Tema 15 - Administrativos - SAS - Servicio Andaluz de Salud - Volumen 1

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Understanding Public Administration

Concept and Role of Public Administration

• Public administration is defined as a fundamental principle in democratic states, characterized by the separation of powers into legislative, executive, and judicial branches.

• The legislative power creates laws; the executive directs state administration at various levels; the judicial power enforces legal judgments.

Characteristics of Public Administration

• Key features include being instrumental and service-oriented towards citizens while maintaining objectivity and neutrality.

• Article 149.1.18 of the Constitution grants exclusive authority to the State for establishing legal frameworks governing public administrations.

Legal Framework Governing Public Administrations

Law 40/2015 Overview

• Law 40/2015 outlines the legal regime for public sector operations, detailing its objectives and general principles.

Scope of Application

• The law applies to various entities including:

• General State Administration

• Autonomous community administrations

• Local government entities

Principles Guiding Administrative Actions

General Principles (Article 3)

• This article establishes that public administrations must serve general interests with objectivity while adhering to principles such as effectiveness, hierarchy, decentralization, and coordination.

Specific Principles Include:

• Effective service delivery to citizens with clarity and proximity in administrative actions.

• Emphasis on transparency, rationalization of procedures, good faith in management practices, accountability in public governance.

Interoperability and Data Protection

Legal Framework of Public Administration

Role of Public Administration

• The public administration operates under the legal framework established by laws and regulations to achieve its objectives, as outlined in Article 2.

• All state authorities must act in accordance with the Constitution and laws, respecting their assigned powers and purposes.

Principles Governing Public Administration

Principle of Legality

• Article 1.1 of the Constitution establishes Spain as a social and democratic state governed by law, emphasizing values like freedom, justice, equality, and political pluralism.

• Citizens and public authorities are subject to the Constitution and legal order per Article 9.1; this includes serving general interests objectively according to principles such as effectiveness and coordination (Article 103.1).

Hierarchical Normative Principle

• The principle of legality ensures that all public power is exercised within the bounds set by law; it prohibits arbitrary actions by authorities (Article 106.1).

• The hierarchical organization of legal norms prevents lower-ranking rules from contradicting higher ones, ensuring clarity in applicability (Article 9.3).

Administrative Discretion: Scope and Limits

Understanding Discretionary Power

• Administrative discretion refers to the subjective judgment allowed by law; however, it cannot be absolute—certain elements must always be regulated.

• Discretion should pertain only to specific aspects of an administrative act rather than encompassing all elements involved.

Elements Regulated by Law

• Key elements that must be defined include: existence of power, extent of authority, competence for action, and intended purpose—all aimed at achieving a public goal.

• The preamble of previous legislation emphasizes that discretion cannot apply universally but must focus on particular components relevant to each case.

Discretionary Powers in Administrative Law

Understanding Discretionary Powers

• The exercise of discretionary powers involves a combination of legally defined elements and subjective assessments by the administration, highlighting the complexity of governance.

• Human governance cannot be reduced to mere automatic rule-following; it necessitates nuanced evaluations of specific circumstances and opportunities in public power execution.

• Certain powers, such as regulatory or organizational authority, inherently require discretion due to their nature involving choices among alternative solutions.

Legal Concepts and Indeterminacy

• It is crucial to differentiate between discretionary powers and the application of indeterminate legal concepts, which reference realities without precise boundaries.

• Indeterminate legal concepts do not allow for strict quantification but aim to define specific situations within a broader context, such as "good faith" or "just price."

• The essence of indeterminate legal concepts lies in their ability to provide a singular just solution per case despite their vague definitions.

Discretion vs. Indeterminate Concepts

• Unlike indeterminate concepts that yield one just solution, discretionary power allows for multiple equally just outcomes based on extra-legal criteria evaluated subjectively by the administration.

• In cases involving indeterminate concepts, judges can review administrative interpretations; however, they cannot scrutinize discretionary decisions if made within legal limits.

Judicial Oversight and Control Mechanisms

• Many instances traditionally viewed as exercises of discretionary power are actually applications of simple indeterminate legal concepts where only one just solution exists.

• Concepts like urgency or public order do not permit multiple just solutions; instead, they guide administrations toward a single correct application under judicial oversight.

Evolution of Judicial Control Over Discretion

• The evolution of judicial control over administrative discretion began with Spain's 1956 Contencioso Administrativo jurisdiction law, marking significant changes in how discretion is monitored.

• Current techniques for controlling discretionary powers include examining regulated elements within acts and ensuring adherence to established principles governing factual determinations.

Desviación de Poder en la Jurisdicción Contencioso Administrativa

Concepto y Definición

• La desviación de poder se define en el artículo 702, segundo párrafo, de la Ley 29/1998 sobre jurisdicción contencioso-administrativa, como el uso de potestades administrativas para fines distintos a los establecidos por la norma.

• No es necesario que la desviación busque un fin privado; basta con que el objetivo, aunque sea público, sea diferente al previsto por la norma que otorga dicha potestad.

Control de Legalidad

• El control de legalidad se centra en verificar si se cumple el fin específico señalado por la norma habilitante mediante criterios jurídicos estrictos, no morales.

• Se enfatiza que toda potestad discrecional debe basarse en hechos concretos y verificables; no puede ser objeto del arbitrio administrativo decidir si un hecho ha ocurrido o no.

Principios Generales del Derecho

• Los principios generales del derecho son fundamentales para controlar la discrecionalidad administrativa. La administración está sujeta a estos principios y no actúa como un poder soberano.

• Aunque las decisiones pueden originarse en potestades discrecionales, estas deben alinearse con los principios generales del derecho aplicables al caso concreto.

Importancia de los Principios Generales

• La ley que otorga poderes a la administración no elimina su obligación de adherirse al orden jurídico completo; los principios generales siguen siendo vinculantes.