REGUNTAS Y RESPUESTAS SOBRE EL RÉGIMEN CONSTITUCIONAL DEL INICIO DEL PERÍODO CONSTITUCIONAL DEL PRESIDENTE DE LA REPÚBLICA.

Allan R. Brewer-Carías

29-12-2012
 
Preguntas formuladas por Edgar López, El Nacional.
 
¿Cuál fue la intención del constituyente al fijar una fecha precisa? 
 
La intención fue establecer cuándo comienza y cuándo termina el período constitucional para el cual se elige a un Presidente. Este período es por un número preciso de 6 años (art. 230), que se inicia el 10 de enero del año siguiente a la elección, cuando debe tomar posesión del cargo mediante juramentación ante la Asamblea Nacional (art. 231), y termina precisamente el día 10 de enero del año en el cual se completa el año sexto del período; período que en ningún caso es “prorrogable.”
Es un período que tiene un término fijo, con una fecha precisa de comienzo y terminación.
El Presidente puede ser reelecto, en cuyo caso, al terminar el 10 de enero su período anterior (2007-2013), ese mismo día y no otro, comienza el nuevo período, que en la coyuntura actual sería el de 2013-2019. Por eso es que debe juramentarse ese día y no otro, ante la Asamblea o excepcionalmente ante el TSJ, en el lugar donde dichos órganos tienen su asiento, que es la capital de la República (sede de los Poderes Públicos) (art.18).
En la situación actual, el 10 de enero de 2013 termina el período constitucional del Presidente Chávez que se inició el 10 de enero de 2007; y en ese mismo día comenzará un nuevo período constitucional para el cual fue electo en octubre, para lo cual deberá tomar posesión mediante juramentación en la forma indicada.
 
¿Qué dice el Diario de Debates de la ANC?
 
Nada distinto a lo anterior. En la ANC no hubo debate sobre el tema. Lo único que se “debatió” en esta materia fue sobre la duración del período constitucional y sobre la reelección presidencial. Algunos consideramos (así lo propuse yo) que el período constitucional del Presidente debía ser de solo 4 años, precisamente en virtud de que se estaba previendo la posibilidad de reelección inmediata. Al final, prevaleció el criterio de extender el período constitucional del Presidente a 6 años, con reelección inmediata por una sola vez, respecto de lo cual salvé mi voto. 
 
¿Qué ha dicho la Sala Constitucional sobre el comienzo y final del período constitucional?
 
La Sala Constitucional al decidir una solicitud de interpretación constitucional que le formuló el Presidente de la Asamblea Nacional el día 28 de febrero de 2001, mediante sentencia de 16 de mayo de 2001 (Exp. No. 01-0401), en relación con los artículos 230 y 231 de la Constitución, decidió que los mismos “no requieren aclaración alguna, pues sus textos son explícitos. La duración del mandato del Presidente de la República es de seis años y la toma de posesión, mediante juramento ante la Asamblea Nacional, el 10 de enero del primer año del período constitucional.”
Por tanto, así como el TSJ dijo claramente en esa sentencia al referirse al primer período constitucional del Presidente Chávez que se había iniciado el 10 de enero de 2001, que “el período constitucional del Presidente Hugo Chávez Frías concluye el 10.01.07, término en el cual comienza el próximo período presidencial, conforme lo dispone el artículo 231 de la Constitución de la República Bolivariana de Venezuela,” igualmente si el TSJ fuera a decidir ahora, en las circunstancias actuales, el mismo TSJ no podría decir nada distinto a que “el período constitucional del Presidente Hugo Chávez Frías concluye el 10 de enero de 2013, término en el cual comienza el próximo período presidencial, conforme lo dispone el artículo 231 de la Constitución de la República Bolivariana de Venezuela.”
 
¿Por cuánto tiempo puede ausentarse el Presidente sin que su ausencia sea una falta temporal?
 
Toda ausencia del Presidente de la República del territorio nacional constituye siempre una falta temporal, lo que significa que el Vicepresidente Ejecutivo, en esos casos, la suple automáticamente, asumiendo el ejercicio de la Presidencia hasta por noventa días, prorrogables por decisión de la Asamblea Nacional hasta por noventa días más (art. 234). Por supuesto, si el Presidente se encuentra en el exterior en viaje oficial, en funciones de Jefe de Estado (art. 236.4 por ejemplo), las mismas las cumple cabalmente, pero con el Vicepresidente supliéndolo en el territorio nacional en las funciones de Jefe del Ejecutivo Nacional (art. 226).
La falta temporal, es una situación de hecho, que se produce, entre otros acaecimientos, precisamente por ausentarse del país. La falta temporal no se decreta ni se declara. Sucede, de manera que toda ausencia del territorio nacional constituye siempre una falta temporal. Siendo una situación de hecho, en particular cuando se trata de una ausencia del territorio nacional que se produzca sin cumplir por ejemplo funciones oficiales, de acuerdo con la Constitución, si la falta temporal se prolonga por más de noventa días consecutivos, la Asamblea Nacional decidirá por mayoría de sus integrantes si debe considerarse que hay falta absoluta (art. 234).
Por otra parte, si la falta temporal del Presidente por viaje al exterior se prevé que será por menos de 5 días, la decisión de ausentarse no requiere de la autorización de la Asamblea Nacional. En cambio, esa autorización sí se requiere, conforme al artículo 231 de la Constitución, en los casos de ausencia del territorio nacional por más de 5 días.  Pero en estos casos, la autorización no es para que pueda tener lugar la falta temporal. Esta, que es una situación de hecho, como se dijo, se produce siempre cuando hay ausencia del territorio nacional, independientemente del tiempo.
Por otra parte, y por supuesto, la falta temporal puede ocurrir también aún estando en Presidente en el territorio nacional, en caso de hospitalización, por ejemplo. 
 
 ¿El presidente de la Asamblea Nacional puede negarse a suplir al presidente Chávez si éste no toma posesión el 10 de enero?
     
    En la situación actual, el próximo 10 de enero de 2013 termina el período constitucional que se inició el 10 de enero de 2007, y comenzará uno nuevo. En esa fecha, Hugo Chávez Presidente, cesa como Presidente por el período 2007-2013, que en ningún caso puede prorrogarse; y debe comenzar el nuevo período para el cual fue electo (2013-2019) para lo cual juramentarse ante la Asamblea Nacional o excepcionalmente ante el TSJ. Si tal juramento no se produce, el Presidente electo no puede iniciar el ejercicio del cargo.
    La Constitución, en relación con el Presidente electo, sólo regula expresamente el supuesto de que se produzca su “falta absoluta antes de tomar posesión” del cargo, en cuyo caso, mientras se elige y toma posesión un nuevo Presidente que debe ser electo dentro de los 30 días consecutivos siguientes al 10 de enero, se debe encargar de la Presidencia el Presidente de la Asamblea Nacional. De acuerdo con la Constitución, la falta absoluta que por ejemplo en la situación actual se podría producir antes de la toma de posesión el próximo 10 de enero, es por muerte, renuncia, o incapacidad física o mental permanente certificada por una junta médica designada por el Tribunal Supremo de Justicia y con aprobación de la Asamblea Nacional (art. 233).
  En esos casos, el Presidente de la Asamblea Nacional estaría obligado constitucionalmente a encargarse el 10 de enero de la Presidencia de la República, y no puede negarse a ello.
  Situación distinta es que antes de la toma de posesión no se haya producido falta absoluta del Presidente electo, pero el 10 de enero éste, por cualquier circunstancia no se presente a juramentarse para  tomar posesión del cargo y a comenzar a ejercer como Presidente. La Constitución no regula esta situación que se pueda producir cuando un Presidente electo, que no haya incurrido en una causal de falta absoluta, no tome posesión de su cargo el día 10 de enero del año de inicio del período constitucional, que es el mismo día en el cual termina el período anterior. En estos casos no podría hablarse estrictamente de “falta temporal” pues como el Presidente electo no ha tomado posesión del cargo, no podría haber falta temporal alguna en el ejercicio de un cargo que no ejerce.
En este supuesto, es necesaria una interpretación constitucional, y lo cierto, de ella, es que en ningún caso podría concluirse que el Presidente anterior quien termina el 10 de enero o su Vicepresidente en ejercicio temporal de la Presidencia quien también termina su cargo el mismo día 10 de enero de 2013, pueda continuar ejerciendo el cargo después de terminado el periodo constitucional.
 Por ello, en esa excepcional situación, la interpretación más acorde con la Constitución en nuestro criterio, es la que deriva de apreciar el texto fundamental en su integralidad, conforme a la intención del Constituyente, teniendo en cuenta la regulación relativa a la situación de falta absoluta del “Presidente” electo, y a la “falta temporal” del Presidente. De estas regulaciones, la conclusión debe ser que quien suple la “falta temporal” del Presidente electo que no se presenta a tomar posesión de su cargo, es el Presidente de la Asamblea Nacional, mientras se resuelve la situación del Presidente electo cuando éste no se ha presentado a juramentarse. Esa situación se tiene que resolver en dos formas: primero, con la toma de posesión del Presidente electo de su cargo en la forma prescrita en la Constitución con posterioridad al 10 de enero, mediante su juramentación ante la Asamblea Nacional, o excepcionalmente ante el TSJ, lo que en ningún caso puede ocurrir después de transcurridos 90 días contados a partir del 10 de enero, cuando debe procederse a convocar una nueva elección; o segundo, mediante la declaración formal (en principio por la Asamblea Nacional) de que después del 10 de enero lo que se ha producido es una falta absoluta del Presidente electo, lo que podría ocurrir si después de esa fecha muere; renuncia; es destituido por sentencia del Tribunal Supremo de Justicia; es declarado incapaz permanente, física o mental, certificado por una junta médica designada por el Tribunal Supremo de Justicia y con aprobación de la Asamblea Nacional; o ha abandonado el cargo, declarado tal abandono por la Asamblea Nacional (art. 233 de la Constitución).
En este caso, declarada la ausencia absoluta, mientras se elige y toma posesión un nuevo Presidente que debe ser electo dentro de los 30 días consecutivos siguientes a tal declaratoria, se debe encargar de la Presidencia el Presidente de la Asamblea Nacional.
En todos los casos en los cuales el Presidente de la Asamblea está llamado a encargarse de la Presidencia de la República, se trata de una obligación constitucional que no puede eludir ni negarse a cumplir.
 
¿Qué pasa si la Asamblea Nacional persiste en negarse a declarar la falta temporal del Presidente?
 
La Asamblea Nacional, en ningún caso tiene competencia para “declarar” que hay falta temporal del Presidente.
Como se dijo, la falta temporal es una situación de hecho, que se produce entre otros factores por la ausencia del Presidente del territorio nacional.  En la situación actual desde el 9 diciembre, cuando el Presidente salió para Cuba con autorización de la Asamblea, se produjo una falta temporal que se suple automáticamente por el Vicepresidente sin que nadie la tenga que “declarar”. Estando el Presidente fuera del país, el que ejerce la Presidencia en Venezuela por mandato constitucional es el Vicepresidente. No tiene ningún sentido ni fundamento constitucional el tardíamente anunciado Decreto presidencial del 9 de diciembre de 2012, de delegación de funciones al Vicepresidente. Este ejerce de pleno derecho las funciones del Presidente cuando suple su falta temporal, por lo que delegarle además funciones es innecesario y redundante.
 
¿La juramentación y toma de posesión del presidente puede diferirse indefinidamente?
 
No puede diferirse indefinidamente. Si el Presidente electo no se juramenta el 10 de enero, el Presidente de la Asamblea Nacional debe asumir temporalmente el ejercicio de la Presidencia hasta determinar la situación del Presidente electo que no ha acudido a juramentarse, sea que este acuda a juramentarse posteriormente, o se declare por la Asamblea su ausencia absoluta, en cuyo caso debe convocarse nueva elección.
 
¿En qué circunstancias procede la juramentación del Presidente ante el TSJ?
 
La juramentación ante el TSJ para la toma de posesión del cargo por el Presidente es una medida excepcional, que sólo puede aplicarse cuando por alguna causa justificada y justificable, la juramentación no se pueda hacer ante la Asamblea Nacional, por ejemplo, si ésta no se ha podido instalar o no puede sesionar. Pero en todo caso, tal juramentación excepcional tiene que realizarse en l territorio nacional, específicamente en el asiento de los Poderes nacionales que es la ciudad de Caracas (art. 18).
 
¿Es válido el planteamiento de la presidenta del TSJ en cuanto a que la reelección presidencial equivale a la continuación de un mismo mandato?
 
Esa afirmación no tiene sentido alguno en el régimen constitucional venezolano. La reelección no es continuación de mandato alguno. El mandato anterior cesa el 10 de enero DEL 2013, y ese día se inicia un nuevo mandato, y nada cambia esa situación constitucional el hecho de que sea la misma persona quien cesa en un mandato y debe iniciar otro.
 
¿Un dictamen del TSJ podría aclarar todas las dudas?
 
El TSJ no emite “dictámenes.” El TSJ dicta sentencias, y sin duda, tiene competencia constitucional para interpretar la Constitución en caso de duda, ambigüedad o laguna, lo que por supuesto debe hacer con independencia e imparcialidad, como supremo intérprete y garante de la Constitución y no como actor político.
 
¿Qué características debe tener la junta médica que podría declarar la falta absoluta por incapacidad física y mental del Presidente? ¿Su dictamen es definitivo?
 
Las características de la junta médica prevista en el artículo 233 de la Constitución son las fijadas por el TSJ que es el órgano competente para nombrarla. La Constitución dispone que esa Junta médica es la que debe certificar la incapacidad física o mental permanente del Presidente, certificación que además debe ser aprobada por la Asamblea Nacional.
 
¿Cuándo la falta temporal del Presidente se convierte en falta absoluta?
 
De acuerdo con el artículo 234 de la Constitución, las faltas temporales del Presidente de la República serán suplidas por el Vicepresidente Ejecutivo hasta por noventa días, prorrogables por decisión de la Asamblea Nacional hasta por noventa días más. En todo caso, si una falta temporal se prolonga por más de noventa días consecutivos, la Asamblea Nacional debe decidir por mayoría de sus integrantes si debe considerarse que hay falta absoluta.
 
¿Es jurídicamente válido que Chávez haya decidido que el vicepresidente Nicolás Maduro lo suceda en el cargo, aún en el caso que  el Presidente no pueda tomar posesión el 10 de enero de 2013?
 
Lo que el Presidente expresó fue una voluntad política, su voluntad de que en una elección presidencial que se produjera por su falta absoluta, el candidato de su partido fuera el Sr. Maduro. El Presidente no decidió, en forma alguna que en caso de que él no pudiera tomar posesión de su cargo el 10 de enero de 2013, Maduro “lo sucediera” en su cargo. Ello habría sido inconstitucional, pues el 10 de enero, el cesa como Presidente e igualmente Maduro y el gabinete entero cesan en sus cargos..
 
¿En 30 días se pueden organizar nuevas elecciones presidenciales?
 
Las nuevas elecciones deben organizarse en el lapso fijado constitucionalmente. Su organización está en manos del CNE, órgano que seguramente si puede organizarlas.

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