lesson 3. public administrations
TRANSCRIPT
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PUBLIC ADMINISTRATIONS
Gabriel Doménech Pascual
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What is a PublicAdministration?
•
There is no universal, legal defnition• For instance, under art. 1.2 LJ!"
#For the intents and $ur$oses o% this act, $ublicadministrations shall be understood to be"
a& The central state administration.
b& The administrations o% the autonomouscommunities.
c& The entities belonging to local administrations
d& The entities organised under $ublic la' thatare de$endent on or lin(ed to the state,autonomous communities or local entities)
• *ther e+am$les" art. .2 T-LP/ art. .1LG
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T!"s o# PublicAdministrations
T"rritorial
• Democratic legitimac0• road $ublic interests• road $o'ers• hich are the03
– entral tate!dministration
– !dministration o%!utonomous ommunities
– 4unici$alities, Provinces,5slands in the alearic andthe anar0 !rchi$elagos
Non t"rritorial• Democratic legitimac0• $ecifc $ublic
interests• $ecifc $o'ers• hich are the03
– 5nstrumental!dministrations
–
5nde$endent!dministrations
– or$orations under$ublic la'
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PA as a l"$al !"rsons
•
P! have legal $ersonalit0 6e. g. art. 2.2L*F!G7&
• The0 can be holders o% rights andobligations
• 4eaning o% such a legal $ersonalit0" – 5t sim$lifes relationshi$s bet'een P! and
citi8ens
–
P! are liable 'ith all their assets – These relationshi$s are sub9ect to the rule o%
la'
• Legal ca$acit0 –
Private" the0 can eventuall0 act under $rivatela'
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Administrati%" !o&"rs
•
Defnition"Po'er to %orce other $ersons to do or not to do
an0thing, or to im$ose obligations or rights tothem
• Features" – The0 need legal habilitation. h03
– The0 are inalienable, do not e+$ire and cannotbe 'aived 6art. : L-JP&
• T0$es" – Favourable ; non? L?;2>1=&
– Discretionar0 ; non discretionar0
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Administrati%" discr"tion
•
Defnition" The !dministration has some lee'a0 to e+ercising its
$o'er, some room to maneuver, so that it can choosebet'een t'o or more valid alternatives
•
@ Aon discretionar0 $o'er"• The !dministration has no lee'a0 to decide• 5t has to ma(e the decision 'hich has been $rescribed
b0 the la'
• The ourts can revie' 'hether it has made such
decision• h0 has the !dministration been given
discretionar0 administrative $o'er3 – The !dministration is better $laced than the ourts in
order to ma(e some decisions. 5t has more time,e+$ertise and democratic legitimac0 to ma(e some
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Administrati%" discr"tion
•
Problem"Public agents does not al'a0s have the right incentives to
ma(e the best decisions %rom the $ublic interest $oint o%vie'. The0 tend to %avor"
1. Their o'n interests
2. The interests o% their cronies. The interests o% their voters 6median voter&
Coters tend to be #rational ignorants)
• Discretionar0 decisions should be
amenable to 9udicial revie'• ourts have 'orse resources but better incentives thanthe !dministration
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Administrati%" discr"tion
•
o' can ourts revie' discretionar0decisions3 65& – There is no absolute discretion. There are
al'a0s some limits•
For the Parliament• For the !dministration
– There are al'a0s some conditions 'hich havebeen established b0 the la'
–
The use o% indeterminate legal conce$ts b0 thela' does not necessaril0 im$l0 that the!dministration has been given discretion
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Administrati%" discr"tion
•
o' can ourts revie' discretionar0decisions3 655& – The ourts can revie' 'hether the #margin o%
a$$reciation) in inter$reting and a$$l0ing the
la' has been e+ceeded. The sco$e o% thismargin de$ends on several %actors"
• om$le+it0 o% the decisiEn
• Democratic legitimac0
• -is( o% arbitrariness
– Legal $rinci$les• 5nterdiction o% arbitrariness
• Pro$ortionalit0 $rinci$le
• Legal certaint0
• 7ualit0
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'urisdiction(com!"t"nc"
•
Defnition" – The e+tent or sco$e o% an administrative $o'er
• !llocation – Ratione materiae
– Ratione loci
– Ratione potestatis
• Trans%er o% com$etences –
Decentrali8ation – entrali8ation
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'urisdiction(com!"t"nc"
•
Delegation o% com$etences – 7. g. art. 2 L-L
• The delegating !dministration can revo(e the delegation,give orders and instructions, hear a$$eals, etc.
• Coluntar0, as a general rule
• all L-L
– !rt. 1== 7
•
onIicts o% com$etences – onstitutional ourt" arts. H L*T et se.
– !dministrative ourts
– ut some !dministrations have e+ce$tional $o'ers"• us$ension
•
Dissolution, etc.
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Int"r)administrati%" r"lations
•
oo$eration• oordination
• 5nstruments" – *rgani8ational" i. e. consortia 6art. 11: L-JP&, #sectorial
con%erences) 6art. 1 L-JP& – Functional" i. e. agreements 6art. L-JP&, hearings 6art. 1>
L2=;1?::&
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Administrati%" bodi"s
• once$t" – #TendrKn la consideraciEn de Erganos las unidades administrativas a
las ue se les atribu0an %unciones ue tengan e%ectos 9urdicos %rente aterceros, o cu0a actuaciEn tenga carKcter $rece$tivo) 6art. =.1 L-JP&
• T0$es – !dvisor0 ; decision
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Administrati%" bodi"s
•
-elations bet'een administrative bodies – ierarch0 6art. L-JP&. igher bodies can"
• Give orders to lo'er bodies 6art. H L-JP&
• Decide on a$$eals against the decisions o% lo'erbodies
• Delegate 9urisdiction to lo'er bodies, and decide ontheir conIicts
• Punish oBcers 'ho ma(e u$ lo'er bodies %or havingcommitted some non criminal oMences
•
Decide on the rights and duties 6i. e. relocation& o%oBcers 'ho ma(e u$ lo'er bodies
– oordination
• onIicts bet'een administrative bodies
6art. 1 and 11th
!P L-JP&" as a general
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C"ntral Stat" Administration
•
4ost largest, $o'er%ul and com$le+ $anish!dministration
• ! as the model %or the !dministrations o%!utonomous ommunities – 5n order to ease the trans%er o% 9urisdiction and resources
– 5deological grounds
• 5ts volume, in $articular its $eri$heralorgani8ation, has been reduced
• -egulated" – Le0 =>;1??, de 2 de noviembre, del Gobierno 6LG&
– L-JP
– Le0 2;2>1, de 2= de mar8o, de la !cciEn 0 del ervicio7+terior del 7stado
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C"ntral Stat" AdministrationC"ntral Bodi"s* +o%"rnm"nt
•
*ne
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C"ntral Stat" AdministrationC"ntral Bodi"s* &hich do not b"lon$ to
+o%"rnm"nt•
*ne
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C"ntral Stat" Administration
P"ri!h"ral Bodi"s• The ivil Governors 69urisdiction over $rovinces&,
1:
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Th" Administration o#Autonomous Communiti"s
•
reated in the 1?:>Os• T'o $rocedures"
– !rt. 11 and 2nd transitional $rovision 7
– !rt. 1 7
• 1??>Os" amendment o% autonom0 statutes/
harmoni8ation o% 9urisdiction• 2>>>Os" ne' generation o% autonom0 statutes.
ome o% them are amended 'ithout consensus%rom the main $olitical $arties
• T 1;2>1>"
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Th" Administration o#Autonomous Communiti"s
•
reated in the 1?:>Os• T'o $rocedures"
– !rt. 11 and 2nd transitional $rovision 7
– !rt. 1 7
• 1??>Os" amendment o% autonom0 statutes/
harmoni8ation o% 9urisdiction• 2>>>Os" ne' generation o% autonom0 statutes.
ome o% them are amended 'ithout consensus%rom the main $olitical $arties
• T 1;2>1>"
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Th" Administration o#Autonomous Communiti"s
•
Legislative $o'er• 7+ecutive $o'er
• Ao 9udicial $o'er
• Jurisdiction –
The 9urisdiction o% ! is established in the corres$onding ! – Limit" art. 1?.1 7
– 7+clusive 9urisdiction ; hared 9urisdiction ; oncurring 9urisdiction
• The tructure o% the !dministration o% !utonomous
ommunities – The entral tate !dministration as a model
– Peri$heral !dministration" $rovinces ; counties
• Calencian ommunit0" Le0 =;1?:
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Local "ntiti"s
• -egulation" – Le0 ;1?:=, de 2 de abril, de ases de -égimen Local
– Te+to -e%undido de la Le0 de -égimen Local 6-DL :1;1?:H&
– Legislation o% the !utonomous ommunities 6e. g. L:;2>1>,-LC&
• Territorial – 4unici$alities
– Provinces
– 5slands in the anar0 and alearic archi$elagos
• Aon territorial –
ounties 6art. 2 L-L& – 4etro$olitan areas 6art. L-L&
– ommon'ealths 6art. L-L&
– 4inor local entities 6art. = L-L&
– !utonomous !dministrations 6art. := bis L-L&
–
Public cor$orations 6art. := bis L-L& – onsortia 6art. : L-L&
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Munici!aliti"s
•
!rts. 1 and 1> 7" – Their autonom0 is guaranteed b0 the 7
• #asic) local entities
• Territor0" #término munici$al)
•
Po$ulation" individuals registered in the 4unici$al-egister o% 5nhabitants 6art. 1H L-L&
• *rgani8ation 6arts. 1? et se. L-L&" – 4a9or
– De$ut0 4a9ors
– it0 ouncil 6councilors are elected b0 universal suMrage& – Governing oard 6i% $o$ulation =.>>>&
– 5n%ormative ommissions 6i% $o$ulation =.>>>&
– !ccounting ommission
– *ther administrative bodies
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Munici!aliti"s
•
Jurisdiction" – 5t is not determined b0 the onstitution
– 5t is determined b0 the tate legislation and !legislation
– Aevertheless, 4unici$alities have to have 9urisdiction on"
• The matters $rovided %or in art. 2=.2 L-L• The0 have to $rovide the $ublic services mentioned in art. 2H L-L
• $ecial regimes" – Large $o$ulation 4unici$alities 6arts. 121 et se. L-L&
– *$en ouncil 6art. 2? L-L&
– euta and 4elilla
– *ther regimes $rovided %or b0 the legislation o% !s
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Pro%inc"s
•
Local entities ; constituencies 6art. 11 7&• !s local entities, Provinces are made u$ o%
4unici$alities
• *rgani8ation 6arts. 1 and se. L-L& – President
– Cice
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Pro%inc"s
•
Jurisdiction – oo$eration 'ith the 4unici$alities – The0 $rovide some social services and manage some in%rastructures
• $ecial regimes" – *ne
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Instrum"ntal Administrations
•
reated b0 other !dministrations in order to$er%orm some $ublic tas(s
• The0 have legal $ersonalit0
• The0 de$end, more or less, on the #$arent
!dministration) – !$$ointments
– 5nstructions
– -emedies
• auses o% their emergence – urrogate o% territorial decentrali8ation
– 7Bcienc0 reasons
– The Iight %rom !dministrative la'
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Instrum"ntal Administrations
•
#*rganismos $Qblicos)" arts. :: et se. L-JP• !utonomous !dministrations 6#*rganismos
!utEnomos)&, arts. ?: et. se. L-JP – on%ederaciones idrogrKfcas, *rganismos Gestores de la
eguridad ocial
• Public or$orations 6#7ntidades PQblicas7m$resariales)&, arts. 1> et se. L-JP – !7A!, -en%e *$eradora, !di%, Puertos del 7stado,
!utoridades Portuarias, !gencia 7F7, Loteras 0 !$uestas
del 7stado
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Ind"!"nd"nt Administrations
• Public Rniversities, Data Protection !genc0, Aational ommission on4ar(ets and om$etition, Aational ommission on toc( 4ar(et,an( o% $ain, Auclear a%et0 ouncil
• The0 do not de$end on other Public!dministrations –
Functional inde$endence – Guarantees
• !$$ointments
• Protection against removal
• el% organi8ation $o'er, budgetar0 autonom0, managementautonom0
• -ationale – Technocratic ideolog0" $rotection against $olitical $arties
– Protection against Public !dministrations
– e$aration bet'een regulators and o$erators
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Ind"!"nd"nt Administrations
•
riticisms – The Government shall conduct the !dministration 6art.
?.1 7&
– Lac( o% democratic legitimac0
– a$ture b0 the o$erators•
Lobbies• 5n%ormation $roblems
• -evolving door
– 5n $ractice, the0 are not ver0 inde$endent 6but stillca$tured b0 $olitical $arties&
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Cor!orat" PublicAdministrations
• Pro%essional bodies 6art. H 7&, hambers o% ommerce, 5ndustr0and Aavigation, 5rrigation ommunities, $orts Federations
• Features – reated b0 a $ublic act
– The0 $ursue both $ublic and $rivate interests
–
The0 fnance themselves – The0 govern themselves
– !Bliation is mandator0" 5s it com$atible 'ith the %reedomo% association 6art. 22 7&3 T 6e. g. T 12;1?:?,1>;1??H, 22=;2>>H&, 0es it is, but"
• The members can create other associations• The mandator0 aBliation is adeuate, necessar0 and not
dis$ro$ortionate to reach some $ublic goal
• 4andator0 aBliation should be e+ce$tional
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Cor!orat" PublicAdministrations
•
Pros" – el%
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Pri%at" l"$al "ntiti"s cr"at"db Public Administrations
•
Government o'ned or$orations• Public Foundations
• !ssociations
•
h03 – 7Bcienc0 reasons
– Flight %rom !dministrative la'
• The0 are not Public !dministrationsS
•
!s a general rule, $rivate la' a$$lies to them• 7ventuall0, !dministrative la' a$$lies to them
– e. g. $ublic $rocurement la' 6art. -DL ;2>11&
– e. g. their accounts are audited li(e those o% other Public!dministrations