Doctrina, Revista 111

La República en funcionamiento. A propósito del Fallo Scarpa

Hace pocos meses, el 22 de agosto de 2019, la Corte Suprema de Justicia confirmó la ilegitimidad de la Disposición DN 183/2015 por la que se ordenaba el cese en las funciones de una interventora y su reemplazo por otro interventor invocando “razones de servicio”. Autos: “Scarpa Raquel Adriana Teresa c/Estado Nacional – Ministerio de Justicia y Derechos Humanos s/amparo ley 16.986”.

Tengo para mí que más allá de los conceptos que trataremos, en lo posible, de desentrañar, en el centro de la materia en análisis campean principios de profundo arraigo republicano. Puede advertirse, a lo largo del dictamen de la Procuradora que la Corte hace suyo, cómo la republicana división de poderes se manifiesta con su sistema de frenos y contrapesos al controlar el Poder Judicial la legalidad y examinar la razonabilidad de los actos del Ejecutivo. Las decisiones del Ejecutivo y el control que sobre éstas puede y debe realizar el Judicial es la sustancia del asunto, y con ello se pone de manifiesto cómo debe funcionar la república y su resultado esperable, el estado de derecho De los tres poderes o funciones en las que se divide la actividad estatal corresponden a la legislativa y a la ejecutiva actuar según criterios de legalidad y también, según los casos, por razones de oportunidad. En cambio, las facultades propias del Poder Judicial solo pueden ser ejercidas según el principio de legalidad. Sin embargo, es este último, en última instancia, quien dirá qué es el Derecho. Todos recordamos la afirmación del juez Marshal, el juez debe actuar de acuerdo con la Constitución, y qué es la Constitución, lo que el juez dice que es. No obstante, existe una zona de reserva, dentro de las funciones de los otros poderes, que son de su exclusiva incumbencia.

Es allí donde se pone de manifiesto la discrecionalidad. Pero la discrecionalidad, como veremos, no está exenta del control judicial. Corresponde el control judicial tanto de los elementos reglados del acto discrecional, como el examen de su razonabilidad. En el alcance del control judicial de los actos del Ejecutivo y el modo en que éste puede ejercer sus facultades discrecionales, entran en tensión principios republicanos. El voto en disidencia del Dr. Rosenkrantz postula que el control judicial sobre el acto “debe ceñirse estrictamente a sus requisitos formales” (apartado 6° de su voto) y que los fundamentos que se dieren para sustentar el acto administrativo (motivación) quedan fuera del alcance del control judicial porque, de lo contrario, se estarían invadiendo potestades propias del otro poder. En otras palabras, bastaría que se exprese alguna fundamentación, cualquiera, para que le estuviera vedado al judicial actuar. Reafirma Rosenkrantz el concepto sobre el final de su voto “la disposición administrativa impugnada contiene fundamentos que la sustentan, lo que impide afirmar que nos encontramos en presencia de un acto de autoridad pública dictado con arbitrariedad manifiesta”. La Dra. Highton de Nolasco limita su disidencia a la postura de la Procuradora sobre necesidad de mayor justificación del acto cuando se ejercen facultades discrecionales. Detengámonos un poco para ir, una vez más, a las palabras. En qué funda la DNRPA la Disposición 183/2015, en “razones de servicio”, confieso que toda vez que en un acto administrativo, y esto ocurre hasta el hartazgo, se funda en dichas razones, recuerdo lo convincente que me pareció hace ya muchas décadas, la definición de Ulpiano de la Justicia, aquello de “dar a cada uno lo suyo”, hasta que un compañero más despierto se preguntó en alta voz “¿y qué es lo suyo de cada uno?”, y vuelta a empezar. Señores lo que justamente importa aquí es conocer precisamente cuáles son esas “razones de servicio”. Es que la motivación (requisito formal indispensable para la validez del acto administrativo, art. 7°, inc. “e” de la Ley 19.549) importa la exteriorización de la causa y la finalidad del acto. Y volviendo a los principios republicanos es uno de los modos en que debe cumplirse el mandato de publicar los actos de gobierno, entre otras cosas, para que los afectados por estos puedan recurrir a la justicia en defensa de sus derechos y la justicia contar con los elementos necesarios para ejercer el control. Del dictamen de la procuradora, Laura Monti, que la Corte hace suyo y transforma en doctrina, pueden extraerse las siguientes conclusiones: Que todos los actos administrativos deben cumplir el requisito de la motivación (art. 7°, inciso “e” de la Ley 19.549)

Que con la invocación de “razones de servicio”, sin explicar cuáles son estas razones no puede considerarse cumplido el recaudo legal. Que el control del Poder Judicial sobre el Ejecutivo no se limita al de legalidad, esto es al cumplimiento de las normas dentro de la actividad reglada. Que dicho control también se extiende a los actos discrecionales, y en un doble carácter. Por un lado, sobre el cumplimiento de la legalidad en los elementos reglados de la decisión (artículos 7° y 8° de la Ley 19.549); y, por otro, al examen de su razonabilidad. Es quizá este último punto el que despierta mi mayor interés, y aunque diera lugar a los votos en disidencia de Rosenkrantz y Highton de Nolasco, ya es abundante, reiterada y concordante la doctrina de la Corte al respecto. A pesar de ello existe una tendencia en la administración, cualquiera sea la pertenencia política del funcionario de turno, a suponer, o querer suponer, que la discrecionalidad es un “bill” de indemnidad para disponer libremente de los derechos de los ciudadanos sin dar razones de sus causas o sus finalidades. Y abundan así los actos administrativos inmotivados o, lo que es lo mismo, fundados en “razones de servicio”, sin que se intente siquiera esbozar cuáles son esas razones. Sostiene Laura Monti en el último párrafo de su dictamen, que la Corte hace suyo: “Tal omisión -se refiere a la falta de motivación- torna ilegítimo el acto, sin que quepa dispensar la ausencia de razones que lo justifiquen por el hecho de haberse ejercido facultades discrecionales, las que, por el contrario, imponen una observancia mayor de la debida motivación …”. Existe una estrecha relación entre la motivación de actos administrativos y la procedencia reglada o discrecional de su naturaleza. Así como no admite discusión y resulta sencillo para el Poder Judicial realizar el control de legalidad dentro de la actividad reglada del Ejecutivo, más laxa es la obligación del órgano ejecutivo de motivar un acto dictado dentro de esa esfera, porque la causa y la finalidad de dichos actos devienen del estricto cumplimiento de los recaudos formales establecidos en las normas. En un anterior trabajo, “Acto Administrativo y Modos de Adquirir del Dominio”, recientemente publicado en el número 1 de Cuadernos FUCER, dábamos como ejemplo las que son de nuestra competencia en la mayoría de los actos administrativos de registración. Señalábamos entonces que, siendo la actividad registral materia de nuestra competencia, típicamente reglada, la motivación aparece sencillamente expuesta en los documentos que expedimos y en la hoja de registro, en los que damos cuenta de la calificación que motivó la inscripción.

Por el contrario, cuando el órgano del ejecutivo, actuando dentro de su competencia, tiene potestades discrecionales, esto es puede elegir válidamente entre dos o más soluciones que el ordenamiento jurídico repute válidas, es tanto más amplia su facultad para decidir como más fuerte su obligación de fundamentar los motivos que llevaron a optar por la solución elegida, desechando las restantes. Así, por ejemplo, cuando el Ejecutivo en un proceso de selección para ejercer una función elige no al primero, sino al segundo o al tercero, si las normas lo facultan para ello, ha obrado dentro de sus facultades discrecionales, pero esto lo obliga a dar mayores explicaciones que cuando es la norma la que le impone el obrar. ¿Cuál es la causa y el fin, el por qué y el para qué?, en definitiva, ¿cuál es la motivación del acto administrativo discrecional, para evitar que derive en arbitrario? En rigor, el tema poco o nada tiene de novedoso, abundan los fallos en los que podemos abrevar y la doctrina de los autores se ha ocupado también largamente. Lo que llama la atención es el modo recurrente en que la administración toma el camino equivocado y en este caso la novedad se circunscribe a que estos arraigados conceptos la Corte acaba de aplicarlos con relación a funciones de nuestro ámbito de actuación. A la lectura de dichos fallos invito al lector y también a la de publicaciones enjundiosas que hacen ocioso que yo me extienda más de lo necesario. La misma Procuradora ha colaborado con Julio R. Comadira en su ya clásico “Procedimientos Administrativos Ley Nacional Procedimientos Administrativos Anotada y Comentada”, publicada por Editorial La Ley; también es digno de destacar el tratamiento que al tema da Carlos Balbín en su muy actualizado Tratado de Derecho Administrativo, publicado por la misma editorial; solo por citar un par, invito enfáticamente a su lectura. Dice María Angélica Gelli: “La república clásica se define como un sistema político de división y control del poder”. Son también atributos de su naturaleza la publicidad de los actos de gobierno, la responsabilidad de los funcionarios, la periodicidad de los cargos electivos, la igualdad ante la ley. Pero también puede sostenerse que el concepto de “república” no se agota en el sistema político o en la forma de gobierno, porque impone virtudes a los ciudadanos y, más aún, a quienes ejercemos alguna función pública, como lo es la de actuar con razonabilidad, tanto más cuanta más libertad de acción tengamos en ese ejercicio.

 

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