Ustavnosodni nadzor zakonodajnega referenduma

Autor: Žuber, Bruna
Přispěvatelé: Kaučič, Igor
Jazyk: slovinština
Rok vydání: 2017
Předmět:
Popis: Vse sodobne demokracije temeljijo na načelu ljudske suverenosti. Znotraj demokratične države se ljudska suverenost lahko izvršuje posredno ali neposredno. Med različnimi oblikami neposredne demokracije, ki jih zagotavlja slovenska Ustava, ima zagotovo največjo pravno in politično težo referendum, saj volivcem omogoča, da odločajo o najpomembnejših družbenih vprašanjih in s tem omejujejo moč parlamenta. Z zakonodajnim referendumom volivci dokončno odločijo o zakonu, ki ga je sprejelo zakonodajno telo. Zaradi pomena in kompleksnosti instituta zakonodajnega referenduma se z njim povezujejo kar tri na ustavni ravni varovane pravice, in sicer: pravica pobude volivcem za razpis referenduma, pravica zahtevati razpis referenduma in pravica glasovati na referendumu. Učinkovito varstvo referendumskih pravic je pogoj za pošteno izvedbo referendumskega postopka in legitimno referendumsko odločitev. Zaradi zagotovitve učinkovitega varstva posamezne referendumske pravice je nujni element vsake referendumske ureditve ustavnosodni nadzor zakonodajnega referenduma. Ustavnosodni nadzor zakonodajnega referenduma je zbirno poimenovanje za vse oblike pravnega nadzora, ki ga izvršujejo ustavna ali druga sodišča oziroma organi, ki so v posamezni državi pristojni za nadzor nad ustavnostjo predpisov, postopkov in odločitev v povezavi z institutom zakonodajnega referenduma. Ustavnosodni nadzor zakonodajnega referenduma je glede na vsebino nadzora abstraktni in konkretni. Abstraktni ustavnosodni nadzor zakonodajnega referenduma obsega presojo ustavnosti in zakonitosti vseh predpisov, ki urejajo zakonodajni referendum in v praksi predstavljajo podlago za izvedbo konkretnega referenduma. Konkretni nadzor zakonodajnega referenduma je nadzor ustavnosti in zakonitosti aktov, referendumskega postopka, dejanj in odločitev pristojnih organov, izdanih v povezavi s posameznim zakonodajnim referendumom o določenem zakonu. Za abstraktni ustavnosodni nadzor zakonodajnega referenduma velja vse, kar velja za postopek ocene ustavnosti in zakonitosti predpisov pred ustavnimi sodišči, le da je predmet presoje predpis, ki ureja zakonodajni referendum. Konkretni ustavnosodni nadzor zakonodajnega referenduma je zaradi velikega števila oblik ustavnosodnega nadzora zakonodajnega referenduma in različnih učinkov tega nadzora bistveno kompleksnejši od abstraktnega nadzora. Stičišče vseh oblik ustavnosodnega nadzora zakonodajnega referenduma predstavljajo temeljna načela, ki jih je potrebno upoštevati tako pri normativnem urejanju kot pri izvajanju ustavnosodnega nadzora zakonodajnega referenduma v praksi. Med temeljna načela ustavnosodnega nadzora zakonodajnega referenduma uvrščamo splošna in procesna načela ustavnosodnega nadzora zakonodajnega referenduma in materialno načelo ustavne demokracije. V širšem pomenu imajo vse oblike ustavnosodnega nadzora zakonodajnega referenduma en skupen cilj, in sicer okrepiti zaupanje volivcev v pošteno izvedbo referenduma. V ožjem pomenu je ciljev ustavnosodnega nadzora zakonodajnega referenduma več, in sicer zagotoviti učinkovito izvrševanje referendumskih pravic, preprečiti razpis referenduma, če za to niso izpolnjeni vsi pogoji, skrbeti za spoštovanje pravil referendumskega postopka in zagotoviti verodostojnost in poštenost referendumskega izida. Ustavnosodni nadzor zakonodajnega referenduma v Sloveniji se glede na čas izvaja kot predhodni nadzor, kot nadzor postopka izvedbe referenduma in kot naknadni nadzor. V okviru predhodnega nadzora se varujeta pravica pobude volivcem za razpis referenduma in pravica zahtevati razpis referenduma, v okviru nadzora postopka izvedbe referenduma pa zlasti pravica glasovati na referendumu. V okvir varstva pravice zahtevati razpis zakonodajnega referenduma uvrščamo tudi presojo dopustnosti referendumskega odločanja. Razlog za takšno uvrstitev je, da je pravica zahtevati razpis referenduma že v izhodišču močno omejena zaradi ustavno določenih prepovedi in omejitev referendumskega odločanja. Vse oblike ustavnosodnega nadzora referenduma v Sloveniji so v doktorski disertaciji podrobno obravnavane, podani pa so tudi predlogi rešitev, ki predstavljajo de lege ferenda podlago za ustreznejšo ureditev ustavnosodnega nadzora. Ti predlogi so bili oblikovani upoštevajoč normativno ureditev in prakso uporabe konkretnega ustavnosodnega nadzora referenduma v nekaterih tujih državah. Pomanjkljiva, mestoma nedorečena in nedosledna ureditev ustavnosodnega nadzora zakonodajnega referenduma v Sloveniji je namreč ena največjih slabosti naše referendumske ureditve in hkrati tudi razlog za nenehne težave Državnega zbora in Ustavnega sodišča pri vsakokratni izvedbi zakonodajnega referenduma. Ureditev ustavnosodnega nadzora zakonodajnega referenduma na zakonski ravni bi bilo zato potrebno temeljito spremeniti, pri čemer pa je bistvenega pomena, da Ustava zakonodajalcu nudi veliko prostora pri zakonskem urejanju te materije. Zakonodajalec bo že zaradi uskladitve s spremembo Ustave iz leta 2013 moral spreminjati nekatere določbe ZRLI, pri tem pa bo imel možnost spremeniti in izboljšati tudi ureditev ustavnosodnega nadzora zakonodajnega referenduma. All contemporary democracies are based on the principle of popular sovereignty. Within a democratic state, popular sovereignty can be exercised directly or indirectly. Among the various forms of direct democracy provided by the Slovenian Constitution, the referendum certainly has the highest legal and political weight as it allows the voters to decide on the most important social issues, thereby limiting the power of the parliament. By means of a legislative referendum, voters give final decision on an act adopted by the legislature. Due to its importance and complexity, the institute of the legislative referendum is associated with as many as three rights protected at the constitutional level, namely the right of initiative of the voters to call a referendum, the right to demand the calling of a referendum and the right to vote in a referendum. Effective protection of referendum rights is a prerequisite for a fair conduct of the referendum process and a legitimate referendum decision. In order to ensure the effective protection of individual referendum rights, the constitutional review of the legislative referendum is a necessary element of any referendum arrangement. The constitutional review of the legislative referendum is a collective denomination for all forms of legal review carried out by the constitutional or other courts or bodies which are competent in each country for the review of the constitutionality of regulations, procedures and decisions in connection with the institute of the legislative referendum. In terms of the content of the review, the constitutional review of the legislative referendum is abstract and concrete. The abstract constitutional review of the legislative referendum comprises the assessment of the constitutionality and legality of all the regulations governing the legislative referendum and in practice constitute the basis for the implementation of a concrete referendum. The concrete review of the legislative referendum is the review of the constitutionality and legality of the acts, referendum process, actions and decisions of the competent authorities, issued in connection with a particular legislative referendum on a particular act. Everything that applies to the process of assessing the constitutionality and legality of the regulations in constitutional courts applies also to the abstract constitutional review, with the exception that the subject matter of the assessment is the regulation governing the legislative referendum. Due to the large number of forms of constitutional review of the legislative referendum and the various effects of this review, the concrete constitutional review of the legislative referendum is far more complex than abstract review. The interface of all forms of constitutional review of the legislative referendum is the fundamental principles which need to be taken into account both in the normative regulation and in the implementation of the constitutional review of the legislative referendum in practice. The fundamental principles of constitutional review of the legislative referendum thus include the general and procedural principles of the constitutional review of the legislative referendum and the material principle of constitutional democracy. In the broadest sense, all forms of constitutional review of the legislative referendum have a common goal, namely to strengthen the confidence of voters in the fair conduct of the referendum. In the narrower sense, there are several objectives of the constitutional review of the legislative referendum, namely to ensure the effective exercise of referendum rights, to prevent the referendum from being called if all the conditions have not been met, to ensure compliance with the rules of the referendum process and to ensure the credibility and fairness of the referendum outcome. The constitutional review of the legislative referendum in Slovenia, in consideration of the implementation periods, is carried out as preliminary review, as review of the process during the implementation of the referendum and as a follow-up review. Within the framework of the preliminary review, the right of initiative of the of the voters to call for a referendum and the right to demand the calling of a referendum are protected within the context of review during the referendum, in particular, the right to vote in a referendum is protected. Within the framework of the protection of the right to demand the calling of a legislative referendum, we also include the assessment of the admissibility of referendum decision-making. The reason for this inclusion is that the right to demand the calling of a referendum is already very limited at the outset due to the constitutionally established prohibitions and restrictions of referendum decision-making. All forms of constitutional review of the referendum in Slovenia are discussed in detail in the doctoral dissertation and proposals for solutions, which represent the de lege ferenda basis for a more appropriate regulation of constitutional review, are given. These proposals have been designed taking into account the regulatory framework and the practice of applying concrete constitutional review of the referendum in some foreign countries. The deficient, in certain instances vague and inconsistent regulation of the constitutional review of the legislative referendum in Slovenia is one of the major weaknesses in our referendum arrangement and, at the same time, it has been a reason for the constant problems of the National Assembly and the Constitutional Court in the course of every legislative referendum. The arrangement of the constitutional review of the legislative referendum at the legislative level should therefore be fundamentally changed, while it is essential that the Constitution gives the legislator plenty of room to regulate this matter. The legislator will have to alter some of the provisions of the Referendum and Popular Initiative Act in order to comply with the amendment of the Constitution of 2013, while also having the opportunity to amend and improve the regulation of the constitutional review of the legislative referendum.
Databáze: OpenAIRE
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