi Syariah 1, no. 1 (2014): 104.
78
Amran Suadi, Penyelesaian Sengketa Ekonomi Syariah (Teori Dan Praktik) (Depok:
PT Balebat Dedikasi Prima, 2017), 21–22
79
Interview with Ms. Yusticia Eka Noor Ida, S.T, is the commissioner and vice
chairman of Research, Development, and Institutional Relations, Ombudsman Institution
Yogyakarta.
80
Taufiq, Aspek Hukum Dalam Ekonomi, 38.
81
Interview with Ms. Yusticia Eka Noor Ida, S.T, is the commissioner and vice
chairman of Research, Development, and Institutional Relations, Ombudsman Institution
Yogyakarta.
82
Lestari, “Perbandingan Hukum Penyelesaian Sengketa Secara Mediasi Di
Pengadilan Dan Di Luar Pengadilan Di Indonesia,” 219.

Journal TSAQAFAH
 Analysis of Alternative Dispute Resolution in non-litigation dispute resolution... 223

is a process that seeks to facilitate the parties to communicate with

each other,83 So in every mediation carried out in this case, it really
invited both parties, the reported party and the reporting parties to
carry out the mediation, although not always in every first, second or
third mediation, ethics was always carried out by the reported party,
because at the beginning of the efforts dispute in this case, the reported
party is difficult to contact or meet.84 The form of mediation is fully
in accordance with the wishes of the disputing parties.85 However,
for mediation in the ombudsman institution Yogyakarta, there is a
mandatory code of conduct with the aim of keeping the atmosphere
conducive and the deliberation process in line with expectations, this
too must be approved by the parties.86
On the other hand, alternative non-litigation dispute resolution
has an expert assessment method, namely the form of opinions from
several experts that are understood and accepted by the parties.87 The
expert assessment at The Ombudsman Institution Yogyakarta is quite
unique because it was carried out at the time of the case title which
was part of the follow-up report. The case title, in this case, invited
various parties who were more or less involved in its implementation,
not only the reported party and the reporting parties but also almost
all stakeholders and subsidized housing shareholders were invited to
the case title at that time.88
Each problem has a different strategy. So the efforts are different.
Especially for this case, almost all the patterns in the Alternative
Dispute Resolution were applied. For a consultation, it is used at
the beginning of the complaint. In accordance with the standard of
business ethics, if it falls under the authority of the ombudsman, it will
become a complaint. Then clarification was carried out besides that
there was also conciliation. Then the expert opinion, in this case by

83
Markom and Yaakub, “Litigation as Dispute Resolution Mechanism in Islamic
Finance: Malaysian Experience,” 568.
84
Interview with Mrs. Evi Nur Akhidhah, S. Sos, serving as a case manager and
assistant in the field of socialization, cooperation, and network strengthening, Ombudsman
Institution Yogyakarta.
85
Bachro and Fariana, Model Alternatif Mediasi Syariah Dalam Penyelesaian Sengketa
Perbankan Syariah, 58.
86
Pedoman Tata Kelola Usaha Beretika Lembaga Ombudsman Yogyakarta, 54.
87
Talib, “Bentuk Putusan Penyelesaian Sengketa Berdasarkan Mediasi,” 24.
88
Interview with Mrs. Evi Nur Akhidhah, S. Sos, serving as a case manager and
assistant in the field of socialization, cooperation, and network strengthening, Ombudsman
Institution Yogyakarta.

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224 Mulyono Jamal, Akhmad Afandi Mahfudz, Syamsuri, Resi Handayani

holding a case title, then mediation up to 3 times. However, arbitration

is not included in the pattern of handling this case.89
In addition to the arbitration method, such as the law of republic
Indonesia Number 3 of 1999 concerning Arbitration and Alternative
Dispute Resolution:90 “An arbitration agreement is an agreement in the
form of an arbitration clause that arises in a written agreement made
by the parties before the dispute or an arbitration agreement made
by the parties after the dispute arises.” The Ombudsman institution
Yogyakarta, especially in this case, did not use the arbitration method
as a non-litigation deliberate settlement,91 On the other hand, because
the disputing parties did not succeed in the arbitration clause in a
written agreement.

Conclusion
In terms of dispute resolution methods, the performance and
efforts made are considered very good because they have carried out
warm coordination with stakeholders and parties such as the consumer
(the reporting party), the Islamic bank and the developer (the reported
party), on the other hand they have also facilitated the complainant
to disclose the request for his rights to the reported party. Although
the Yogyakarta ombudsman has its own rules, namely following the
Yogyakarta local government regulations, indirectly this case is also
handled using alternative dispute resolution methods, consultation,
mediation and expert opinion.
The Yogyakarta ombudsman institution is quite good at following
up disputes on sharia home mortgage products by conducting
consultations, clarifications, coordination, case titles, policy briefs to
mediation which took place 3 times. However, in reality, the efforts
made by non-litigation dispute resolution institutions are not always
successful, this also proves that not all cases resolved by alternative
dispute resolution methods will end in amicable or win-win solutions.

89
Interview with Mrs. Evi Nur Akhidhah, S. Sos, serving as a case manager and
assistant in the field of socialization, cooperation, and network strengthening, Ombudsman
Institution Yogyakarta
90
Undang-Undang Nomor 30 Tahun 1999 Tentang Arbitrase dan Alternatif
Penyelesaian Sengketa.
91
Interview with Mrs. Evi Nur Akhidhah, S. Sos, serving as a case manager and
assistant in the field of socialization, cooperation, and network strengthening, Ombudsman
Institution Yogyakarta.

Journal TSAQAFAH
 Analysis of Alternative Dispute Resolution in non-litigation dispute resolution... 225

For this case of Islamic mortgage, the Yogyakarta ombudsman has tried
to reach a plenary session and because no bright spot has been found,
the follow-up to the case will be brought to the litigation agency.[]

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