Doctrina, Revista 105

La informática como medio instrumental del acto administrativo digital de registración y la función calificadora el Encargado de Registro.

El caso particular del Régimen Jurídico del Automotor

Aclaración preliminar

En agosto de 2015 presenté, con el título de “Acto Administrativo y Modos de Adquirir el Dominio, el caso particular del Régimen Jurídico del Automotor”como trabajo final integrador en la Cuarta Edición del Posgrado Especialización en Derecho Administrativo en la Facultad de Derecho y Ciencias Sociales de la Universidad Nacional del Comahue, el documento que ahora, revisado y actualizado, sirve de base a la ponencia que traigo a este 13º Congreso Nacional de Registros de la Propiedad del Automotor.

Eran aquellos tiempos de cambios con la puesta en vigencia del Código Civil y Comercial y lamentábamos que se hubiera perdido la oportunidad de implementar la registración constitutiva como modo de adquirir el dominio en todos los bienes registrables, incluidos los inmuebles tal como lo previera el Anteproyecto original y oponíamos al argumento de “la falta de preparación de los Registros” que se esgrimiera para fundar el abandono de la original postura, la muy positiva experiencia de medio siglo de vigencia del Régimen Jurídico del Automotor.

Sobre el final definíamos y analizábamos los elementos del acto administrativo de registración que, como modo de adquirir el dominio, es el más perfecto, seguro y moderno de todos los universalmente adoptados, acto administrativo de registración que, con la informática como herramienta formal y publicitaria, resulta de incomparable eficacia frente a los demás.

Lejos estábamos de imaginar que solo tres años después deberíamos insistir con conceptos hondamente arraigados en nuestro ordenamiento jurídico porque se confundan forma y sustancia, el acto estatal que hace nacer el derecho real de dominio en cabeza del ciudadano que lo pide con el elemento material o inmaterial que lo exterioriza. Porque cualquiera sea el soporte que lo contenga siempre será un acto administrativo, dictado por el Estado a través del registrador, funcionario público competente, que previo a todo calificará el acto.

Hay mucho que perder y nada por ganar si todo se resumiera a “impactar” un contrato en una base de datos. Un cambio de tal naturaleza requeriría modificar profundamente legislación argentina y la ausencia del registrador y el control previo importaría el abandono del Estado de su deber de realizar acciones positivas para proteger el derecho de propiedad, la seguridad, los intereses económicos de los consumidores y usuarios y el de darles información adecuada y veraz con el fin de evitar conflictos, promoviendo la paz social. Todos estos, derechos que la Constitución Nacional manda al Estado proteger.

I. Introducción

Así como con los inmuebles, en que el Registro fue creado a los fines de dar publicidad a las hipotecas, los registros de determinados bienes muebles nacieron con posterioridad al Registro de Créditos Prendarios, creados para publicitar esas garantías. En ambos casos el derecho real de dominio recibió la protección de la publicidad registral, aunque con diferentes efectos, más tarde que el derecho preferente de los acreedores hipotecarios o prendarios, pero como una suerte de sublimación del principio de la especialidad, redundó también en beneficio de estos últimos y en definitiva del crédito y su costo.

Sobre la experiencia y la organización administrativa generada por el Régimen Jurídico de la Prenda con Registro, cuya legislación data del año 1946, la que a su vez procuró perfeccionar el sistema de su antecesora, la Prenda Agraria, se instrumentó en la República Argentina el Régimen Jurídico del Automotor a través del Decreto-Ley Nº 6.582/58, ratificado por la Ley Nº 14.467 (t.o. Decreto Nº 4.560/73).

Desde entonces el modo de adquirir el dominio sobre los automotores dejó de estar ligado a la presunción que su posesión importaba de acuerdo con lo prescripto en el art. 2.412 del Código de Vélez para hacer necesaria la inscripción registral de su transferencia para que el comprador se constituyera en “dominus”.

Las particularidades del objeto de la registración y la adopción del sistema constitutivo para la adquisición del dominio, hicieron necesario establecer un sistema administrativo que, a la vez que centralizado en la fijación de las políticas, fuera desconcentrado en su administración y garantizara la presencia de oficinas registrales en toda la extensa geografía del país, poniendo a disposición del Estado una estructura de alcance nacional pasible de ser afectada a diversos operativos específicos, y cercana al domicilio del usuario.

Se estableció así, a través de estas oficinas llamadas Registros Seccionales, una suerte de gestión privada de la función pública. Su funcionamiento, particularidades, grado de acceso del público, estándares de eficiencia y eficacia serán el objeto de la investigación que nos proponemos. El fin que perseguimos es analizar si la “falta de preparación de los Registros” alegada por “escribanos y registradores” fue suficiente fundamento para que la Comisión Redactora del Código Civil y Comercial de la Nación resignara el propósito inicial del anteproyecto, de extender el sistema constitutivo a la totalidad de los bienes registrables, en especial a los inmuebles; argumento al que opondremos la experiencia de sesenta años de vigencia del Régimen Jurídico del Automotor

El tema propuesto trasciende el derecho privado por cuanto lo que se pretendía era sustituir, como modo de adquirir el dominio, la tradición o entrega de la posesión de la cosa por el acto administrativo registral, a través del cual el Estado, por medio del funcionario público competente, inviste al adquirente en “dominus” luego de calificar aptos los antecedentes de hecho y de derecho que los interesados, al efectuar la rogatoria, le exhibieron.

II. El papel del Estado en la registración de los derechos reales

El derecho de todos los habitantes de la Nación de usar y disponer de la propiedad consagrado en el artículo 14 de la Constitución Nacional, lo dispuesto en los tratados internacionales de derechos humanos con jerarquía constitucional: “Toda persona tiene derecho a la propiedad privada correspondiente a las necesidades esenciales de una vida decorosa, que contribuya a mantener la dignidad de la persona y del hogar” (artículo XXIII de la Declaración Americana de los Derechos y Deberes del Hombre); “Toda persona tiene derecho a la propiedad, individual y colectivamente” (artículo 17.1 de la Declaración Universal de Derechos Humanos); “Toda persona tiene derecho al uso y goce de sus bienes. La ley puede subordinar el uso y goce al interés social” (artículo 21.1 de la Convención Americana sobre Derechos Humanos”) más allá de toda discusión ideológica o de ubicación jerárquica del derecho de propiedad en el elenco de derechos humanos[1] y del criterio de la Corte Suprema de reconocer a la propiedad una extensión mayor que la de los derechos reales al adoptar la doctrina de los derechos adquiridos[2], el derecho real de dominio integra el derecho de propiedad, siendo su manifestación culturalmente más arraigada, y su protección impone al Estado no solo cumplir con la obligación de no dañar sino, también, su participación activa para que ese derecho sea respetado por toda la comunidad porque integra el bien común promover la seguridad jurídica y la paz social.

Derecho único o derecho doble, derecho público y derecho privado, seguridad jurídica y justicia son estándares, clasificaciones y categorías axiológicas que se acompañan, mezclan o atraviesan permanentemente en la materia bajo análisis[3].

El derecho real de dominio y su modo de adquirirlo, aún en el caso de los automotores, para los que el Estado ha resuelto establecer el régimen constitutivo y, consecuentemente, organizado la estructura administrativa que lo sustenta, ha sido abordado largamente por especialistas del derecho privado. Sin embargo, esa estructura administrativa, su organización, el régimen jurídico al que están sujetos los registradores, los actos administrativos que de éste emanan, los recursos contra esas decisiones son materia de derecho público.

Es que el Estado ha tomado para sí la registración de la propiedad con el carácter de servicio público propio[4], y en el caso de los automotores, la constitución del derecho real a través de esa registración, con el fin de, no solo atender el impacto social del uso de los automotores sino, fundamentalmente, de otorgar seguridad jurídica a las transacciones y a la relación de poder con la cosa.

La seguridad jurídica, que pareciera estar un peldaño por debajo del valor justicia aumenta su importancia en épocas de crisis, cuando el acceso a la justicia es gravoso tanto para el justiciable como para el propio Estado, y todo sistema que la promueva se constituye en preventivo de eventuales conflictos tornando innecesario recurrir a los jueces para resolverlos ex post facto.

Es significativo observar la escasez de antecedentes jurisprudenciales y que, toda vez que se discuten en los estrados judiciales cuestiones relativas a la propiedad de los automotores, lo es porque no se han llevado adelante los procedimientos o utilizado los mecanismos que la ley prevé para evitar el fraude o el error.

Nos parece imprescindible que el Estado garantice positivamente con acciones concretas esta manifestación, aunque parcial elocuente, del derecho de propiedad de raigambre constitucional.

Los particulares necesitan que su derecho se asegure, si el Estado no asume la función de garantizarlo aparecerán remedios desde el derecho privado, con efectividad dudosa e incierta, en contradicción con principios de honda raigambre. El Código Civil y Comercial, de muy reciente vigencia, acepta y promueve el uso de las herramientas de la tecnología, pero aferrándose a la tradición jurídica en materia de derechos reales promueve el acto administrativo de registración como el modo preferente de adquisición del dominio.

Por citar un ejemplo de ofertas privadas ajenas a nuestra cultura jurídica, los países del Área de Libre Comercio de las Américas (ALCA) vienen proponiendo, desde la Organización de Estados Americanos para su aplicación en toda la región, un proyecto de Ley Modelo de Garantías Mobiliarias, que fuera aprobado como proyecto en la Sexta Conferencia Especializada Interamericana sobre Derecho Internacional Privado (CIDIP-VI), celebrada en el año 2002, con el argumento de que se “reducirá considerablemente el costo de la obtención de crédito y facilitará el comercio y las inversiones internacionales en la región, ayudando asimismo a las empresas de pequeña y mediana escala de todas partes del Hemisferio…”, escondiendo el propósito de que cualquier activo, sin que sea necesario describirlo o determinarlo con precisión, de cualquier deudor, cualquiera sea su naturaleza y/o ubicación, responda privilegiadamente ante aquellos acreedores que recurran a este instrumento.

Para esto abandona principios de hondo arraigo en nuestro ordenamiento jurídico como lo son los de especialidad, veracidad, legalidad y validez, con ausencia de la función calificadora del Estado a través del registrador.

El propósito de la Ley Modelo de Garantías Mobiliarias es que los deudores respondan ante ciertos acreedores privilegiados con alguno o todos sus bienes5.

Al más amplio sentido dado al concepto de bien mueble, que sería todo aquello que cada país no reserve expresamente6 se suma la pretensión de ampliarlo, incluso a los inmuebles, cubriendo así el universo de bienes valiosos, de prosperar la posición norteamericana7.

Los mismos impulsores admiten la inseguridad del sistema cuando proponen el seguro de títulos como solución residual complementaria.

El Estado soberano no debe ceder ese espacio. En materia de propiedad, su regulación, el establecimiento de los principios rectores, su registración y los efectos que a ésta se asigne, se torna cada vez más necesaria en el mundo globalizado y el derecho público penetra los institutos del derecho privado para garantizar la paz social evitando que aquel resigne los atributos de su dominio inmanente8.

III. El nuevo Código Civil y Comercial y la registración constitutiva del derecho real de dominio

La Comisión Reformadora del Código Civil y Comercial pretendió, en su Anteproyecto, establecer la inscripción constitutiva del derecho real de dominio para todas las cosas registrables9, y así lo expresó en los “fundamentos”.

Los argumentos que han dado algunos actores del sistema10 para que no se avanzara en ese sentido nos parece que solo habrán podido postergar el cambio en esta instancia, pero, más temprano que tarde, la tradición será reemplazada, necesariamente, por el acto administrativo de registración que, además de publicitar al mundo quién es el dueño de la cosa, lo haga porque el mismo acto lo ha investido de ese carácter. Lo contario es asirse dogmáticamente a un instituto que solo fue la herramienta rudimentaria con que contaba la sociedad romana hace más de

dos mil años o, lo que es lo mismo, importa afirmar que desde entonces hasta nuestros días los medios de publicitar actos y derechos y las formas de organización social no han evolucionado.

No obstante que la Comisión Reformadora manifiesta en los fundamentos de la reforma que esta resignación “…muestra la disposición de la Comisión para redactar un Código que satisfaga los intereses de la comunidad sin hacer prevalecer ideas propias sobre las necesidades de la población”, se advierte que no han sido éstas (las “necesidades de la población”) las que han prevalecido sino el reparo de “escribanos y registradores” por su alegada “falta de preparación de los registros para tal modificación”.

Ninguno de los fundamentos dados por la Comisión, para justificar esta postergación, resultan convincentes; creemos que es así porque tampoco la Comisión pudo convencerse a sí misma y prefirió evitar una confrontación que pudiera dificultar, una vez más, la tantas veces postergada reforma.

Tampoco es razonable oponerse a que al acto administrativo de registración se le confieran efectos constitutivos y no meramente declarativos11. Y en cuanto a “las necesidades de la población” el mayor grado de certeza o de seguridad jurídica que ofrece la registración frente a la tradición resultan, por el contrario, un medio de mayor satisfacción12.

En cuanto a la “falta de preparación de los registros”, el argumento cae por sí solo; si no estuvieran preparados para inscribir las transferencias de dominio con efecto constitutivo, tampoco lo estarían para hacerlo con efecto declarativo, pudiendo por ese camino concluirse erróneamente que los Registros Inmobiliarios son poco seguros a los fines de publicitar los derechos registrados para su oponibilidad a terceros.

No se advierte cuál puede ser la diferente preparación con la que deban contar los actuales Registros de la Propiedad Inmueble para que los actos administrativos de registración bajo su competencia tengan uno u otro efecto, ni cuáles pueden ser, frente al sistema postergado, las ventajas de la tradición cuando la mayoría de las veces suele reducirse a una frase retórica incluida en las escrituras traslativas de dominio en la que las partes manifiestan que la entrega de la posesión ha ocurrido antes de ese acto13.

IV. La falta de preparación de los Registros

Ya señalamos que los Registros, necesarios para que por sus actos administrativos de registración puedan oponerse los derechos a terceros, ninguna preparación especial precisa para que el mismo acto administrativo de registración tenga, además, el efecto de hacer nacer ese derecho real en cabeza del “dominus” en el momento mismo de la registración14. Solo basta que la norma cambie los efectos asignados al acto registral.

No es “la falta de preparación” de los Registros un problema15, pero sí debe advertirse que puede presentarse la discusión sobre si su organización corresponde a las provincias, como ocurre con los Registros de Propiedad Inmobiliaria, o si de vincularse la registración al modo de adquisición de los bienes registrables, al derecho real de dominio, la competencia debería pasar a la Nación, como es el caso de los automotores.

Gustavo Amestoy[5], analizando el Régimen Jurídico del Automotor, ha sostenido que la competencia de la Nación para organizar los Registros se funda en que el sistema constitutivo importa el nacimiento del derecho de propiedad sobre estos bienes. Vincula así el concepto constitutivo a derecho de fondo, y por ese camino concluye que es competencia de la Nación su organización.

Nosotros creemos que es así, no por el carácter constitutivo de la inscripción sino por la naturaleza de los bienes.

Así, aunque se adoptare idéntico régimen para los inmuebles, la competencia para organizar los registros inmobiliarios será de los gobiernos locales por la naturaleza de estos bienes en consonancia con lo establecido en el artículo 124 de la Constitución Nacional, del mismo modo con que éstas ejercen, pacíficamente, el poder de policía sobre la función notarial.

A la Nación corresponde determinar los efectos de la registración en todo tipo de bienes, porque esto hace al derecho de propiedad, a la legislación de fondo; a las provincias organizar, en lo que respecta a bienes inmuebles, los sistemas y procedimientos registrales y los organismos que los llevarán a cabo.

El mismo autor, recurriendo a los antecedentes normativos, señala que, para la particular regulación del sistema registral de los automotores, el legislador “tuvo en cuenta -a los fines de concentrar el ejercicio de la registración automotor- la especial naturaleza de la cosa, atento al carácter móvil, además de la incidencia que, para la seguridad de las personas, en tanto vehículos que provocan siniestros, tienen los automotores”[6].

Para nosotros es claro que no afecta la competencia para organizar los registros el efecto que la norma civil otorgue a la inscripción y siendo así, si el reformador del Código Civil hubiera sostenido su posición inicial, la misma estructura organizacional y los mismos procedimientos registrales provinciales hubieran resultado suficientes para absorber con eficacia los cambios.

V. La inscripción constitutiva. El caso de los automotores

El Código Civil y Comercial en el cuarto párrafo del artículo 1.892 establece: “La inscripción registral es el modo suficiente para transmitir o constituir derechos reales sobre las cosas registrables en los casos legalmente previstos…”.

Son cosas registrables en nuestro sistema jurídico los inmuebles, los buques, las aeronaves, los caballos pura sangre de carrera y los automotores. Los efectos de la registración son meramente publicitarios en los tres primeros casos y constitutivos en los dos últimos, y es a éstos, por el momento, a los que se refiere el artículo 1.892 del Código Civil y Comercial en ese párrafo cuarto transcripto[7].

Sobre los automotores continúa vigente el régimen del Decreto-Ley Nº 6.582/58, ratificado por la Ley Nº 14.467 (t.o. Decreto Nº 4.560/73) y sus modificatorias Leyes Nos. 21.053, 21.338, 22.019, 22.130,

22.977, 23.077, 23.261, 24.673, 24.721, 25.232, 25.345 25.677 y 26.348, al que “brevitatis causae” denominamos Régimen Jurídico del Automotor.

Completan el bloque de legalidad el Decreto reglamentario 335/88, las Resoluciones reglamentarias del Ministerio de Justicia y las Disposiciones de la Dirección Nacional de Registros del Automotor y Créditos Prendarios (especialmente el Digesto de Normas Técnico-Registrales, Disposición D.N. N° 36/1996, sus complementarias y modificatorias), y en relación a los derechos, obligaciones y régimen disciplinario de los encargados de registro el Decreto 644/1989, modificado por el Decreto 2.265/1994, y la Resolución del ex M.J.S. y D.H. N° 238/03 en lo relativo a su designación.

Es el Régimen Jurídico del Automotor el más claro ejemplo en la implementación del sistema constitutivo[8]. Seguidamente analizaremos sus principales características, sobre todo del acto administrativo que le da sustento.

VI.  La cosa automotor en el Régimen Jurídico del Automotor

El artículo 1° del RJA establece el carácter constitutivo de la inscripción[9]; el 6° la obligación de inscribir los automotores en el Registro de la Propiedad del Automotor21, y la delimitación o concepto legal de cosa automotor, sujeta a este régimen jurídico particular de inscripción constitutiva del derecho real de dominio, está descripta en la enumeración del artículo 5°[10].

Originariamente el artículo 5° del Régimen Jurídico del Automotor determinaba que eran automotores a los fines de la ley los “automóviles, camiones, inclusive los llamados tractores para semirremolque, camionetas, rurales, jeeps, furgones de reparto, ómnibus, micro-ómnibus y colectivos, sus respectivos remolques y acoplados, todos

ellos aun cuando no estuvieran carrozados”; posteriormente, con diversa técnica legislativa, se incorporaron al concepto “legal” de automotor a los moto-vehículos, primero, y a la Maquinaria Agrícola y Vial autopropulsada, después, y, por último, a la Maquinaria Industrial de autopropulsión.

El 21 de octubre de 1988 la Secretaría de Justicia de la Nación dicta la Resolución 586[11], e invocando la facultad reglamentaria que otorga el artículo 5° de la ley, en su último párrafo, incluye a los moto-vehículos en el listado de “cosa automotor” a los fines legales.

En 1996, ahora sí por ley del Congreso[12], se incorporan a la enumeración del artículo 5° las maquinarias agrícolas, incluidas tractores, cosechadoras, grúas, maquinarias viales y todas aquellas autopropulsadas[13].

Por último, desde julio de 1997, otra vez por Resolución Ministerial, se considera comprendida en la enumeración del artículo 5° a la Maquinaria Industrial autopropulsada, completando el conjunto de cosas a las que les es aplicable el Régimen Jurídico del Automotor[14].

En atención a los distintos vehículos rodantes y máquinas de autopropulsión que, a través del tiempo, se fueron incorporando al Régimen Jurídico del Automotor, se crearon o atribuyeron competencias materiales diferentes a los distintos Registros Seccionales distribuidos en el país con diferente competencia territorial.

Y así pasaron a denominarse Registros Seccionales de la Propiedad del Automotor, a los originarios y Registros Seccionales de la Propiedad del Automotor con Competencia Exclusiva en Motovehículos y Registros de la Propiedad del Automotor con Competencia Exclusiva en Maquinaria Agrícola, Vial e Industrial y de Créditos Prendarios a los restantes. Quedando dentro de la competencia de estos últimos, residualmente, como su nombre lo indica, la correspondiente al régimen jurídico de la Prenda con Registro sobre bienes muebles no registrables[15].

Dada la diferente competencia material asignada han surgido en los operadores del sistema algunas confusiones con ciertas zonas grises. Por ejemplo, en los casos de los cuatriciclos en los que, al estar provistos o no con dispositivo de enganche se los califica como Maquinaria o como Motovehículo, o los camiones grúas, a los que se diferencia de las grúas propiamente dichas, habilitando la competencia de diferentes Registros según los casos, o los acoplados, registrables si corresponden a la vieja denominación de automotores o no registrables si tuvieran destino agrícola, vial o industrial.

VII. Acto administrativo registral

Cualquiera de las definiciones con que la doctrina describe al acto administrativo que tomemos concluiremos, necesariamente, que el acto administrativo de registración participa de sus características.

Bástenos a tal fin analizarlo a la luz de la dada por Comadira para advertir que se trata de “una declaración de un órgano estatal, …en ejercicio de función administrativa, bajo un régimen jurídico exorbitante productora de efectos jurídicos directos e individuales” [16].

  1. Declaración: En general suele considerarse acto administrativo registral a aquella declaración por la cual se da testimonio de una inscripción en un registro o el otorgamiento de algún documento. DAVID ANDRÉS HALPERÍN29 cita a Ernst Forsthoff quien expresa que los actos “registrales no contienen ninguna innovación sobre la situación jurídica, nada modifican y poseen una fuerza probatoria muy elevada”, este último autor clasifica a los actos administrativos como “conformadores”, cuando fundan, modifican o suprimen situaciones jurídicas; actos administrativos declaratorios, que son aquellos que agrupan personas o cosas por sus características o propiedades y actos administrativos registrales, limitándolos a los que dan testimonio de lo registrado.

Como nueva manifestación de la poca utilidad de las clasificaciones, que solo pueden realizarse analizando un régimen jurídico particular en un lugar y tiempo determinados, en el sistema registral del automotor, los actos administrativos de registro que de éste emanan tienen todas las características que a cada uno de los actos de la clasificación confiere el autor citado.

En efecto, los actos administrativos de registración clasifican bienes y personas por sus propiedades o características, dan testimonio o certifican registraciones, pero también, y es su nota más importante, en lo que refiere a la toma de razón de las transferencias de dominio, trascienden la mera clasificación, el testimonio o la simple certificación. En efecto, la toma de razón de la transferencia del dominio es un acto conformador por cuanto funda, modifica o suprime relaciones jurídicas. Como también modifican o suprimen derechos las anotaciones de medidas cautelares o de derechos reales de garantía, cesiones de derechos o anotaciones de entrega de la posesión.

  • Órgano estatal: El Decreto-Ley 6.582/58, en el Título II, establece las pautas de la organización administrativa a través de la cual el Estado presta el servicio de registración. El organismo de aplicación del régimen es la Dirección Nacional de Registros de la Propiedad de Automotor y de Créditos Prendarios, actualmente en la órbita de la Subsecretaría de Asuntos Registrales, dependiente de la Secretaría de Justicia del Ministerio de Justicia y Derechos Humanos de la Nación.

Es función de esa Dirección controlar la actividad de los Registros Seccionales que llevarán adelante la tarea registral propiamente dicha30. Estas unidades desconcentradas con asignación territorial de competencia están a cargo de un funcionario público31 denominado encargado de Registro, cuya vinculación con el Estado y normas habilitantes de su competencia material presentan características singulares que los diferencian de los regímenes tradicionales.

Su relación con el Estado no es la del empleo público, pero está sujeto a controles y régimen disciplinario estricto que afirman una estrecha dependencia. Éste tiene a su cargo y bajo su responsabilidad la provisión de todos los recursos, materiales y humanos, necesarios para la prestación eficiente del servicio. Y es de este modo como se llega a cada rincón del país con el servicio registral, haciéndolo accesible a toda la población por su cercanía física o geográfica y por estar abierto a los interesados directos, sin necesidad de ninguna mediación. Estas últimas características lo diferencian palmariamente de todos los demás sistemas registrales, sobre todo de los referidos a los derechos de propiedad.

  • En ejercicio de función administrativa: El Estado ha decidido tomar a su cargo la registración de los automotores, y el interés público está dado en la necesidad de, a la par de otorgar seguridad jurídica a las transacciones sobre éstos, procurar se eviten los delitos en los que adquiere relevancia. Los automotores son objetos de delitos, medios para cometerlos y móviles muchas veces de gravísimos crímenes (hurtos, robos, contrabando, lavado de activos, bien de cambio en el tráfico de drogas, etc., muchas veces en concurso con delitos contra la integridad y la vida de las personas)[17].
  • Bajo un régimen exorbitante: Tratándose de un régimen legal que regula el derecho de propiedad, se han ocupado de su estudio más frecuentemente civilistas y muy particularmente especialistas en derechos reales. Sin embargo, la compleja cosa sobre la que recae la registración atrae la atención permanente del Estado que, en ejercicio del poder de policía, se ocupa de regular no solo el modo en que se adquieren y transfieren los automotores, sino en qué condiciones podrán circular y hacer uso de la vía pública.

El sistema registral del automotor, como actividad administrativa estatal, escapa a los moldes del derecho privado y persiguiendo el orden público procura ordenar la vida en sociedad frente al impacto que el uso y el tráfico jurídico de este bien generan[18].

La registración no solo es constitutiva (RJA) sino también obligatoria (art. 6° RJA), los automotores solo están habilitados para circular en la vía pública, entre otros requisitos, si se los conduce con la cédula de identificación vigente (art. 22 RJA), a requerimiento del titular que hubiere denunciado la entrega de la posesión del automotor, el organismo decreta la prohibición de circular (arts. 15 y 27 RJA) y lo hace saber a otros entes estatales, especialmente a las fuerzas de seguridad.

Todas estas constituyen claras prerrogativas exorbitantes del derecho privado dirigidas a perseguir fines comunes[19].

  • Productora de efectos jurídicos directos e individuales hacia terceros: La toma de razón de la transferencia de dominio inviste al adquirente del automotor en dueño de la cosa. A partir de allí podrá ejercer en plenitud el derecho real de dominio y no solo oponer su derecho a los terceros sino al propio transmitente[20]. A su vez, si el funcionario inscriptor negare lo rogado por el interesado y observare la petición por no haberse reunido, a su criterio, los requisitos de fondo o de forma, habilitará la vía recursiva[21].

A la par de este acto administrativo de registración, fundamento y piedra basal de todo el sistema, esta característica puede advertirse con claridad en otros actos administrativos propios del régimen, por ejemplo las anotaciones de entrega de la posesión que genera la prohibición de circular o su posterior levantamiento cuando se cumplan los requisitos; los cambios de radicación que determinan al sujeto activo de la relación tributaria; la anotación de gravámenes prendarios y medidas cautelares contra el automotor o su titular, necesarias en estos casos para su oponibilidad a terceros; el otorgamiento de certificados de estado de dominio, para bloquear durante quince días hábiles toda registración que se oponga a la que lo motivara y evitar que, por los efectos establecidos en el artículo 16 del RJA se perjudique el derecho del interesado mientras dure la negociación o se procure la obtención de la documentación necesaria para el trámite que se requiera.

VIII. Breve descripción de los elementos de acto administrativo registral en el Régimen Jurídico del Automotor.

Son actos administrativos las distintas manifestaciones de la actividad registral: Expedición de informes de estado de dominio, de datos históricos, informes nominales, de anotaciones personales, certificados de estado de dominio con los efectos del artículo 16 del Decreto Ley 6.582/58, la toma de razón de los cambios en la configuración de los automotores, de su uso, de los datos de sus titulares, de la radicación, de medidas cautelares contra el automotor o su titular, de gravámenes prendarios, etc., pero es la anotación de la transferencia de dominio con sus efectos en relación al modo de adquirirlo la que interesa a los fines propuestos en el presente trabajo.

La toma de razón de la transferencia de dominio del automotor en el Registro de la Propiedad del

Automotor es el acto administrativo dictado por el encargado del Registro Seccional, que inviste en dueño del automotor al sujeto de derecho que lo peticiona demostrando haberlo adquirido por cualquier causa legítima y reunido los requisitos de fondo y forma establecidos por las normas. En el concepto queda incluida la inscripción inicial del automotor, la que se considera primera transferencia.

El acto registral, como acto administrativo que es, debe reunir los requisitos que, para su validez, establece el artículo 7º de la Ley 19.549: Competencia, causa, objeto, procedimiento, motivación y finalidad y manifestarse según las formas establecidas en el artículo 8º.

  1. Competencia:  El artículo 7º del Régimen Jurídico del Automotor establece que “La Dirección Nacional de los Registros Nacionales de la Propiedad del Automotor y de Créditos Prendarios será el Organismo de Aplicación del presente régimen, y tendrá a su cargo el Registro Nacional de la Propiedad del Automotor”.

“El Poder Ejecutivo Nacional reglará la organización y el funcionamiento del mencionado Registro conforme a los medios y procedimientos técnicos más adecuados para el mejor cumplimiento de sus fines. Asimismo, determinará el número de secciones en las que se dividirá territorialmente el Registro y fijará los límites de cada una de ellas a los efectos de las inscripciones relativas a los automotores radicados dentro de las mismas; podrá crear o suprimir secciones, y modificar sus límites territoriales de competencia.

En los Registros Seccionales se inscribirá el dominio de los automotores, sus modificaciones, su extinción, sus transmisiones y gravámenes. También se anotarán en ellos los embargos y otras medidas cautelares, las denuncias de robo o hurto y demás actos que prevea este cuerpo legal o su reglamentación.

El Poder Ejecutivo Nacional podrá disponer que determinadas inscripciones o anotaciones se cumplan ante la Dirección Nacional, en forma exclusiva o concurrente con los Registros Seccionales, cuando fuere aconsejable para el mejor funcionamiento del sistema registral”.

  1. Competencia en razón al grado: La inscripción del dominio está a cargo de los Registros Seccionales. La intervención previa en la aprobación de las inscripciones de vehículos armados fuera de fábrica por parte de la Dirección Nacional es solo un reflejo de las facultades que a ésta les confiere la ley con relación a la organización de todo el sistema y por tratarse de una manifestación más (junto con los importados y los producidos por fábricas reconocidas de la industria nacional) del control de la calificación de cosa registrable sujeta al régimen.

Pero la inscripción siempre se practica en los Seccionales, no surgiendo consecuentemente conflictos en razón al grado. Cuando el organismo de aplicación debe intervenir los Seccionales, la tarea registral es ejercida por interventores que actúan del mismo modo con que deben hacerlo los titulares.

  1. Competencia en razón de la materia:

Como ya se ha señalado se dividen en  Registros Seccionales de la Propiedad del Automotor, cuando los automotores a inscribir son los originariamente incorporados al sistema y los que luego se incluyeron del modo ya descripto: Registros Seccionales de la Propiedad del Automotor con Competencia Exclusiva en Motovehículos y Registros Seccionales de la Propiedad del Automotor con Competencia Exclusiva en Maquinaria Agrícola, Vial e Industrial y de Créditos Prendarios.

Por lo tanto, tampoco aquí surgen conflictos de competencia, aunque hayan ocurrido equívocos aislados al calificarlos en los primeros tiempos de las nuevas incorporaciones (así fue con los cuatriciclos con dispositivo de enganche, camiones grúa y acoplados agrícolas).

1.c. Competencia en razón al territorio: Los

Registros Seccionales son unidades territoriales en las que se divide el Registro Nacional. Corresponde a la Dirección Nacional determinar el número de secciones en las que se dividirá territorialmente el Registro, y fijar los límites de cada una de éstas a los efectos de las inscripciones relativas a los automotores radicados dentro de las mismas; podrá crear o suprimir secciones, y modificar sus límites territoriales de competencia[22].

Por ser el lugar de radicación de los automotores el domicilio de su titular, o el lugar en los que éstos fijen su guarda habitual, es aquí en donde pueden originarse nulidades por estar a cargo de los interesados demostrar esos extremos, y con frecuencia y con el fin de eludir o evadir impuestos que graven la radicación suelen valerse de informes o documentos material o ideológicamente falsos, siendo preocupación permanente del organismo de aplicación dictar normas y establecer procedimientos que eviten dichas prácticas.

  • Objeto: El objeto del acto administrativo registral será la resolución que sobre la petición del interesado adopte el registrador[23], la que podrá ser favorable o no y en este último caso habilitará la vía recursiva.
  • Causa: En este sistema registral el registrador no actúa de oficio sino, por el principio de rogación, a petición de parte. Esa petición, que pone en marcha el procedimiento, y a la que el peticionario agregará los antecedentes de hecho y derecho que justifiquen la resolución, será entonces la causa del acto administrativo de registración[24].
  • Procedimiento: Los procedimientos que deben cumplirse, además de los que resultan implícitos del ordenamiento jurídico, son los ya referidos en el plexo normativo específico del Régimen Jurídico del Automotor, el Decreto 335/88 y el Digesto de Normas Técnico-Registrales y demás Resoluciones y Disposiciones complementarias. Por ser la actividad registral típicamente reglada, salvo excepcionales casos de compleja resolución, no se requiere el dictamen jurídico previo[25].
  • Motivación: La motivación del acto administrativo de registración, aunque no lo manifieste el inscriptor de manera expresa, es el análisis a la luz de los antecedentes con que cuente de la situación jurídica del automotor, de su titular, de la aptitud del adquirente, de todos los recaudos formales ordenados por las normas que le permitieron calificarlos para despachar, favorablemente o no, el trámite requerido dictando el acto administrativo solicitado o el denegatorio. La motivación, cuando el acto administrativo es favorable luce anotada en la hoja de registro y si es denegatorio en la fórmula de la observación que debe expresar las normas en que se funda[26].
  • Finalidad: La finalidad es la de asegurar el uso y goce pacífico de la propiedad que redundará en la obtención de la paz social pregonada en los fundamentos de las normas de creación del régimen legal.
  • Forma: El artículo 13 del Decreto 335/88 establece: “La registración o despacho favorable de un trámite llevará la fecha del día de su registración o despacho y la firma y sello del Encargado de Registro.

La resolución por la cual se observe una petición deberá contener las formalidades previstas en el párrafo anterior y los fundamentos de la medida. En el mismo acto se deberán formular la totalidad de las observaciones que la petición pudiere merecer”.

Las formas se expresan por escrito y en “soporte papel” no obstante lo cual, simultáneamente, se repite el procedimiento a través de sistemas informáticos como paso previo a la eventual implementación de la firma digital.

IX. Acto Administrativo Denegatorio

Cuando al momento de despachar el trámite el encargado inscriptor advierta que para ello existe algún impedimento, dice el Decreto 335/88 que: “En el mismo acto se deberán formular la totalidad de las observaciones que la petición pudiere merecer. Dicha resolución se agregará a la solicitud y el interesado quedará notificado en forma auténtica en la sede del Registro los días martes y viernes o el siguiente día hábil si alguno de ellos fuere feriado administrativo…”.

Es éste el acto administrativo que, por denegar la

petición, habilita la vía recursiva que el mismo decreto reglamenta en los artículos 14 a 22[27]. El Decreto-Ley 6.582/58, artículo 37, establece a tal fin la competencia, en la Ciudad Autónoma de Buenos Aires, de la Cámara Nacional de Apelaciones en lo Civil y Comercial Federal y en el interior del país de las Cámaras Federales con jurisdicción territorial en el lugar de asiento de los Registros Seccionales[28].

El recurso judicial directo en materia registral no solo se manifiesta en el Régimen Jurídico del Automotor, también de ese modo se revisan las manifestaciones administrativas de registración en materia inmobiliaria y mercantil en la Capital Federal.

En el caso del Régimen Jurídico del Automotor, quizá por tratarse de una actividad reglada, con normas y procedimientos hartamente difundidos, de fácil acceso al conocimiento de los usuarios, o por estar administrada por unidades desconcentradas ampliamente controladas por el organismo de aplicación, o por el ejercicio de la potestad revocatoria que se mantiene desde la interposición del recurso hasta su remisión a sede judicial, manifestación ésta de la autotutela administrativa, pocas, muy pocas veces, el usuario se ha visto en la necesidad de recurrir y, cuando lo ha hecho, la administración ha ejercitado razonablemente la potestad revocatoria.

Antes de verse en la necesidad de recurrir el peticionante de la inscripción observada es ampliamente escuchado, con fácil acceso tanto a la unidad ejecutora (Registro Seccional) como, en queja formal o informal, a la autoridad de aplicación (Dirección Nacional de Registros del Automotor y Créditos Prendarios), para lo cual tiene expeditos diversos mecanismos y procedimientos que en ningún otro sistema registral se manifiesta en esa dimensión.

El tema, en el caso, toda vez que se lo aborda, no pasa de ser una cuestión teórica, con pocas manifestaciones prácticas. Esta es quizá una de las características más relevantes y exitosas del sistema, porque dentro de sus postulados teleológicos está la paz social y evitar las controversias. Cuando el usuario, el administrado, es atendido se mantiene en ese estado; el de justiciable recién se adquiere cuando los procedimientos administrativos fallan.

Pero está dicho, los sistemas administrativos pueden fallar y fallan, la estadística es irrelevante. Ante la hipótesis cabe preguntarnos si el recurso directo, instituido en el artículo 37 del Decreto-Ley 6.582/58, conforma la tutela judicial efectiva, como esta es considerada en los tiempos que corren, a la luz del derecho constitucional vigente y la proyección de los tratados internacionales de derechos humanos.

El recurso permite revisar al encargado de Registro su propia decisión y a la Dirección Nacional, en una suerte de apelación administrativa, revisar la del encargado o la suya propia si es que ésta ha sido la materia recurrida. Cualquiera de las decisiones que se adopten en ambas sedes administrativas deberá ajustarse a las normas técnicas y fundarse en éstas. Si el recurso se interpusiere contra decisiones de la Dirección Nacional será la Secretaría de Justicia la habilitada para revocarlas.

Agotado el análisis de persistirse en la denegatoria, ésta será revisada por el órgano judicial al que el Decreto Ley le otorgó competencia. Existe, entonces, revisión judicial posterior a lo resuelto definitivamente en sede administrativa, la competencia del órgano

proviene de la ley. El reproche debe dirigirse, como en todo recurso directo, a que el tribunal competente entenderá en única instancia lo que no se ajusta a lo que expresamente ordena el artículo 8.2 h y 25 del Pacto de San José de Costa Rica.

X. Revocación y anulación del acto nulo

Se ha sostenido que: “a los fines de la extinción de los actos de registro habrá que estar a la anulación judicial”[29], y a tal fin la legitimación procesal la tendrá la Dirección Nacional de Registros de la Propiedad del Automotor (artículo 38 del Decreto Ley 6.582/58).

Acerca de si lo dispuesto en el artículo 38 del Decreto Ley 6.582/58 importa el desplazamiento, desde este régimen jurídico particular, de lo establecido en la Ley de Procedimientos Administrativos (artículos 17 y 18 de la LPA), limitando la potestad revocatoria de la administración, porque están en juego el derecho de propiedad, la seguridad jurídica, la estabilidad de las situaciones que se están cumpliendo basta oponer el de la legitimidad del obrar estatal para comprender la tensión que se genera.

Entendemos que de la aplicación armónica de ambos sistemas surge la solución más justa, razonable y proporcionada y así, cuando el particular, en conocimiento del vicio hubiera, de mala fe, coadyuvado a la producción del acto administrativo nulo, no vemos impedimento para que el trámite se sustancie en sede administrativa con amplia participación del interesado a los fines del más irrestricto respeto de su derecho de defensa.

XI. La interacción de las jurisdicciones nacional, provinciales y municipales

1. El registrador del automotor como agente de percepción y de información

En el ámbito de la registración de los automotores es común referirse a la “ventanilla única” cuando se describe la función del encargado de Registro como agente de percepción de impuestos y de información de los más diversos organismos públicos.

Esta actividad, paralela y auxiliar de la propiamente registral, permite a las jurisdicciones locales valerse de la estructura creada por el Estado nacional para optimizar la recaudación de los impuestos que recaigan sobre los automotores (impuesto a la radicación) o sobre el acto de su transmisión (sellos), e incluso perseguir el cobro de multas de tránsito.

A través de los denominados “Convenios de Complementación” celebrados por la Dirección Nacional de Registros del Automotor y Créditos Prendarios con las provincias y los municipios se ha designado agentes de percepción de impuestos a los encargados de Registro, permitiendo que los fiscos locales optimicen la recaudación a la par de que el público usuario, principal destinatario del sistema registral, resuelva, en la misma oficina a la que concurrió para consolidar su derecho de propiedad, el cumplimiento de sus obligaciones fiscales.

XII. De la tradición al acto administrativo registral y su evolución hacia el acto administrativo registral digital

Recién en la segunda mitad del más de medio siglo de vigencia del Régimen Jurídico del Automotor se introdujo la informática en sus procedimientos administrativos.

Con anterioridad, los trámites y registraciones se realizaban en forma manual y muy rudimentaria. El Estado desconocía datos elementales como la cantidad, calidad y características del parque automotor cuya registración estaba bajo su órbita y, periódicamente, se ordenaban inventarios de legajos que solo daban cuenta de la cantidad de automotores registrados y su distribución territorial.

Durante los años 1988 hasta 1990, fue necesario empadronar los vehículos destinados al transporte de carga, para conocer su composición y así diseñar y atender políticas públicas en desarrollo.

Fue recién en los primeros años de la década del noventa que se desarrollaron sistemas informáticos [30], a los que se volcaron los datos registrales obrantes en soporte papel, y que en ese primer momento eran ejecutados y administrados por los Registros Seccionales, que se desempeñaban como islas dentro de la organización registral nacional.

Paulatinamente la telemática resultó una herramienta imprescindible para integrar un sistema caracterizado por centralización en el diseño político, el normativo, y los controles a cargo del organismo de aplicación (Dirección Nacional de Registros de la Propiedad del Automotor y de Créditos Prendarios) y la desconcentración de las unidades ejecutoras (Registros Seccionales) que a lo largo y ancho del país se distribuyen la jurisdicción territorial 46  para atender la que materialmente les corresponde[31].

En los últimos años fue diseñado un nuevo sistema informático, Sistema Único de Registración Automotor (SURA), que es operado por los mismos Registros Seccionales, impactando en una base de datos única y central. Debe aún perfeccionarse para que, a la par de permitir al organismo de aplicación controlar la actividad de los Seccionales resulte una herramienta útil y ágil para el registrador y los usuarios. Para esto es indispensable que toda la información, la propiamente registral, la fiscal y la contravencional, se operen desde un único sistema ahorrando tiempo, costos y evitando errores.

Paralelamente se desarrollaron sistemas que permitieron reemplazar los Certificados de Origen (de fabricación o de importación) necesarios para proceder a las inscripciones iniciales[32], o generar y acceder a bases de datos de consulta necesaria para calificar la viabilidad de las inscripciones requeridas (Sistema Unificado de Anotaciones Personales[33], consultas a Colegios de Escribanos[34] para confirmar la autenticidad de los folios notariales que amparen certificaciones de firma, o expedientes para constatar la efectiva expedición de órdenes judiciales dirigidas al Registro para que éste practique anotaciones que modifiquen la situación registral de los automotores o de sus titulares).

Asimismo, otro sistema informático (ACRE) ha permitido optimizar los procedimientos para el cambio de radicación de los automotores. El ya citado artículo 12 del Régimen Jurídico del Automotor, reformado a fines de año 1983, con sorprendente anticipación, incorpora la siguiente previsión: “La remisión del legajo podrá ser suplida por otros medios de información, cuando los adelantos técnicos así lo permitan. En tal caso por vía reglamentaria se determinarán dichos medios de información, y la oportunidad en que se tendrá por realizado el cambio de radicación”51. Y si bien, materialmente los legajos “papel” continúan viajando por el país, de Registro en Registro, esto ocurre mucho después de haberse perfeccionado el trámite ante el Registro de la futura radicación, porque el sistema ACRE permitió comunicar sumariamente los datos del domino y de su titular, posibilitando la registración en plazos exiguos, entre las veinticuatro y las setenta y dos horas.

La informática también auxilia en la tarea complementaria a la registral, cuando los Registros actúan como agentes de percepción de impuestos y multas correspondientes a diversas jurisdicciones locales con las que la autoridad de aplicación celebrara  convenios de complementación (impuestos de sellos provinciales, o a la radicación de automotores provinciales o municipales, multas por infracciones de tránsito) o cuando lo hacen como agentes de información (para las fuerzas de seguridad, organismos de control, Agencia Federal de Ingresos Públicos[35], Unidad de Información Financiera[36], Poder Judicial, Poder Legislativo, etc.), aunque, como ya se ha dicho, mucho falta aún para la unificación de sistemas que necesitan de los mismos datos para la más ágil atención del ciudadano.

A los adelantos que a través del tiempo se han realizado empiezan ahora a sumarse a las formas, los procedimientos, los modos de expresarse la voluntad y la calificación del registrador, las firmas y el documento digitales propiamente dichos, transformándose el acto administrativo registral en un acto administrativo registral digital.

XIII. Acto administrativo registral digital

Como ya se ha señalado, pese al incesante avance de la informática, aún falta recorrer un largo camino para la completa y segura implementación del acto administrativo digital.

Un paso importante en este desarrollo se está dando con el denominado Sistema de Trámites Electrónicos (SITE)54, que habilitado actualmente para ciertos trámites sencillos procura, por encima de simplificar formas, asegurar y acelerar resultados y reducir tiempos de espera, reunir la experiencia necesaria en pos de la futura implementación de la digitalización del sistema registral.

Tanto en el derecho privado como en el derecho público, al menos desde la legislación, se vienen incorporando conceptos y adaptando instituciones consecuentes con los avances tecnológicos.

El concepto de firma en el nuevo Código Civil y Comercial, artículo 288, los objetivos de la ley 25506, el propósito de “despapelizar” a la administración pública, Decreto 427/98, han tomado una dirección de la que no se puede volver y de la que solo puede esperarse su profundización.

Anticipatorias parecen las palabras de Gordillo cuando al referirse a registro físico del acto administrativo (el papel o el soporte electrónico) afirmaba: “Hay un aspecto de la forma escrita que los autores del decreto-ley no pudieron imaginar en 1972 y es la relativa a cuál es el soporte físico de la escritura”  y más adelante: “Nos parece que el acto que consta en una base de datos o server, sitio web, o lo que fuere en el futuro, cumple con el requisito de la forma escrita aunque no esté también asentado en papel”55.

Julio Rodolfo Comadira56, refiriéndose a la forma, al comentar la Ley Nacional de Procedimientos Administrativos señala, tomando literalmente el texto de la ley, que en ésta “el principio es que el acto debe manifestarse expresamente y por escrito, indicando el lugar y la fecha en que se lo dicta y con la firma de la autoridad emisora. Solo excepcionalmente, y si las circunstancias los permiten, se puede emplear una forma distinta”.  E inmediatamente, a pie de página cita resumidamente los avances de la Ley 25.506, lo que nos lleva a pensar que lo señalado como excepción, con el transcurso de tiempo, los avances tecnológicos, la adaptación de la administración a

estos avances y el proclamado propósito de despapelizar al Estado lo que la norma de 1972 no pudo contemplar, la de 2001 marca como camino, como destino final irreversible[37].

También Juan Carlos Cassagne señala al documento electrónico como equivalente al documento escrito y explica que: “Se considera que digitalizar implica traducir un lenguaje natural a una serie de impulsos electrónicos que se expresa en un sistema binario. Expresar datos en forma digital significa expresarlos con relación a números dígitos que luego las computadoras convierten nuevamente al lenguaje alfabético que sea legible (pero el archivo siempre contiene números dígitos) ”58.

Juan Agustín Cortelezzi, en una reciente obra colectiva[38], sostiene: “sin perjuicio de señalar que la forma escrita aparece como una garantía para los administrados, lo cierto es que lo importante, en

realidad, es el contenido del acto.

La escritura no deja de ser un medio instrumental del acto administrativo. Por ello, cabe preguntarse si en la actualidad el papel es el único medio legalmente idóneo para soportar cualquier tipo de actuación administrativa y, en su caso, si es posible el dictado de actos administrativos digitales”. Y concluye con total contundencia: “Entendemos que el acto administrativo no solo puede revestir la forma digital, sino que debe hacerlo dado el avance tecnológico en materia informática…”, “…a pesar de cambiar el soporte del acto, este sigue siendo escrito sin alterar su contenido”. “… El acto administrativo digital sigue plasmado en un documento escrito pero electrónico” [39].

La Ley 25.506, promulgada de hecho el 11 de diciembre de 2001, establece las condiciones bajo las cuales se habrá de reconocer la eficacia jurídica de la firma digital[40] y de la firma electrónica fundando las bases para que, a la par de promoverse la “despapelización” se lo haga bajo altísimos estándares de seguridad.

La ley prevé el uso de la firma digital por el Estado tanto en su ámbito interno como en la relación con los administrados. Institutos típicos del Régimen Jurídico del Automotor, como lo son los comerciantes habitualistas y los entes cooperadores, los fabricantes e importadores oficiales de automotores, motovehículos y maquinaria agrícola, vial e industrial autopropulsada, la interrelación del organismo de aplicación y los Registros Seccionales con los Colegios de Escribanos, la Agencia Federal de Ingresos Públicos, los fiscos locales, las fuerzas de seguridad, los organismos de control y los administrados en general, permiten imaginar un espacio propicio para el desarrollo de los fines perseguidos por la norma y el paulatino y cercano reemplazo del papel por el soporte electrónico, a la vez que el reemplazo de los actuales archivos físicos por los electrónicos daría satisfacción a una vieja, larga y justificada demanda de los Seccionales y el Archivo General del organismo de aplicación que los duplica62.

Ninguna duda cabe que el acto administrativo podrá revestirse de esta nueva forma aportada por la modernidad que, sin mengua de la seguridad, aporte celeridad, mejor acceso a la información, mayores posibilidades de reproducción de los soportes con el mismo grado de certeza y en lo que respecta específicamente a lo registral, con un potencial publicitario de los derechos reales abiertos a la comunidad global, que evidencia hasta el absurdo la inconsistencia de oponer la posesión y la tradición al acto administrativo de registración como modo de adquirir el dominio de los bienes registrables.

XIV. Conclusiones

Del menú de alternativas que se presentaban para mejor proteger el derecho real de dominio a través de su modo de adquisición derivada, a saber: el solo acuerdo de partes del derecho francés, el seguro de títulos del sistema anglosajón, y la tradición, solo vigente en Uruguay del modo que lo está en nuestro país y el acto administrativo de registración, con su presunción de legitimidad, los procedimientos sencillos para producirlo al alcance de los interesados directos y las vías de impugnación expeditivas, hemos tratado de demostrar que, con la pretendida y frustrada reforma, no se trataba de reemplazar a la tradición, como modo de adquirir el dominio de los bienes registrables, por un simple asiento registral[xli] como, desde el derecho privado se ha afirmado, sino por el acto administrativo que constituya en titular de dominio a quien reúna las condiciones para ello.

Acto administrativo que, por presumirse legítimo64, otorga al titular del derecho una seguridad incomparable con la de la supuesta publicidad con la que se pretende caracterizar a la tradición. Acto administrativo que expresado a través de los medios electrónicos hoy disponibles adquiere una enorme proyección publicitaria.

Para ello hemos descripto aspectos sobresalientes del Régimen Jurídico del Automotor, por la experiencia ganada en sesenta años de vigencia, por seguir quedando como único régimen constitutivo relevante en nuestro ordenamiento y porque ha demostrado, con una organización administrativa diferencial, altos grados de eficiencia y eficacia y ha penetrado culturalmente en la población de tal manera que el buen uso de los procedimientos puestos a disposición en forma directa al usuario interesado ha reducido al mínimo la judicialización de los conflictos.

Es función de la Administración promover el pleno disfrute de los derechos de los habitantes y prevenir los conflictos como medio para lograr la paz social.

Paz social, prevención de conflictos, pleno disfrute de los derechos, son ingredientes de un círculo virtuoso que requieren de la Administración del Estado acciones positivas que pongan a disposición de los habitantes las estructuras y los medios tecnológicos necesarios para proteger la propiedad subordinando su uso y goce al interés social.

Esta es otra forma de manifestarse la constitucionalización del derecho privado. El derecho público proyectando sus efectos sobre el privado para garantizar más eficazmente un derecho constitucional que, luego de la vida, la Constitución y los Tratados Internacionales mandan proteger65.

XV. BIBLIOGRAFÍA

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AMESTOY, GUSTAVO: “La función administrativa registral en materia de automotores y sus principales derivaciones (la aplicación concreta de un régimen legal)”.

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AMESTOY, GUSTAVO: “Procedimiento Administrativo en Materia Registral”.

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T° III.

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Civil. Derechos Reales”. 2ª Edición, Editorial Perrot, 1978, Buenos Aires.

BORELLA, ALBERTO OMAR: “Régimen Registral del Automotor”. Rubinzal-Culzoni, 1993, Santa Fe.

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Comercial Comentado”. Editorial Hammurabi SRL, 2014, Buenos Aires.

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trativo. Teoría y Régimen Jurídico”. La Ley, 1ª Edición, 2012, Buenos Aires.

COMADIRA, JULIO RODOLFO, MONTI,

LAURA (colaboradora): “Procedimientos Administrativos. Ley Nacional de Procedimientos Administrativos Anotada y Comentada”. La Ley S.A.E. e I., Tomo I. 1°, Edición 2002, 2ª Reimpresión 2007, Buenos Aires.

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Curso de Derecho Administrativo”. 1ª Edición. Editorial Abeledo Perrot, 2012, Buenos Aires.

DÍAZ SOLIMINE, OMAR LUIS: “Dominio de los Automotores”. Astrea, 1994, Buenos Aires.

FARRÉS, PABLO: “Firma Digital. Ley 25.506 Comentada y Concordada”. LexisNexis, 1ª Edición, 2005, Buenos Aires.

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Administrativo”. T° 3. Fundación de Derecho Administrativo, 10ª Edición, 2011, Buenos Aires.

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MUNDIAL): “Diagnóstico: Sistema de Garantías Mobiliarias República Argentina”. Informe producido a pedido del gobierno argentino. Agosto 2016, Buenos Aires.

GUTIÉRREZ COLANTUONO, PABLO ÁNGEL,

JUSTO, JUAN BAUTISTA (colaborador):

“Administración Pública, Juridicidad y Derechos Humanos”. Abeledo Perrot, 1ª Edición, Buenos Aires, 2009.

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Civil y Comercial Comentado”. 1ª Edición Infojus, 2015, Buenos Aires.

IVANEGA, MIRIAM MABEL: “Mecanismos de

control público y argumentaciones de responsabilidad”. Editorial Ábaco de Rodolfo Depalma, 2003, Buenos Aires.

IVANEGA, MIRIAM MABEL: “Principios de la

Administración Pública”. Editorial Ábaco de Rodolfo Depalma, 2005, Buenos Aires.

LIEBAU, FLORENCIO E.: “Régimen Jurídico del

Automotor”. Editorial Ábaco de Rodolfo Depalma, 1980, Buenos Aires.

MOISSET DE ESPANÉS: “Automotores y Motovehículos. Dominio”. Zavalía Editor, 1992, Buenos Aires.

MUSTO, NÉSTOR JORGE: “Derechos Reales”.

Rubinzal-Culzoni, 1989, Santa Fe.

PERRONE, NICOLÁS M.: “Artículo 21. “Derecho

a la Propiedad Privada”, en la obra colectiva “La Convención Americana de Derechos Humanos y su Proyección en el Derecho Argentino”. Director ALONSO REGUEIRA, Enrique M. Editorial La Ley, 1ª Edición, Buenos Aires, 2013.

PRÓSPERI, FERNANDO FÉLIX: “Prenda de Automotores”. La Ley, 2001, Buenos Aires.

TAWIL, GUIDO SANTIAGO: “Acto Administrativo”. Abeledo Perrot, 1ª Edición, 2014, Ciudad Autónoma de Buenos Aires.

VIGGIOLA, LIDIA E. Y MOLINA QUIROGA,

EDUARDO: “Régimen Jurídico del Automotor”. La Ley, 2002, Buenos Aires.

ZANNONI, EDUARDO A.; MARIANI DE VIDAL, MARIANI; ZUNINO, JORGE E.: “Código

Civil y Comercial”. 1ª Edición, Editorial Astrea, 2015, Buenos Aires.

• Revista

Ámbito Registral, Año XIX, Nº 77 del 14 de febrero de 2015, páginas 8 a 12: “Impuesto Automotor en la Provincia del Neuquén”.

• Jurisprudencia.

Fallos: 145:307 (1925) – Fallos: 313:542 – Fallos:

317:387 – Fallos: 321:3024 – Fallos 324:418 (2201) – Fallos 307:1014 (1385).

CÁMARA NACIONAL EN LO CONTENCIOSO ADMINISTRATIVO FEDERAL Sala I. Sentencia del 7/04/06 “Aliment AR S.A.  -Inc.Med.

EN-AFIP DGI-Resol 418/05 (RMCI) (AG 49) s/ Dirección General Impositiva”.

CÁMARA NACIONAL CIVIL, Sala D, Sentencia del 3/9/1991 “Perrín, Jorge Luis y otros v. Ministerio del Interior Policía Federal Argentina y otro s/sumario”.

CÁMARA DE APELACIÓN EN LO CONTENCIOSO ADMINISTRATIVO DE MAR DEL PLA-

TA. “Brown, Diego Ernesto contra la Provincia de Buenos Aires, Materia a categorizar”.

 • Dictámenes de la Procuración del Tesoro de la Nación.

T°: 171 Página: 179. Fecha: 5 de noviembre de 1984. Emisor: Héctor Pedro Fassi.

T°: 237 Página: 204. Fecha: 15 de mayo de 2001.

Emisor: Ernesto Alberto Marcer.

T°: 238 Página: 80. Fecha: 17 de julio de 2001.

Emisor: María Andrea Caruso (subprocuradora).

T°: 240 Página: 225. Fecha: 27 de febrero de 2002.

Emisor: Luis Alberto Montagnaro. (subprocurador).

T°: 241 Página: 177. Fecha 30 de abril de 2002.

Emisor: Luis Alberto Montagnaro (subprocurador). T°: 242 Página: 446. Fecha: 6 de septiembre de 2002. Emisor: Rubén Miguel Citara.

T°: 248 Página: 146. Fecha: 29 de enero de 2004.

Emisor: Horacio Daniel Rosatti.

T°: 248 Página: 539. Fecha: 31 de marzo de 2004.

Emisor: Horacio Daniel Rosatti.

T°: 248 Página: 556. Fecha: 31 de marzo de 2004.

Emisor: Horacio Daniel Rosatti.

T°: 248. Página: 159. Fecha: 29 de enero de 2004.

Emisor: Horacio Daniel Rosatti.

T°: 253 Página: 227. Fecha: 17 de mayo de 2005.

Emisor: Osvaldo César Guglielmino.

T°: 261 Página: 162. Fecha: 15 de mayo de 2007.

Emisor: Osvaldo César Guglielmino.

T°: 265 Página: 157. Fecha: 2 de junio de 2008.

Emisor: Osvaldo César Guglielmino.

T°: 267 Página: 85. Fecha: 7 de octubre de 2008.

Emisor: Osvaldo César Gugliemino.

T°: 267. Página: 118. Fecha: 20 de octubre de 2008. Emisor: Osvaldo César Guglielmino. T°: 271 Página: 168. Fecha: 23 de noviembre de 2009. Emisor: Osvaldo César Guglielmino.

T°: 272 Página: 140. Fecha: 17 de febrero de 2010.

Emisor: Joaquín Pedro Da Rocha.

T°: 274 Página: 239. Fecha: 27 de agosto de 2010. Emisor: Joaquín Pedro Da Rocha.

T°: 279 Página: 147. Fecha: 8 de noviembre de

2011. Emisor: Elina Susana Mecle (subprocuradora)

T°: 279 Página: 233. Fecha: 23 de noviembre de 2011. Emisor: Elina Susana Mecle (subprocuradora).

T°: 279 Página: 265. Fecha: 1 de diciembre de 2011.

Emisor: Elina Susana Mecle. (subprocuradora).

Notas:

[1] – “…es necesario enfatizar, en primer término, el principio de indivisibilidad de los derechos humanos, que se opone a la formulación de distinciones entre los derechos civiles y políticos frente a los económicos, sociales y culturales. Ambos tipos de derechos generan obligaciones de respeto, protección y garantía, y con ello el deber de organizar el aparato estatal -y, por ende, también la Administración- de modo de asegurar su efectivo disfrute.” GUTIÉRREZ COLANTUONO, PABLO ÁNGEL; JUSTO, JUAN BAUTISTA

(colaborador): “Administración Pública, Juridicidad y Derechos Humanos”. Abeledo Perrot. 1ª Ed. Buenos Aires, 2009, página 237.

2 – Fallos: 145:307 (1925).

3- “Tal como describieron en su momento, entre otros los autores italianos, el fenómeno es bifronte, es decir por un lado la privatización del Derecho Público y por otro la publicidad del Derecho Privado”. BALBÍN, CARLOS F.: Tratado de Derecho Administrativo. La Ley, 2010. Buenos Aires, T° I. Capítulo IV, página 385.

4 – No es el encargado de registro un empleado público, pero tampoco un concesionario o licenciatario del Estado. Es el funcionario público a través del cual se manifiesta el servicio público de registración de automotores en relación de dependencia funcional con el Organismo de Aplicación de este régimen jurídico particular. Y así es reconocido por el bloque jurídico que enmarca su actividad y numerosos y concordantes dictámenes de la Procuración del Tesoro de la Nación cada vez que se ha expedido sobre las incompatibilidades para ejercer otros cargo públicos (nacionales, provinciales o municipales), percibir otros salarios y emolumentos de dichas administraciones o, simultáneamente al ejercicio de la función de encargado de registro percibir jubilaciones, bajo cualquier régimen, junto a los emolumentos, retribución proveniente de la función registral. (pueden verse los siguientes dictámenes: T°: 142 Página: 11. Fecha: 4 de julio de 1977. Emisor: COZZI, ADALBERTO ENRIQUE. T°: 171 Página: 179. Fecha: 5 de noviembre de 1984. Emisor: HÉCTOR PEDRO FASSI. N° 314 T°: 242 Página: 446.Fecha: 6 de septiembre de 2002. Emisor: RUBÉN MIGUEL CITARA. N° 31 T°: 248 Página: 146. Fecha: 29 de enero de 2004. Emisor: HORACIO DANIEL ROSATTI. N° 118 T°:  248 Página: 539.

Fecha: 31 de marzo de 2004. Emisor: HORACIO DANIEL ROSATTI N° 154, T°: 253 Página: 227. Fecha: 17 de mayo de 2005. Emisor: OSVALDO CÉSAR GUGLIELMINO. N° 109, T°: 265 Página: 157. Fecha: 2 de junio de 2008. Emisor: OSVALDO CÉSAR GUGLIELMINO. N° 200, T°: 274 Página: 239. Fecha: 27 de agosto de 2010. Emisor: JOAQUÍN PEDRO DA ROCHA).

En igual sentido, desde la doctrina, se expresa ALBERTO O. BORELLA: “No caben dudas de que la función registral del automotor implica el ejercicio del “poder de policía” que ejerce el Estado sobre estos bienes. Es una función estatal. Las personas físicas que expresen y ejecuten la voluntad del Estado al que por consiguiente representan son funcionarios públicos. Los empleados, en cambio, obran para el Estado en una esfera de actividad, pero no lo representan ni expresan su voluntad.

Los Encargados de Registro ejercen la función registral del automotor como órganos desconcentrados externa o periféricamente, por designación el Estado. Desde este punto de vista desempeñan un “cargo público”, entendiendo por tal -según Marienhoff- el creado por la regla del derecho, a través del cual el Estado cumple parte de su actividad o función. Esta cuestión tuvo oportunidad de ser brillantemente desarrollada por el Asesor General de Gobierno de la Provincia de Buenos Aires, doctor Abel Fleitas Ortiz de Rozas, en su dictamen de fecha 14 de septiembre de 1989, en que, controvirtiendo lo entendido por la Dirección Técnica Tributaria de la Dirección de Rentas de la Provincia de Buenos Aires, sostuvo que los Encargados de Registro del Automotor no se encuentran alcanzados por el Impuesto sobre los Ingresos Brutos, en virtud de ejercer la función pública, o desempeñar un “cargo público”, conforme la terminología empleada por la norma exceptuante (art. 122 inc. B, del Código Fiscal, Ley 10.397 y modif.)”. BORELLA, ALBERTO OMAR. Régimen Registral del Automotor, página 182. Rubinzal-Culzoni. 1993. Santa Fe.

5- No Concordantemente dice Gustavo Amestoy: “… es claro que se ha delineado un sistema de registración de automotores -y también del régimen prendario- en el que el Estado nacional tiene una actuación exclusiva y excluyente no solo por la existencia del Registro Nacional (la mencionada Dirección Nacional) y de sus Registros Seccionales dependientes -ya que se reitera, ellos constituyen divisiones territoriales de aquél- sino porque a partir del bloque de normas que gobiernan el sistema registral surge que la intención del legislador fue erigir a la registración de los bienes muebles aquí tratados como una de las actividades estatales que se llevan a cabo y que ostenta por ello el carácter de función administrativa respecto de la cual el Estado nacional es responsable”. AMESTOY, GUSTAVO. Acerca del Recurso Judicial Directo Previsto en el Régimen Jurídico del Automotor. Revista de Derecho Administrativo Nº 59, LexisNexis, página 234.

6- La Ley Modelo de Garantías Mobiliarias propone el completo abandono del principio de la especialidad objetiva en el artículo 2° y el de la especialidad subjetiva en el artículo 1º que así están redactados: “Artículo 2. Las garantías mobiliarias a que refiere esta Ley pueden constituirse contractualmente sobre uno o varios bienes muebles específicos, sobre categorías genéricas de bienes muebles, o sobre la totalidad de los bienes muebles del deudor garante, ya sean estos presentes o futuros, corporales o incorporales, susceptibles de la valoración pecuniaria al momento de la constitución o posteriormente, con el fin de garantizar el cumplimiento de una o varias obligaciones, presentes o futuras sin importar la forma de la operación o quien sea el titular de la propiedad. Cuando a una garantía mobiliaria se le dé publicidad de conformidad con esta Ley, el acreedor garantizado tendrá el derecho preferente a ser pagado con el producto de la venta de los bienes gravados”. Y el “Artículo 1. La presente Ley Modelo Interamericana sobre Garantías Mobiliarias (en lo sucesivo la “Ley”) tiene por objeto regular garantías mobiliarias para garantizar obligaciones de toda naturaleza, presentes o futuras, determinadas o determinables…”.

6 – A “contrario sensu” de lo sostenido en el Art. 1º: “Un Estado podrá declarar que esta Ley no se aplica a ciertos tipos de bienes muebles que expresamente indiquen en el presente texto”.

7 – Según los documentos de la anterior conferencia: “La Delegación de Estados Unidos también solicitó el posible estudio paralelo de registros de títulos, incluyendo títulos de bienes inmuebles y otros tipos de propiedad. Este estudio tomaría ventaja del conocimiento y diálogo para la celebración de instrumentos internacionales bajo el tema dos de la agenda y exploraría la posibilidad de extender los conceptos de registro electrónico más allá de los bienes muebles”.

8 – Debe llamarnos la atención lo que surge en sentido contrario del reciente informe (agosto de 2016) que a pedido del gobierno argentino produjo el denominado “Grupo Banco Mundial”, (Corporación Financiera Internacional / Banco Mundial). En el “Diagnóstico: Sistema de Garantías Mobiliarias República Argentina”, luego de analizar el derecho vigente en nuestro país, propone diversas modificaciones al derecho de fondo y a los sistemas registrales de garantías mobiliarias para, con el argumento de facilitar a las Pequeñas y Medianas Empresas el acceso a la financiación de capitales, otorgar mayores ventajas a los financistas, tanto desde lo legal como desde lo instrumental, eliminando o morigerando normas del derecho protectorio y controles estatales en las registraciones.

9- “La mayor modificación en este punto que importaría un cambio sustancial, estaría referida al modo suficiente cuando se trata de la adquisición, constitución, modificación, transmisión y extinción de derechos reales sobre cosas registrables. En un primer momento, la Comisión pensó en actualizar y tecnificar el sistema, sobre el criterio de sustituir la tradición posesoria por la inscripción registral como modo suficiente para los bienes registrables y abandonar la milenaria teoría del título y el modo del sistema romano puro como pilar del sistema transmisivo entre vivos de los derechos reales que se ejercen por la posesión…”.  FUNDAMENTOS DEL ANTEPROYECTO DE CÓDIGO CIVIL Y COMERCIAL DE LA NACIÓN.

10- “Sin embargo, a pedido de escribanos y registradores, con invocación de la falta de preparación de los registros para tal modificación, el Anteproyecto mantiene el sistema vigente en el cual la inscripción constitutiva solamente se incluye como excepción para la adquisición, transmisión, etcétera, de ciertos objetos (por ejemplo, automotores), mas no para todas las cosas cuyo dominio es registrable, especialmente los inmuebles para los cuales mantiene la tradición posesoria como modo suficiente”. FUNDAMENTOS DEL ANTEPROYECTO DE CÓDIGO CIVIL Y COMERCIAL DE LA NACIÓN.

11- La actividad fedataria y profesional del notariado no se vería en absoluto menguada por cuanto en el nuevo Código no se abandona el requisito sacramental de la escritura pública en la trasmisión de inmuebles, y la forma, más que al modo de adquirir el dominio, refiere al título, por cuanto éste es el que queda plasmado en el rito elegido por el legislador y no la posesión que es un acto material. Los efectos del acto administrativo de registración serán o no constitutivos solo por imposición legal y no por las formas que el legislador imponga para instrumentar el negocio causal. Adviértase que se ha introducido en el nuevo Código la necesidad de la escritura pública para instrumentar la donación de muebles registrables (artículo 1.552), lo que importa un cambio significativo en la forma de instrumentarse la transferencia de dominio de los automotores cuando el negocio causal es gratuito y sin embargo en nada afecta el cambio formal a los efectos constitutivos de la inscripción registral. En otros términos, el sistema constitutivo reemplaza a la tradición como modo, o requisito del modo, de adquirir el dominio, teniendo la virtud de superar ampliamente en la práctica el conocimiento que la comunidad pueda tener sobre el dominio por parte de alguien sobre alguna cosa por los hechos materiales de la posesión, muchas veces difíciles de advertir, por un acto administrativo publicitado de tal modo que cualquiera pueda acceder a su conocimiento pleno.

12- La experiencia de más de medio siglo del sistema de registración de los automotores ha agregado a esto, además, un acceso directo, sin mediaciones, a todo el universo de usuarios. La inmediatez, la celeridad, la economía en plazos y recursos lo ha transformado en el más popular de los sistemas registrales y los efectos de la registración son el clásico ejemplo de sistema constitutivo. No se advierte cuál puede ser la “necesidad de la población” de mantener el sistema declarativo para los inmuebles.

  1. – Esta declaración, no obstante su rutinario agregado en las escrituras públicas traslativas de dominio, es de ningún efecto según el artículo 1924 del Código Civil y Comercial y es, contrariamente, la que sigue el sistema francés, “el Código de Napoleón recogió una costumbre que había convertido la tradición en mera ficción, al suplirla por meras declaraciones efectuadas en cláusulas de los contratos. Pareció a sus autores más práctico eliminar la ficción admitiendo que la propiedad se transmitía por la sola convención, descartando el requisito de la tradición”. MUSTO, NÉSTOR JORGE. Derechos Reales. Rubinzal-Culzoni, 1989, Santa Fe. Página 202.

Sin embargo, para el nuevo Código Civil y Comercial la tradición no se suple, con relación a terceros, por la mera declaración del que tenga que darla a quien la recibe, o de éste de recibirla (artículo 1.924).

  1. – Basta para que esto ocurra que, simplemente, se elimine el tercer párrafo del artículo 1.892 del Código Civil y Comercial y se adopte un criterio equivalente al del artículo 1° del Decreto Ley 6.582/58, o del 2° de la Ley 20.378.
  2. – Un ejemplo es el de la Ley 20.378 de Regulación del Régimen Jurídico de la Propiedad de los Equinos de Sangre Pura de Carrera que en cinco sencillos artículos resuelve todo el sistema y en el artículo 1°, con la misma simpleza postula las bases de organización del Registro y sus efectos. “Artículo 1° – La inscripción de animales equinos de sangre pura de carrera en los registros genealógicos reconocidos por el Ministerio de Agricultura y Ganadería acredita su origen, calidad, como ejemplares de pedigree y la propiedad a favor del titular. Se considerarán como tales registros genealógicos los actualmente existentes, los cuales deberán ajustar su organización y funcionamiento a las condiciones que establezca el Poder Ejecutivo nacional, que los controlará a través del Ministerio de Agricultura y Ganadería, así como a los que, de acuerdo con dichas condiciones se reconozcan en el futuro”.
  3. 16 – “La registración de los automotores no podría, creemos, ser transferida en tanto manifestación del ejercicio de la función administrativa, ni a la CABA ni a las provincias; ello por el carácter constitutivo de esa registración (cf. art. 1° del régimen legal del automotor). AMESTOY, GUSTAVO. Procedimiento Administrativo en Materia Registral, página 1.148.

17 – AMESTOY, GUSTAVO. Procedimiento Administrativo en Materia Registral, página 1.149.

18 – El Régimen Jurídico del Automotor solo con la registración de los caballos de carrera, Ley 20.378, comparte esta característica, pero, por las particularidades de su objeto, con impacto social muy distinto. La Ley 20.378 REGULACIÓN DEL RÉGIMEN JURÍDICO DE LA PROPIEDAD DE LOS EQUINOS DE SANGRE PURA DE CARRERA establece en el primer párrafo del artículo 2°: “la transmisión del dominio de los animales a que se refiere el artículo anterior solo se perfeccionará entre las partes y respecto de terceros mediante la inscripción de los

respectivos actos de los registros genealógicos”.

19 – La titularidad dominial sólo se adquiere a través de la pertinente inscripción registral, la cual es constitutiva. Es decir, que no reviste calidad de dueño el adquirente del automotor si la operación no ha sido registrada: “Perrín, Jorge Luis y otros v. Ministerio del Interior Policía Federal Argentina y otros/sumario”. Cámara Nacional Civil, sala D, 3/9/1991.

20 – ARTÍCULO 1º.- “La transmisión del dominio de los automotores deberá formalizarse por instrumento público

o privado y sólo producirá efectos entre las partes y con relación a terceros desde la fecha de su inscripción en el Registro Nacional de la Propiedad del Automotor”.

21 – ARTÍCULO 6º.- “Será obligatoria la inscripción del dominio en el Registro Nacional de la Propiedad del Automotor, de todos los automotores comprendidos en el artículo anterior, de acuerdo con las normas que al efecto se dicten…”.

22 – ARTÍCULO 5º.- “A los efectos del presente Registro serán considerados automotores los siguientes vehículos:

automóviles, camiones, inclusive los llamados tractores para semirremolque, camionetas, rurales, jeeps, furgones de reparto, ómnibus, microómnibus y colectivos, sus respectivos remolques y acoplados, todos ellos aun cuando no estuvieran carrozados, las maquinarias agrícolas incluidas tractores, cosechadoras, grúas, maquinarias viales y todas aquellas que se autopropulsen. El Poder Ejecutivo podrá disponer, por vía de reglamentación, la inclusión de otros vehículos automotores en el régimen establecido”.

23 – La inclusión de los motovehículos (palabra inexistente en lengua castellana y creada por la norma para incorporar en el concepto a “los ciclomotores, motocicletas, motocarros -motocargas y motofurgones -, motonetas, triciclos y cuatriciclos con motor”) por vía de Resolución mereció la tacha de inconstitucional por parte de la doctrina. Al respecto puede verse la opinión de Domingo A. Viale y Luis Moisset de Espanés: “Motovehículos. Registro. (La Resolución 586 de la Secretaría de Justicia. Inconstitucionalidad. La potestad reglamentaria del Poder Ejecutivo” en MOISSET de ESPANÉS. Automotores y Motovehículos. Dominio. Zavalía

Editor, 1992, Buenos Aires, páginas 97 a 105.

24 – La Ley 24.673 sancionada el 17 julio de 1996 y promulgada de hecho el 13 de agosto de 1996, de un

solo artículo dispositivo, modifica el 5° del Régimen Jurídico del Automotor que queda redactado del modo

actualmente vigente.

25 – La Disposición D.N. Nº 948/97, la Dirección Nacional de Registros de la Propiedad del Automotor las ha clasificado del siguiente modo: a) según su tipo: 00 Tractor, 01 Cosechadora, 02 Pulverizadora, 03 Sembradora, 04 Fumigadora, 05 Enfardadora, 06 Rotoenfardadora, 07 Pavimentadora,08 Aplanadora, 09 Pala Mecánica, 10 Grúa, 11 Excavadora, 12 Carretón, 13 Motoniveladora, 14 Cargadora, 15 Mototrailla, 16 MáquinaCompactadora, 17 Máquina para Tratamiento de Suelo, 18 Autoelevador, 19 Motovehículo con dispositivo en enganche, 20 Otros; b) según la afectación de su uso: 0 oficial, 1 privado, 2 público; c) según su destino: 0 agrícola, 1 vial, 3 industrial

26 – Resolución del Ministerio de Justicia 17/97: “Artículo 1º. Considérese incluida en la nómina contenida en el artículo 5º del Decreto-Ley Nº 6.582/58, ratificado por Ley 14.467 (t.o. Decreto Nº 4.560/73) y sus modificatorias, a la maquinaria industrial que se autopropulse”.

27 – Decreto-Ley Nº 15.348/46 (t.o. Decreto Nº 897/95).

28 – COMADIRA, JULIO RODOLFO; MONTI, LAURA (Colaboradora). Procedimientos Administrativos. Ley Nacional

de Procedimientos Administrativos Anotada y Comentada. La Ley S.A.E. e I. Tomo I. 1ª Edición, 2002, 2ª Reimpresión, 2007, Buenos Aires, página 182. Cassagne lo define en igual sentido diferenciándose al señalar a la función materialmente administrativa y con efectos individuales y directos hacia terceros. CASSAGNE, JUAN CARLOS: El acto administrativo. Teoría y Régimen Jurídico. La Ley, 1ª Edición, 2012, Buenos Aires, página 23.

29 – DAVID ANDRÉS HALPERÍN en la obra colectiva dirigida por TAWIL, GUIDO SANTIAGO. Acto Administrativo. Abeledo Perrot, 1ª Edición, 2014, Ciudad Autónoma de Buenos Aires, Capítulo 49, El Acto Administrativo de Registro, página 902.

  • – “…En los Registros Seccionales se inscribirá el dominio de los automotores, sus modificaciones, su extinción, sus transmisiones y gravámenes. También se anotarán en ellos los embargos y otras medidas cautelares, las denuncias de robo o hurto y demás actos que prevea este cuerpo legal o su reglamentación”.
  • Decreto 644/89: “Artículo 1°. Los Registros Seccionales estarán a cargo de un Encargado de Registro quien deberá ejercer sus funciones en la forma y modo que lo establezca la Ley, sus reglamentaciones y las normas que al efecto disponga la DIRECCIÓN NACIONAL DE LOS REGISTROS NACIONALES DE LA PROPIEDAD DEL AUTOMOTOR Y DE CRÉDITOS PRENDARIOS. Los encargados serán designados por el MINISTERIO DE JUSTICIA y removidos por éste, previo sumario y por las causales establecidas taxativamente en la Ley (artículo 40 del Decreto 6582/58 ratificado por la Ley N° 14467 – texto ordenado por Decreto N° 4560/73)”.

Dictamen 314/2002 – Tomo: 242, Página: 446 Procuración del Tesoro de la Nación: “En el caso que nos ocupa, el vínculo que une a los Encargados de Registros con el Estado es de naturaleza contractual -al igual que la descripta anteriormente-, sin perjuicio de que toda su actividad, como así también sus derechos y deberes se encuentren regulados por la ley y sus reglamentos.

Concordante con ello, el artículo 1º del Decreto Nº 644/89, según su similar Nº 2265/94 prescribe, en lo que al caso interesa, que: …Los Encargados de Registro son funcionarios públicos dependientes de la DIRECCIÓN NACIONAL DE LOS REGISTROS NACIONALES DE LA PROPIEDAD DEL AUTOMOTOR Y DE CRÉDITO PRENDARIO y deberán ejercer sus funciones registrales en la forma y modo que lo establezca la ley, sus reglamentaciones y las normas que al efecto disponga la referida Dirección Nacional (…) La función del Encargado de Registro no constituye relación de empleo, y esta se regirá en los aspectos orgánicos funcionales por las normas del presente Decreto y las que al efecto dicte el MINISTERIO DE JUSTICIA y la DIRECCIÓN NACIONAL DE LOS REGISTROS NACIONALES DE LA PROPIEDAD DEL AUTOMOTOR Y DE CRÉDITOS”.

32 – Así se expresa en la Exposición de motivos del Decreto-Ley 6582/58: “Que el régimen vigente con relación a la propiedad de los vehículos automotores no es adecuado para una eficaz protección de los derechos de los titulares, por cuanto los métodos actuales para la transmisión y prueba del dominio de aquellos facilitan la actividad delictuosa y restan seguridad a las transacciones; … Que …las estadísticas policiales demuestran

que el incremento observado en la comisión de hurtos de automotores encuentra su causa principal en la facilidad que, para la comercialización de los vehículos robados se ofrece a los delincuentes; Que, en consecuencia, resulta conveniente la  creación de un sistema que, al mismo tiempo que rodee de

mayores garantías las operaciones comerciales en las que se involucren automotores, permita una fácil individualización de éstos y de sus respectivos propietarios; Que, al efecto es necesario reformar el régimen consagrado en nuestra legislación vigente, sustituyendo la prueba de la propiedad mediante la posesión, por la exigencia de la inscripción en un registro, con el correlativo otorgamiento de un título de propiedad …” .

33 – “En particular, casi todos los elementos del acto están alcanzados por el Derecho Administrativo, pero a veces el objeto esta reglado parcialmente por el Derecho Privado. En tal caso es un acto administrativo regido básicamente por el Derecho Público -consecuente además con el criterio subjetivo que seguimos- y

solo parcialmente por el Derecho Privado, en su caso, Derecho Civil, Comercial o Laboral”. BALBÍN, CARLOS F., 2010. Tratado de Derecho Administrativo. La Ley, 2010, Buenos Aires. T° III páginas 33 y 34.

34 – BIANCHI, ALBERTO: “Anotaciones sobre conceptos de Administración Pública y función administrativa”, ED. 129-267.

35 – “ARTÍCULO 1º. La transmisión del dominio de los automotores deberá formalizarse por instrumento público

o privado y solo producirá efectos entre las partes y con relación a terceros desde la fecha de su inscripción en el Registro Nacional de la Propiedad del Automotor. RÉGIMEN JURÍDICO DEL AUTOMOTOR.

36 – Artículos 13 a 22 del Decreto 335/88. Reglamentario del Régimen Jurídico del Automotor.

37 – Artículo 7° del Régimen Jurídico del Automotor.

38 – Artículo 12 del Decreto 335/88.

39 – Artículos 12 y 13 del Decreto 335/88.

40 – “Salvo que se tratara de una cuestión novedosa, no contemplada normativamente o que hubiere duda sobre el encuadre, o que se afectaren derechos de las personas (lo cual supone la existencia previa de derecho) podría justificarse el dictamen jurídico (art. 7°, inc., d de la Ley 19.549). Mas no dentro de dicho tráfico administrativo común ordinario de cualquier repartición administrativa, puesto que, de lo

contrario, la misma actuación burocrática resultaría afectada por las remisiones constantes a las áreas de asesoramiento legal” (Del voto del juez Coviello, cons. 2). Buján, Coviello, Licht.10.143/06 “Aliment AR S.A. -Inc. Med. EN-AFIP DGI-Resol 418/05 (RMCI) (AG 49) s/ Dirección General Impositiva”. Sentencia del 7/04/06, CÁMARA NACIONAL EN LO CONTENCIOSO ADMINISTRATIVO FEDERAL Sala I.

41 – Artículo 13 del Decreto 335/88: “…En oportunidad de resolver o despachar una petición los Encargados de Registro deberán analizar la situación jurídica registral del automotor y de su titular, la naturaleza del acto cuya inscripción o anotación se peticiona, las peticiones que gocen de prioridad y los actos presentados con posterioridad al trámite que se encuentra a resolución o despacho, cuando se trate de actos que de acuerdo a las disposiciones legales vigentes producen efectos registrales mediante su sola presentación, todo ello,

de acuerdo a las normas que rigen la materia y a las disposiciones o instrucciones que imparta la Dirección Nacional…”.

42 – Se trata de un recurso judicial directo que excluye toda otra vía, desplazando al régimen general recursivo. Fallos: 317:387.

43 – Fallos: 321:3024 y Fallos: 313:542.

44 – AMESTOY, GUSTAVO. La función administrativa registral en materia de automotores y sus principales derivaciones (la aplicación concreta de un régimen legal).

45 – INFOAUTO se denominó el primer sistema informático diseñado para la actividad registral del automotor.

46 – La competencia territorial de los Registros Seccionales está dada por el lugar de radicación de los automotores y el Régimen Jurídico del Automotor establece en el artículo 11: “El automotor tendrá como lugar de radicación, para todos sus efectos, el del domicilio del titular de dominio o el de su guarda habitual. Tales circunstancias se acreditarán mediante los recaudos que establezca la autoridad de aplicación”.  Y el siguiente: “El cambio de radicación de un automotor podrá ser solicitado “a) por el titular de su dominio, presentando a tal efecto el título del automotor; b) Por el adquirente radicado en otra jurisdicción que justifique su interés mediante la presentación de la solicitud tipo de inscripción a que hace referencia el artículo 14. En caso de existir medidas judiciales precautorias sobre el automotor cuyo cambio de radicación se gestiona, sólo podrá autorizarse dicho cambio cuando obre en poder del Registro la correspondiente orden judicial. El cambio de radicación no se tendrá por realizado, hasta tanto no se reciba en el Registro Seccional de la nueva radicación el legajo del automotor donde consten sus antecedentes, inscripciones y anotaciones, el que deberá ser remitido dentro de los TRES (3) días de peticionado. La remisión del legajo podrá ser suplida por otros medios de información, cuando los adelantos técnicos así lo permitan. En tal caso, por vía reglamentaria se determinarán dichos medios de información, y la oportunidad en que se tendrá por realizado el cambio de radicación”.

47 – Registros Seccionales de la Propiedad del Automotor, entendidos éstos en el sentido que originariamente se les asignara en el año 1958 o, con las posteriores ampliaciones de competencia material del Automotor con Competencia Exclusiva en Motovehículos, y Registros Seccionales de la Propiedad del Automotor con Competencia Exclusiva en Maquinaria Agrícola, Vial e Industrial Autopropulsable y de Créditos Prendarios.

48 – Artículo 10 del R.J.A.

49 – El Sistema Integrado de Anotaciones Personales que administra la Dirección Nacional a través de la Coordinación de Sistemas Informáticos, incorpora a su base de datos las inhibiciones y toda otra medida de carácter personal, sus levantamientos, modificaciones o reinscripciones, de las que se hubiere tomado razón tanto en los Registros Seccionales de la Propiedad del Automotor como en la Dirección Nacional y las que dispone la Agencia Federal de Ingresos Públicos y las comunica en forma automática a las bases de datos del Sistema Integrado de Anotaciones Personales propias de cada Registro Seccional habilitado para operar

con el Sistema.

50 – A ese fin se celebraron convenios con los Colegios de Escribanos de la Capital Federal y de las provincias de Buenos Aires, Chubut, Corrientes, La Pampa, Chaco, Mendoza, Misiones, Neuquén, Santa Cruz, Santa Fe y Santiago del Estero.

51 – Siguiendo este mandato el Decreto 335/88 previó en el artículo 9°. A los efectos del cambio de radicación de un automotor, la remisión del legajo al Registro de la nueva radicación podrá ser suplida por:

  1. El envío de un certificado donde consten los datos del automotor y sus condiciones de dominio. La Dirección Nacional establecerá las características y requisitos que deberá contener el aludido certificado. El cambio de radicación se tendrá por operado al recepcionarse el certificado en el Registro de la nueva radicación.
  2. Cuando los adelantos técnicos lo permitan, por la incorporación del alta del dominio del automotor al banco de datos del computador del Registro de la nueva radicación, a través de la comunicación que al efecto reciba u obtenga del banco de datos de la Dirección Nacional o del Registro de la anterior radicación. La Dirección Nacional establecerá los requisitos que deberán cumplirse para el empleo de este procedimiento. El cambio de radicación se tendrá por operado al producirse la aludida incorporación del alta del dominio.

Cuando la Dirección Nacional cuente con un sistema de computación que permita obtener información actualizada desde todos o algunos Registros Seccionales conectados a aquél, el referido Organismo podrá disponer que en su sede central, en terminales habilitadas al efecto o en determinados Registros Seccionales se anoten medidas cautelares y denuncias de robo o hurto, se expidan certificados e informes de dominio y se otorgue documentación registral respecto de automotores radicados en Registros Seccionales conectados con el sistema de cómputos o se tome razón de anotaciones personales, las que sólo tendrán efecto en estos Registros.

52 – La Agencia Federal de Ingresos Públicos interactúa con los Registros de la Propiedad de Automotor a través de la Dirección General de Aduanas, produciendo controles cruzados sobre el ingreso de automotores importados y a través de la Dirección General Impositiva a la que se le proporciona información

y de la que se reciben anotaciones personales en el Sistema Integrado de Anotaciones Personales.

53 – Los encargados de Registro son sujetos obligados ante la Unidad de Información Financiera (artículo 20 de la Ley 25.246, debiendo actuar en el marco de la Disposición DN 446/2013).

54- En el mes de marzo de 2014, La Dirección Nacional del Registro Automotor puso en marcha el SITE. El SITE (Sistema de Trámites Electrónicos), consiste en una plataforma web desde la cual el usuario puede realizar la precarga de sus datos para todos los trámites comprendidos en el proyecto. Pretende que la precarga de datos sea sencilla, rápida y segura y permita reducir el tiempo de espera en los Registros Seccionales.

El SITE está disponible actualmente para la precarga de los siguientes trámites: Certificado de Dominio, Informe de Estado de Dominio, Informe Histórico de Titularidad y Estado de Dominio, Informe Nominal, Informe de Estado de Dominio Urgente, Duplicado de Cédula, Renovación de Cédula por Vencimiento, Expedición de Cédula Adicional, Expedición de Cédula para Autorizado a Conducir, Revocación de Cédula para Autorizado a Conducir, Duplicado de Cédula para Autorizado a Conducir, Reposición de Placa Metálica. Denuncia de Venta.

55-“… El geométrico aumento de documentación escrita lleva inexorablemente a que el acto escrito en papel vaya pasando a la categoría de acto denominado “de primera generación,” que a veces el derecho tiende a sustituir y eliminar. Es posible que el registro electrónico de datos y de actos administrativos, no haga desaparecer totalmente al soporte en papel; ya se vio que las computadoras no han disminuido sino incrementado su uso en la oficina o la utilización personal y tener un libro en la computadora no suple tenerlo en las manos. Tampoco lo contrario es verdadero, por cierto: ya no alcanza tampoco con tener el papel impreso, es indispensable también contar con el soporte electrónico (digital, etc., o como se lo llame en el futuro) para un manejo más eficiente de la información. Nos parece que el acto que consta en una base de datos o server, sitio web, o lo que fuere en el futuro, cumple con el requisito de la forma escrita, aunque no esté también asentado en papel. Quedarán pendientes diversas cuestiones: que sea susceptible de prueba y pueda acreditarse que es fidedigno, la firma, el tema de la notificación o publicación según el caso —sobre lo que volvemos en este mismo cap.— pero son cuestiones técnicas que el tiempo habrá de resolver rápidamente. La economía de tiempo que se produce, en tanto se adopten los debidos recaudos de fidelidad, sobrepasa con creces cualquier dificultad material que se pueda puntualizar como obstáculo y que el avance tecnológico ciertamente habrá de superar”. GORDILLO, Agustín. Tratado de Derecho Administrativo. T° 3. Fundación de Derecho Administrativo. 10ª. Edición. 2011. Buenos Aires, página X-8.

56-“COMADIRA, JULIO RODOLFO, MONTI, LAURA (Colaboradora): Procedimientos Administrativos. Ley Nacional de Procedimientos Administrativos Anotada y Comentada. La Ley S.A.E. e I., Tomo I., 1ª Edición 2002, 2ª Reimpresión 2007, Buenos Aires, página 210.

57 – Ley 25.506, ARTÍCULO 48. Implementación. El Estado nacional, dentro de las jurisdicciones y entidades comprendidas en el artículo 8º de la Ley 24.156, promoverá el uso masivo de la firma digital de tal forma que posibilite el trámite de los expedientes por vías simultáneas, búsquedas automáticas de la información y seguimiento y control por parte del interesado, propendiendo a la progresiva despapelización. En un plazo máximo de 5 (cinco) años contados a partir de la entrada en vigencia de la presente ley, se aplicará la tecnología de firma digital a la totalidad de las leyes, decretos, decisiones administrativas, resoluciones y sentencias emanados de las jurisdicciones y entidades comprendidas en el artículo 8º de la Ley 24.156.

58 – CASSAGNE, JUAN CARLOS: El acto administrativo Teoría y Régimen Jurídico. La Ley, 1ª Edición 2012,

Buenos Aires, página 239.

59 – CORTELEZI, JUAN AGUSTÍN. En la obra colectiva dirigida por TAWIL, GUIDO SANTIAGO: Acto  Administrativo. Abeledo Perrot. 1ª Edición 2014, Ciudad Autónoma de Buenos Aires, Capítulo 50. EL ACTO ADMINISTRATIVO DIGITAL, página 927.

60 – Compárense las afirmaciones de este autor con las disposiciones que en el derecho privado aporta ahora del nuevo Código Civil y Comercial, cuando en el artículo

262 entre las formas de manifestarse la voluntad refiere, entre otras a “signos inequívocos”, o el art. 286

cuando al referirse a la forma escrita establece que ésta “Puede hacerse constar en cualquier soporte, siempre que su contenido sea representado con texto inteligible, aunque su lectura exija medios técnicos”, y la recepción de la firma digital en el artículo 288.

61 – PABLO FARRÉS ensaya un definición de firma digital, la que pretende superadora de la formulada en la ley, por considerarla facilitadora de la comprensión de la herramienta técnica y sus efectos jurídicos la transcribimos: “Se entiende que la firma digital constituye, para nuestro derecho, un procedimiento administrativo, conformado por administrados/usuarios, Estado y, eventualmente, entes públicos no estatales, que con la finalidad de encriptar documentos electrónicos, mediante el uso de algoritmos

de llaves asimétricas, sostienen una estructura de registro público de claves, montada sobre la base de protocolos que procuren mantener suficiente seguridad, a través de los cuales tanto la identidad de los administrados/usuarios –remitentes y receptores- titulares de las claves, como la integralidad del documento, pueden gozar de un grado de seguridad e intangibilidad, tanto de procesos como de soportes, que permita sostener jurídicamente la presunción de su validez, salvo prueba en contrario, de su verosimilitud”. FARRÉS, PABLO. Firma Digital. Ley 25.506 Comentada y Concordada. LexisNexis, 1ª. Edición, 2005, Buenos Aires, página 73.

62 – Solo basta poner en práctica lo que ya preveía la Ley 24.624 cuando disponía: “La documentación financiera, la de personal y la de control de la Administración Pública Nacional, como también la administrativa y comercial que se incorpore a sus Archivos, podrán ser archivados y conservados en soporte electrónico u óptico indeleble, cualquiera sea el soporte primario en que estén redactados y construidos, utilizando medios de memorización de datos, cuya tecnología conlleve la modificación irreversible de su estado físico y garantice su estabilidad, perdurabilidad, inmutabilidad e inalterabilidad, asegurando la fidelidad, uniformidad e integridad de la información que constituye la base de la registración.

Los documentos redactados en primera generación en soporte electrónico u óptico indeleble, y los reproducidos en soporte electrónico u óptico indeleble a partir de originales de primera generación en cualquier otro soporte, serán considerados originales y poseerán, como consecuencia de ello, pleno valor probatorio, en los términos del artículo 995 y concordantes del Código Civil.

Los originales redactados o producidos en primera generación en cualquier soporte una vez reproducidos, siguiendo el procedimiento previsto en este artículo, perderán su valor jurídico y podrán ser destruidos o dárseles el destino que la autoridad competente determine, procediéndose previamente a su anulación.

La documentación de propiedad de terceros podrá ser destruida luego de transcurrido el plazo que fije la reglamentación transcurrido el mismo sin que se haya reclamado su devolución o conservación, caducará todo derecho a objetar el procedimiento al cual fuera sometida y el destino posterior dado a la misma.

La eliminación de los documentos podrá ser practicada por cualquier procedimiento que asegure su destrucción total o parcial, con la intervención y supervisión de los funcionarios autorizados.

Facúltese al JEFE DE GABINETE DE MINISTROS a reglamentar las disposiciones del presente artículo”. 63 – Posición adoptada por JORGE ALTERINI. Puede

verse al respecto la conferencia de dicho jurista en el

Colegio Público de Abogados de la Capital Federal.

Clase 16, Módulo III TT, sobre Actualización del Código

Civil y Comercial.

  • – “Cabe recordar que el acto jurídico es aquel que crea, modifica o extingue situaciones jurídicas. En el ámbito del Derecho Privado cuando cualquier sujeto pretende hacer valer el acto jurídico debe alegar y probar su existencia y validez.

En cambio, en el marco del Derecho Público no es así porque la ley dice que el acto administrativo es en principio legítimo (artículo 12, LPA) y, por lo tanto, el Estado o quien intente valerse de él, no debe probar su validez porque el acto es por sí mismo válido. Cabe sin embargo aclarar que esta presunción es iuris tantum, es decir que cede y se rompe si se probase la invalidez del acto o ésta es claramente manifiesta. De modo que se impone al destinatario del acto, la carga de probar la ilegitimidad de éste, si pretende su exclusión del mundo jurídico”. BALBÍN, CARLOS F.: Tratado de Derecho Administrativo. La Ley, 2010, Buenos Aires, T° III, página 89.

  • – “El derecho de propiedad es el principal derecho civil luego del derecho a la vida. Tal privilegio no está referido a un segundo lugar en importancia, o al primero después que queda asegurada la vida, sino a una cuestión histórica de desarrollo del sistema económico, político y cultural, y que puede resumirse en la sociedad capitalista.

Con lo dicho no se puede referir que el derecho de propiedad está por encima de otros derechos, o que tiene mayor jerarquía. Simplemente nuestra sociedad actual y su organización descansa sobre la protección del derecho a la propiedad. De manera que su desprotección atentaría contra la propia organización social…”. PERRONE, NICOLÁS M. “Artículo 21. “Derecho a la Propiedad Privada”, en la obra colectiva “La Convención Americana de Derechos Humanos y su Proyección en el Derecho Argentino”. Director: ALONSO REGUEIRA, ENRIQUE M. Editorial La Ley, Buenos Aires, 2013, página 358.


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