El procedimiento administrativo
El procedimiento administrativo está sujeto a una serie de normas básicas que la Administración y sus funcionarios están obligados a respetar. Ellas son:
– Gratuidad
El procedimiento administrativo es gratuito. Tampoco es necesario (aunque siempre resulte conveniente) contratar un abogado para reclamar ante la administración.
– Debido proceso
El principio del debido proceso deriva de la garantía constitucional de «defensa en juicio» y comprende:
(1) Derecho a ser oído: Se refiere a la posibilidad del particular de poder articular sus defensas antes de que la administración decida una cuestión que pueda afectarlo.
(2) Derecho a ofrecer y producir pruebas: Derecho a ofrecer la prueba que se estime conveniente y a que, si fuera útil y pertinente, se produzca.
(3) El derecho a una decisión fundada: En la decisión administrativa que resuelva la solicitud o el reclamo del particular se deben tratar todos las solicitudes efectuadas por el particular, y referirse (para compartir o rebatir) a los principales argumentos vertidos por el interesado. Los actos de los funcionarios públicos no pueden ser ni arbitrarios ni caprichosos, deben detallar expresamente las razones que los motivan. Aspecto este esencial en un sistema republicano de gobierno, que permite el control de los actos públicos por parte de la ciudadanía.
– Impulsión de oficio
Sin perjuicio de que el procedimiento haya sido iniciado por el particular o por la administración, es un deber de la administración impulsar su desarrollo para llegar a su resolución. Esto incluye la obligación de la administración de obtener las pruebas, certificaciones, informes o averiguación de los hechos relevantes para decidir.
– Informalismo a favor del administrado
El administrado se encuentra excusado de la observancia de exigencias formales “no esenciales” que puedan ser cumplidas posteriormente. Al no ser obligatorio el patrocinio letrado en los procedimientos administrativos, resulta imprescindible que no se someta al particular a formas rígidas. Por ello, ante la presentación de un ciudadano, la administración deberá estar a lo que éste expresa o solicita más allá de las denominaciones y los términos que emplee en su presentación.
Como consecuencia de ello, las únicas formalidades cuyo cumplimiento puede exigírsele al particular son:
a) que formule una petición clara,,
b) que lo que solicita se enmarque en un procedimiento administrativo y
c) que el interesado se identifique.
La Administración Pública debe ser imparcial.
Al igual que los jueces, los funcionarios públicos de la administración deben ser absolutamente imparciales y deben abstenerse de intervenir en el trámite si tienen algún interés en él. En caso contrario, el ciudadano puede pedir por escrito que los aparten de la cuestión indicando y probando las causas que se aleguen a dicho fin.
Contradicción: Cuando en el procedimiento administrativo existen intereses contrapuestos la administración está obligada a asegurar la participación igualitaria de los interesados en el trámite. Esto quiere decir que debe escucharse a ambas partes por igual y permitir que confronten sus argumentos entre sí, previo a tomar una decisión.
Legalidad: Existe la obligación de la administración de sujetar su accionar a las normas vigentes.
Celeridad, economía, sencillez y eficacia. La ley establece que los procedimientos administrativos deben ser rápidos, sencillos y eficaces.
En el supuesto de que la Administración haya resuelto en forma desfavorable, el particular cuenta con las siguientes herramientas legales:
Los recursos administrativos
Frente a una decisión de la administración que lo perjudica o afecta, el particular siempre tiene la posibilidad de exigir en forma gratuita -y sin que sea indispensable la participación de un abogado- que la cuestión se vuelva a examinar (por parte del mismo funcionario que dictó el acto o de su superior) a través de un recurso administrativo. Frente a su presentación, la Administración tiene la obligación de dar una respuesta expresa a los recursos que se le presenten.
La Administración tiene la obligación de dar el trámite del recurso administrativo que corresponda a cualquier presentación del interesado, de la que surja claramente la intención de impugnar un acto administrativo, más allá de su errónea calificación.
TIPOS DE RECURSOS
Existen fundamentalmente dos clases de recursos que se diferencian -básicamente por el funcionario que habrá de resolverlos.
a) Recurso de reconsideración:
Se presenta ante el mismo funcionario que dictó el acto que se cuestiona y está dirigido a que revea la situación. Procede contra cualquier tipo de decisión. Cuando el acto que se impugna es de los que resuelven el fondo del tema, si el funcionario que dictó el acto no le da la razón con el recurso de reconsideración, él mismo tiene la obligación de elevarlo a su superior más alto para que lo revise otra vez. Este recurso debe ser presentado dentro de los diez (10) días hábiles administrativos de notificado el acto que quiero impugnar.
b) Recurso jerárquico o «de alzada»:
Se presenta ante el funcionario que dictó el acto, pero éste deberá remitirlo a su más alto superior que será el que examine y resuelva la cuestión. Sólo puede presentarse contra las resoluciones que resuelven el fondo de la cuestión o que impiden continuar con su trámite. Debe ser interpuesto dentro de los quince (15) días hábiles administrativos de notificado el acto.
Los plazos.
Los plazos son obligatorios, y el principio del informalismo a favor del administrado no incluye la posibilidad de incumplirlos. Sin embargo, ante la falta de constancia de la fecha de notificación o de interposición del recurso, debe considerárselo presentado en tiempo y forma.
Los recursos deben ser presentados por escrito. Se debe indicar claramente quién es el que recurre y se debe constituir un domicilio en la ciudad.
Debe fundamentárselo indicando las razones por las que se estima que el acto dictado debe dejarse sin efecto. (por ejemplo si se lo considera irrazonable, carente de fundamentos, sí se basa en hechos que no son ciertos o correctos, si es contrario a alguna ley o reglamento, si se dictó sin respetar el derecho de defensa, o si lo hizo un funcionario que no era el competente o cualquier otra cuestión que afecte la razonabilidad de lo resuelto).
Los fundamentos pueden ampliarse hasta el momento en que se resuelva el recurso.
Posibilidad de acceder a la instancia judicial: para ello será necesario haber «agotado la vía administrativa» previamente (lo cual no resulta posible en caso de no haber deducido en tiempo los recursos administrativos). Para agotar la vía administrativa, basta, en general, con la presentación del recurso jerárquico, sin que sea obligatorio haber deducido previamente el recurso de reconsideración.
La articulación del recurso no suspende la ejecución de la resolución recurrida. Ello significa que habrá que cumplirla aún cuando esté pendiente la decisión final. Sin embargo, se puede pedir la suspensión del acto hasta tanto se resuelva el recurso argumentando, que su cumplimiento produciría un daño de dificultosa reparación ulterior. Tal pedido se puede hacer en el mismo recurso o en una presentación judicial. Esta última sí requiere patrocinio letrado,
Situaciones que pueden darse durante el trámite de un procedimiento administrativo y sugerencias para sortearlas:
– Que el expediente no esté disponible para tomar vista
El interesado (así como su apoderado o abogado) tiene derecho a ver el expediente (esto se denomina en la jerga administrativa «tomar vista’) durante todo su trámite. Por ello, el funcionario tiene la obligación de dejarle ver las actuaciones ante su pedido verbal y en la oficina que se encuentren. También se debe permitir -a costa del interesado- extraer todas las fotocopias que se necesiten e, incluso, se puede pedir que un funcionario certifique su autenticidad.
En caso de que ello no ocurra es aconsejable «solicitar vista del expediente» mediante un sencillo escrito. Ante ese pedido, la administración deberá conceder la vista y fijar un plazo para ello (aunque excepcionalmente podría declararse su reserva mediante resolución fundada)
– Extravío del expediente
En caso que el expediente se encuentre perdido y el reclamo no pueda continuar, deberá ordenarse su reconstrucción con las copias que pueda aportar el interesado y las que obren en las dependencias administrativas que hayan participado en el trámite. Cada oficina que emite un dictamen (jurídico o técnico) guarda una copia que puede pedirse.
– Falta o demora en la resolución
La administración también está obligada a cumplir determinados plazos, por lo que no puede estirar indefinidamente el trámite de las actuaciones cuando se encuentren en condiciones de ser resueltas.
Ante la inacción de la administración, la ley ofrece al particular diferentes cursos de acción, a saber:
· Queja
Procede ante el inmediato superior jerárquico del funcionario al que se le imputa el incumplimiento respecto de los defectos en la tramitación o falta de respeto de plazos legales, siempre que tales plazos, no se refieran a los fijados para la resolución de recursos.
· Pronto despacho
Se trata de la presentación por la cual se solicita expresamente que se resuelva rápidamente la cuestión pendiente. Se trata de un sencillo escrito en el que se debe individualizar el expediente de que se trate y la resolución que está pendiente de dictarse.
· Silencio
La ley establece que el silencio o la ambigüedad de la administración frente a pretensiones que requieran de ella un pronunciamiento concreto, se interpretarán como negativa.
Para que se configure el silencio es necesario, una vez vencido el plazo para resolver sin que la administración lo haya hecho, presentar un pedido de pronto despacho. Transcurridos treinta (30) días (hábiles administrativos) de esta petición sin una decisión concreta del estado, el particular puede considerar que se le ha denegado su petición y decidir continuar su reclamo por otras vías.
El silencio es una figura establecida en beneficio del particular y no implica negar su derecho a recibir de la administración una respuesta concreta a sus peticiones. Es una garantía a favor del ciudadano, que impide que la administración, con su inacción, lo encadene y que le impida proseguir con su cuestionamiento en instancias superiores.
· Amparo por mora
Es el remedio procesal orientado a que un juez ordene al Estado que resuelva un expediente, cuando la autoridad administrativa hubiese dejado vencer los plazos fijados o si hubiese transcurrido un plazo que excediere lo razonable sin que se emita el dictamen, resolución de mero trámite o de fondo que requiera el interesado. Esta herramienta exige el patrocinio letrado.
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