lesson 3. public administrations

8/17/2019 Lesson 3. Public Administrations

1/33

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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•

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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•

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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•

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>"


20/33


•

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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•

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


26/33

Pro%inc"s

•

Jurisdiction – oo$eration 'ith the 4unici$alities – The0 $rovide some social services and manage some in%rastructures

• $ecial regimes" – *ne


27/33

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

lesson 3. public administrations

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