Tinjauan Hukum Persaingan Usaha Terhadap Penyalahgunaan Posisi Dominan Google Play Billing

Abstract

The expansion of Indonesia’s digital economy has placed Google LLC in a dominant position through its control over the Android ecosystem and Google Play Store. Since June 2022, the mandatory use of Google Play Billing (GPB) with a 15%–30% commission rate eliminated domestic payment gateways and harmed local developers. This practice was adjudicated by the Business Competition Supervisory Commission (KPPU) in Decision No. 3/KPPU-I/2024. This normative legal study utilizes statute, case, and conceptual approaches to examine KPPU’s jurisdiction over foreign entities and the legal consequences of its sanction. Findings indicate that KPPU’s extraterritorial jurisdiction over Google LLC is valid under the effects doctrine, as the policy created tangible anti-competitive impacts in Indonesia despite Google’s lack of physical presence. Substantively, Google LLC was proven to have violated Article 17 (monopolistic practices) and Article 25(1)(b) (abuse of dominant position) of Law No. 5/1999. Conversely, alleged violations of Article 19(a) and (b) were not established. KPPU imposed an administrative fine of IDR 202.5 billion and required the implementation of User Choice Billing (UCB). However, UCB remains substantively ineffective due to accumulative fee structures and dark pattern designs in the Alternative Billing API, rendering compliance merely formal (paper compliance).

Keywords: Antitrust Law, Abuse of Dominant Position, Google Play Billing, KPPU.

Perkembangan ekonomi digital di Indonesia menempatkan Google LLC dalam posisi dominan melalui ekosistem Android dan Google Play Store. Kebijakan wajib penggunaan tunggal Google Play Billing (GPB) sejak Juni 2022 dengan komisi 15%–30% menyingkirkan payment gateway domestik dan merugikan pengembang lokal. Praktik ini diadili Komisi Pengawas Persaingan Usaha (KPPU) dalam Putusan Nomor 3/KPPU-I/2024. Penelitian yuridis normatif dengan pendekatan perundang-undangan, kasus, dan konseptual ini bertujuan menganalisis keabsahan yurisdiksi persaingan usaha terhadap pelaku usaha asing serta akibat hukum sanksinya. Hasil penelitian menunjukkan yurisdiksi KPPU atas Google LLC sah berdasarkan asas ekstrateritorial melalui effects doctrine, sebab kebijakan tersebut berdampak antipersaingan nyata di Indonesia meski tanpa kehadiran fisik. Secara substansi, Google LLC terbukti melanggar Pasal 17 (praktik monopoli) dan Pasal 25 ayat (1) huruf b (penyalahgunaan posisi dominan) Undang-Undang Nomor 5 Tahun 1999. Sebaliknya, dugaan pelanggaran Pasal 19 huruf a dan b tidak terbukti karena Google bukan pesaing pada pasar bersangkutan. Atas pelanggaran tersebut, Google LLC dijatuhi denda administratif sebesar Rp202,5 miliar dan diwajibkan menerapkan skema User Choice Billing (UCB). Namun, penelitian menemukan bahwa skema UCB belum efektif akibat struktur biaya akumulatif dan desain dark patterns pada Alternative Billing API, sehingga kepatuhan Google LLC masih sebatas formalitas (paper compliance).

Kata Kunci: Persaingan Usaha, Penyalahgunaan Posisi Dominan, Google Play Billing, KPPU.