Ustavna žalba u Crnoj Gori u svjetlosti uporednog konstitucionalizma

Abstract

Ljudska prava i lične slobode su sadržaji koje je nemoguće razdijeliti. Područje ljudskih prava obuhvata načelno nederogabilnu sferu svojstava koja čovjeka čine čovjekom, a područje individualnih sloboda u najširem smislu karakteriše mogućnost legalnog slobodnog djelovanja i ponašanja svakog čovjeka, zaštićeno od intervencije države i njenih tijela. Kada govorimo o ustavnosudskoj zaštiti ljudskih prava i osnovnih sloboda suočavamo se sa kompleksnim pojmom koji u sebi sadrži nekoliko elemenata. Svaka institucionalizovana zaštita mora imati svoj objekt zaštite, pravnim aktom zajemčena autonomna sfera slobode pojedinca zaštićena od zadiranja bilo kojeg fizičkog ili pravnog lica, to je instrument garancije, očuvanja i protekcionizma osnovnih prava i sloboda koje pravni poredak priznaje svakom članu društva štiteći ih od drugih, pa i od sebe samog. Objekt ustavnosudske zaštite nijesu sva subjektivna prava pojedinca, već upravo ona koja su kao osnovna utvrđena pravnim aktom najviše snage nekog društva, kojim su utvrđena tijela i mehanizmi kojima se štite ljudska prava i slobode. U ustavnopravnim sistemima zasnovanim na krutim ustavima, ustavna zaštita ustavnih prava i sloboda povrijeđenih pojedinačnim mjerama nadležnih tijela sprovodi se kroz institut ustavnog sudstva. U ustavnopravnim poredcima koji pak institucionalizuju ustavno sudstvo kroz postojanje posebnog za to nadležnog ustavnog tijela, protekcija osnovnopravne sfere sprovodi se kroz institut ustavne žalbe, kao originarnog instituta osmišljenog isključivo radi zaštite ustavom zaštićenih vrednosti. Ustavna žalba načelno nije pravno sredstvo suspenzivnog karaktera koje sprječava nastup izvršnosti osporenog pojedinačnog akta. Pravo na podnošenje ustavne žalbe ujedno nije ni ustavno pravo. Ustavna žalba predstavlja poseban ustavni institut sui generis omeđen određenim procesnim pravilima. Pravo na podnošenje ustavne žalbe načelno pripada svakom, ali se ne može poistovjetiti s actio popularis. Ustavnom žalbom mogu se služiti samo oni koji su lično pogođeni pravnim posljedicama neke pojedinačne mjere državne vlasti, jer se pravo na podnošenje ustavne žalbe veže uz povredu nekog ustavom zaštićenog dobra podnosioca. Objekt zaštite mora biti u njegovoj zaštićenoj sferi i mora egzistirati u trenutku nastanka povrede. Ustavna žalba je namijenjena zaštiti lične ustavom zaštićene sfere pojedinca i spada u institute individualne zaštite nezavisno od postojanja interesa trećih lica ili nekog posebnog javnog interesa. Pravo na ustavnu žalbu je ovlašćenje koje načelno može pripadati svakom ko je bio učesnik u postupku iz kojeg je proizašla osporena odluka. Ustavna žalba je u svakom ustavnopravnom sistemu vanredna pravna pomoć koja se odobrava državljaninu i kojom se on štititi od zadiranja javne vlasti u njegova osnovna i s njima izjednačena prava. To je institut koji otvara mogućnost preispitivanja svih mjera javnih vlasti u pogledu njihove usklađenosti sa osnovnim pravima. Ustavnom žalbom se u materijalno-pravnom sadržaju ustava dodaje procesnopravni institut za ostvarivanje efikasne zaštite osnovnih prava kojima se određuje bit njihovog nosioca ili njegovo aktivno pozicioniranje u društvu. Svrha ustavne žalbe se ne iscrpljuje isključivo u procesnom jemstvu zaštite individualnog osnovnog prava, jer je njena društvena uloga dvojakog karaktera. Ustavna žalba štiti osnovna prava unutar obima kontrole učinjene od strane ustavnog suda i kroz aktivitet ustavnog suda doprinosi očuvanju osnovnih prava i služi njegovom tumačenju i usavršavanju. Ustavna žalba je originalni i supsidijarni procesni institut, ograničen procesnim pretpostavkama za njegovu upotrebu. Ona nije ustanovljena za to da bi bila upotrebljavana po izboru, kao jedno od mogućih konkurentnih pravnih sredstava. To je posljednja i supsidijarna pravna pomoć, dopuštena samo onda kada su iscrpljene sve redovne procesno-pravne mogućnosti, nužna za sprječavanje neke povrede osnovnoga prava.

Human rights and personal freedoms are content impossible to divide. The area of human rights generally includes non-derogable sphere of qualifications that make a human, and the area of individual freedoms in the broadest sense is characterized by the possibility of legal free actions and free behavior of every person, protected from the intervention of the State and its administration. When we talk about constitutional protection of human rights and fundamental freedoms we are facing with a complex concept that incorporates several elements. Each institutionalized protection must have its object of protection, legal act that guarantees autonomous sphere of individual liberty protected from encroachment by any natural or legal person, is the instrument of warranty, conservation and protectionism of fundamental rights and freedoms that legal system recognizes to every member of society by protecting them from others, even from him-self. Object of the constitutional protection are not all subjective rights of the individual, but the one that are established in the highest legal act if society, which defines the bodies and mechanisms that protect human rights and freedoms. In the constitutional systems based on rigid constitution, constitutional protection of constitutional rights and freedoms violated by individual measures of administrative authorities is carried out through the institute of constitutional judiciary. The constitutional orders which institutionalize constitutional judiciary through the existence separate, for that issues competent constitutional body, protection of basic-legal sphere is conducted through the institute of constitutional complaint as genuine institute designed solely to protect the constitutionally protected values. The constitutional complaint in principle is not remedy of the suspensive character that prevents the enforceability of the disputed individual act. In the same time the right to file a constitutional complaint is not a constitutional right. The constitutional complaint is a particular sui generis constitutional institute bounded by certain procedural rules. The right to file a constitutional complaint generally belongs to everyone, but it cannot be identified with the actio popularis. Constitutional complaint may be filed only by those who were personally affected by the legal consequences of some individual measures of state power, because the right to file a constitutional complaint is associated with the violation of constitutionally protected values of the applicant. The object of protection must be protected in its sphere and must exist at the time of injury. The constitutional complaint is aimed to protect constitutionally protected private sphere and it is considered as an institute of individual protection regardless of the existence of the interests of third parties or any special public interest. Right to constitutional complaint is authorization which, in principle, belongs to anyone who was a participant in the proceedings that resulted with disputed act. Constitutional complaint in every constitutional system is extraordinary (subsidiary) legal measure granted to citizen in order to be protected from interference of public authorities in his fundamental and with them equivalent rights. It is an institute that opens the opportunity to review all measures of public authorities in terms of their compliance with fundamental rights. Constitutional complaint in the substantive content of the Constitution adds procedural legal institution for achieving effective protection of fundamental rights which determine the will of their holder or its active position in society. The purpose of the constitutional complaint is not restricted solely by the procedural safeguards to protect the fundamental right of the individual, because its social role has twofold character. Constitutional complaint protects fundamental rights within the scope of control made by the Constitutional Court and through activity of the Constitutional Court contributes to the preservation of fundamental rights and serves to its interpretation and improvement. The constitutional complaint is original and subsidiary procedural institute, limited by procedural requirements for its use. It is not established to be used optionally as one of the possible competing legal remedies. This is the last and subsidiary legal aid, permissible only when all regular legal remedies are exhausted, and it is necessary to prevent any possible violation of fundamental rights. This paper will discuss a constitutional complaint as the main institute of protection of human rights.