LA DIVISIÓN DE PODERES EN COLOMBIA: UNA ILUSIÓN

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138 comentarios en LA DIVISIÓN DE PODERES EN COLOMBIA: UNA ILUSIÓN

El poder hoy se concentra en el Ejecutivo; si se mantiene esta situación, no habría más estado de derecho. Un análisis de la democracia colombiana durante la pandemia.

Por José Gregorio Hernández Galindo 

DEMOCRACIA EN COLOMBIA

La concentración de poder en las democracias es evidente. En Estados Unidos Donald Trump parece tener el poder absoluto, dentro de unos límites que él mismo interpreta.

En Colombia a finales del siglo pasado, el excanciller Alfredo Vásquez Carrizosa expresó esta preocupación. Uno de sus libros lleva por título “El poder presidencial en Colombia: la crisis permanente del Derecho Constitucional”.

El expresidente Carlos Lleras Restrepo impulsó la reforma constitucional de 1968, considerando necesario fortalecer el poder de la rama Ejecutiva. Aunque la Constitución de 1991 prohibió la reelección de los presidentes, en 2004 Álvaro Uribe logró modificar la norma e hizo posible su segundo periodo en la presidencia.

Posteriormente mediante Sentencia C-141/10, la Corte Constitucional declaró inexequible la ley que convocaba un referendo para la segunda reelección de Uribe.

Juan Manuel Santos consiguió que el Congreso expidiera el Acto Legislativo 02 de 2015, hoy en vigor, que la prohibió de manera absoluta, todo esto durante su segundo periodo en la presidencia. No le gustaba la reelección, pero antes de provocar su derogación, se hizo reelegir.

Con o sin reelección, el poder presidencial en nuestro sistema es muy grande y el equilibrio entre los órganos y las ramas del poder público es una teoría que exponemos los profesores en las universidades y que sostiene la Corte, y no una realidad.

El ciudadano del común, los medios de comunicación e incluso la Casa de Nariño consideran que “el presidente es el que manda”, aunque los abogados sabemos que el mandatario no es el que manda, sino el que ejecuta un mandato.

El mejor ejemplo es el del Fiscal General, quien se ofrece en San Andrés a llevar mensajes de la población al presidente de la República, sin detenerse a pensar que, por su misma función, debe ser por completo independiente al Ejecutivo.

Así mismo, el Fiscal se proclama titular del segundo cargo de importancia en la República, en el entendido de que el primero es el del presidente, y actúa como si no existiera la distribución y separación de funciones.

El sistema plasmado en nuestra Constitución no es monárquico. Aunque el presidente de la República es el jefe del Estado, ello no significa que tenga un poder absoluto. Esa jefatura se manifiesta en el ejercicio de sus funciones como representante internacional del Estado, aunque está sujeto al control político del Congreso y al jurídico de la Corte Constitucional. A pesar de tener un gran poder, el presidente de la República no es el único que decide.

El poder público es uno solo. En una democracia participativa y pluralista, el titular de la soberanía no es un monarca, sino el pueblo. Hay tres ramas del poder: Legislativa, Ejecutiva, y Judicial. Además de ellas, la Constitución prevé órganos autónomos para el ejercicio de otras funciones estatales. Unas y otros, aunque colaboran entre ellas para lograr los objetivos del Estado, son independientes y hay separación en el ejercicio de sus funciones.

Recomendamos: La democracia colombiana en tiempos de coronavirus

GOBERNAR EN UNA PANDEMIA

La pandemia acentuó el poder presidencial y la inutilidad de los controles en varios países.

En estos momentos estamos obligados a una pedagogía sobre el particular, para evitar que esa situación continúe después de la crisis sanitaria, con el pretexto de la recuperación de la economía y de la reinvención de la que nos vienen hablando.

Vemos con preocupación la concentración del poder en cabeza del Ejecutivo, con tímidas decisiones de la Corte Constitucional sobre los decretos legislativos dictados en dos prolongados estados de emergencia, y con un Congreso que prefirió no ejercer el control político ordinario que prevé el artículo 114 de la Constitución, ni el específico previsto en el artículo 215 para el estado de excepción, ni tampoco expedir leyes acerca de la pandemia como se lo indicaba la propia Constitución.

La corrupción, la violencia contra los líderes sociales y los defensores de los derechos humanos, la pérdida de poder del Derecho, el incumplimiento de la Constitución (como sucedió con el ingreso de tropas extranjeras al país sin pasar por la decisión previa del Senado, ni por el concepto del Consejo de Estado) y la hipocresía oficial (que proclama normas y no las acata) aumentaron durante la pandemia.

Ejemplos de lo anterior son la modificación por decreto ordinario de una norma con fuerza de ley que fijaba las fechas en que no se cobraría el IVA, o el dictamen de un decreto legislativo que aliviara la situación de los usuarios en materia de servicios públicos de acueducto, alcantarillado y aseo, pero sin la firma de dos ministros, uno de ellos el de Salud, para después solicitar a la Corte que lo declarase inexequible.

Los ciudadanos solo pueden estar confundidos e inseguros ante este escenario. Hay una indeseable prevalencia del poder sobre las reglas a las que debería estar sometido y un implacable deterioro de los fundamentos jurídicos del Estado social y democrático de Derecho.

Leer: El estado de emergencia y los derechos humanos

ESTADO SOCIAL DE DERECHO

La idea de que todo es válido si produce resultados económicos o sociales toma fuerza, sin importar los derechos, las normas que integran el ordenamiento jurídico, los precedentes jurisprudenciales o las garantías procesales que se vulneren.

Esta idea se consideraba superada en el Estado de Derecho. Pero son muchos los sectores que estiman y proclaman que la mejor forma de contribuir a superar la crisis consiste en no debatir, resistir, oponerse, preguntar, escrutar, vigilar, o controlar.

Un comportamiento pasivo se expande. Dicho comportamiento consiste en aceptar todo sin reaccionar, sin entender, sin captar el significado, y sin reflexionar acerca del impacto que la indolencia y la tesis del “todo vale” tendrán en el futuro.

No cabe duda del peligro de semejantes criterios para la supervivencia de la democracia y la preservación de un Estado garantista y respetuoso de los derechos. En la medida en que los tribunales y órganos de control permitan la elusión de las reglas, se sientan precedentes y se debilita el ordenamiento jurídico.

La Corte Constitucional debería revisar su tendencia a establecer obstáculos formalistas para el legítimo ejercicio del derecho de todo ciudadano de acudir, en defensa de la Carta Política, a la acción pública de inconstitucionalidad.

Para ello, la ley (Decreto 2067 de 1991, art. 2) estableció unos requisitos sobre la presentación de las demandas, a los que infortunadamente algunos magistrados han añadido rebuscadas exigencias formales: pertinencia, suficiencia, especificidad y quién sabe qué más se les ocurra en el futuro.

Esas sencillas exigencias están al alcance de todos los graduados de Harvard, pero dejan por fuera a la mayoría de los ciudadanos y convierten dicha acción en un recurso extraordinario de casación

También se debería evitar otra mala costumbre de la Corte Constitucional: declarar que una norma viola la Constitución mediante un fallo de inexequibilidad diferido en el tiempo (seis meses, un año o dos legislaturas).

Esto significa que la institución encargada de guardar la integridad y supremacía de la Carta Política otorga permiso para que se siga violando la Constitución con normas que, pese a la sentencia, siguen en vigor por un tiempo caprichosamente señalado.

El Estado Social de Derecho es propio de la democracia y no es establecido como formulación teórica de principios vacíos, sino como postulado indispensable para construir una convivencia a partir de la justicia, la igualdad, la libertad, la solidaridad y el respeto a la dignidad de las personas y a los derechos individuales y colectivos.

Dicho postulado cuenta con un sistema de frenos y contrapesos entre quienes ejercen el poder. Además, los gobernantes, gobernados, legisladores, jueces y órganos de control están sujetos a los principios, reglas y preceptos establecidos por órganos competentes, verificados por tribunales imparciales y acatados de buena fe por los ciudadanos.

Si sigue la obstrucción del control ciudadano en Colombia, si la independencia entre las ramas del poder sigue siendo irreal y la juridicidad debe ser sacrificada en aras de la eficacia tendremos un Gobierno omnipotente luego de la crisis sanitaria, y de esta manera perderemos 210 años de vida republicana.

De una sociedad civilizada y libre pasaremos a ser un simple rebaño que marcha a ciegas, sin controvertir ni discutir nada, dirigido por lemas y proclamas oficiales repetidas hasta el cansancio por los medios de comunicación.

————————-

JOSÉ GREGORIO HERNÁNDEZ GALINDO Cofundador de Razón Pública, abogado de la Universidad Javeriana, especialista en Derecho Público, exmagistrado auxiliar de la Corte Suprema de Justicia, magistrado y expresidente de la Corte Constitucional, dirige las revistas Jurisdictio y Elementos de juicio, es autor de múltiples publicaciones.

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