La toma del Capitolio argentino (o el ataque K a la Corte)

Ataques la Corte Suprema (o la toma del Capitolio)

La Corte Suprema es la institución más codiciada por CFK quien intenta someterla con la insensata ayuda del Presidente. Sus ataques son variados: desde criticar el diseño de la institución en la Constitución, amenazar e insultar personalmente a sus integrantes (para que le contesten y luego recusarlos), hasta aumentar los ministros designando a adictos para tener mayoría, o restarle competencia y crear un tribunal paralelo.

Con esta idea el gobierno pidió opciones a la Comisión Beraldi pero ésta produjo diferentes dictámenes, ninguno concluyente. Simultáneamente, voces controvertidas como la de Zaffaroni o descalificables como las de Aníbal Fernández y Hebe de Bonafini, proponen soluciones incendiarias sin reparar en las instituciones: muy parecido a la toma del Capitolio por los partidarios de Trump. Intento explicar un tema complejo en idioma simple para que se entienda cómo es el asedio a que está sometida y demostrar que las ‘soluciones’ que se sugieren desde el gobierno son inadecuadas y sólo buscan doblegar al tribunal. Ello sobre la base de mis trabajos de investigación empírica y proyectos de reingeniería del Alto Tribunal, más artículos de opinión y/o especializados, sumados a mi experiencia de más 50 años de abogado, muchos litigando ante la Corte.

Las funciones de la Corte Suprema y cómo las cumplió

La Corte Suprema tiene tres funciones igualmente importantes: el control de constitucionalidad de las normas y los actos de los otros poderes, ser el máximo tribunal en algunos conflictos especiales y ocuparse del sistema judicial.

Desde su instalación en 1862 y durante un siglo la CSN sólo cumplió bien la segunda como máximo tribunal. En la primera el control de constitucionalidad tuvo altibajos y nunca cumplió la tercera, ni siquiera se planteó que como cabeza del Poder Judicial debía ocuparse de la Justicia.

Y a partir de 1960 comenzó a fallar en lo único que hacía bien, y, desde entonces, entró en una espiral de deterioro que continúa a la fecha. Así, de ser un pequeño tribunal muy prestigioso se convirtió en una macrocefálica institución muy cuestionada, ahogada por los expedientes, con centenares de funcionarios y empleados y un presupuesto gigantesco.

La crisis comenzó cuando la Corte comenzó a aceptar casos ajenos a su competencia, cuando no puso coto a temas que se le sumaron y cuando equivocó las soluciones.

1.       Sentencias arbitrarias

La Corte debe ocuparse de conflictos constitucionales o de derecho federal. No le corresponden los de derecho común, como temas de familia, contratos, daños y perjuicios, penal … en general comprendidos en el Código Civil y Comercial, en el Penal, Laboral. De estos se ocupa la justicia local de las provincias y en CABA la denominada ‘nacional’.

Pero apareció el concepto de ‘sentencia arbitraria’ en procesos de derecho común en los que se alegaban que se habían cometido arbitrariedades, y, considerando que se afectada la garantía constitucional de defensa en juicio, la Corte comenzó a aceptar algunos casos, al principio muy restringidos, pero, como el pequeño cauce de agua que nace en la montaña y que cuando llega al llano  terminó en un aluvión, se llevaron todo por delante.

La tentación de poder es grande y los integrantes de la Corte no escaparon a ella y la excusa de la sentencia arbitraria les daba oportunidad para abarcar todo tipo de pleitos y, luego, para peor, también intervino en procesos donde no había verdaderas arbitrariedades sino distintas interpretaciones del derecho. Algo más: estas interpretaciones, algunas razonables y otras irrazonables, abarcaban todo el territorio nacional (tribunales nacionales y provinciales) y así sus decisiones también afectaron el concepto del federalismo. Influyó también nuestra vocación porteña centralista y, por qué no decirlo, el deseo de muchos abogados de la Capital con buena llegada al Alto Tribunal por buenas oportunidades profesionales.

Ya en la década de los ’70 su actuación en las causas que no le competían con la excusa de la sentencia arbitraria. representaban más de una tercera parte de su trabajo y multiplicó por dos o tres veces su promedio.

2.       Recursos ordinarios en causas patrimoniales del Estado

Por aquella época también se le sumó por ley un recurso ordinario para los grandes juicios que involucraban al Estado Nacional, inicialmente por un monto altísimo pero que enseguida quedó desvirtuado por la inflación alcanzando a todos los juicios, y así siguió por décadas hasta que, hace pocos, luego de años de aceptar el recurso, la Corte lo declaró inconstitucional con lo que terminó con esta anomalía (aunque quedan muchos juicios remanentes).

3.       Temas jubilatorios

Y en los ‘90 por instancias del entonces ministro de Economía Domingo Cavallo buscando solucionar las jubilaciones, como las Cámaras de Apelaciones de Seguridad Social fallaban en contra del Estado, inventó un recurso ante la Corte Suprema (de la mayoría automática) que tenía el sentido de dilatar el pago a la vez de obtener sentencias favorables. Hoy este tema representa un 50% de los casos de la CS.

4.       Causas penales

Además en 2007 la propia Corte en el fallo Casal, admitió un recurso extraordinario de la Cámara de Casación Penal, creada, entre otras razones, para aliviar su trabajo en materia penal, y así desarmó este sistema y nuevamente quedó inundada por los casos penales.

La Corte es culpable de su propia alienación y tiene las soluciones

De esta forma, su agobio ha sido su responsabilidad, en parte por ceguera, en parte por afán de poder: y muchas soluciones están a su alcance.

En las sentencias arbitrarias la solución no es purgarlas por si (o sea solucionar las consecuencias) sino atacar las causas de tales errores y corregirlos ¡nunca podrá solucionar todos los errores de los tribunales! La solución es otra: si hay arbitrariedades (y no cuestiones de interpretación), cada sentencia implica, por un lado, una falla gravísima en los tribunales inferiores por lo que (a) deben aplicarse sanciones a los que la dictan y su reiteración debería ser causas de mal desempeño y (b) la naturaleza de la arbitrariedad es un síntoma del problema e indica dónde comenzar a corregir. Por lo demás, la Corte soluciona mal la arbitrariedad pues lo soluciona a medias, y recurrentemente el caso baja y sube de las Cámaras a la Corte, recargando innecesariamente el trabajo.

En síntesis, para un problema real – la mala administración de Justicia – la Corte aplicó un solución incorrecta (intentar corregirlas ella misma) y no la que correspondía que era solucionar las causas de tales sentencia arbitrarias.

Para este problema yo he propuesto la creación de una acción contra el Estado Nacional por errores judiciales, para dar remedio a lo que no se pueda corregir de inmediato.

Dije que el recurso ordinario en las causas del Estado Nacional fue eliminado de cuajo por la Corte. Algo parecido debe hacerse con el tema de las jubilaciones que no deben llegar a sus estrados. En las causas penales debe revisar los principios del fallo Casal, y volver a la situación anterior en que las Cámaras de Casación eran la última palabra.

Otros temas no tan graves son las cuestiones de competencia deben ser resueltas en forma instantánea para no demorar los juicios y también para evitar que se lo utilice como dilación: en estos casos la jurisprudencia de la Corte tiene que ser vinculante.

Finalmente también he señalado como factor de congestión la brevedad el plazo para presentar el Recurso Extraordinario explicando cómo– contrariamente a lo que parece – con más tiempo para meditarlos, no se presentarían ante la Corte.

El tamaño de la Corte Suprema

Aún con la tremenda carga de trabajo del que era responsable, en 1983, con el regreso de la democracia, el Alto Tribunal mantenía la pequeña estructura que tuvo durante más de un siglo: 5 ministros, otros tantos secretarios letrados y una secretaría muy acotada, como acotado era el presupuesto que manejaba y así la Corte presidida por Genaro Carrió se encontró con un panorama desolador, que llevó a éste a renunciar ‘por cansancio moral’.

Había un presupuesto ínfimo para la Justicia (0.7% del presupuesto en 1976)), una inflación galopante, los sueldos judiciales en el mínimo (unos us$ 300 a us$ 400). Luego de Menem y ya ampliada la Corte a nueve ministros, comenzó un período de bonanza económica para la justicia por el afán de éste de adocenar a la Justicia. Así entre 1990 incrementó su presupuesto (luego se multiplicó por 10 veces) hasta la situación actual de un macrocefalismo del Alto Tribunal, con un tamaño y un presupuesto que – en tiempos normales – triplica el de la Corte Suprema de los EE.UU. alcanzando un tamaño que conspira contra su eficiencia. Hay tanto personal que los Secretarios del tribunal no pueden conocerse entre si!

Como atacan a la Corte

Los intentos del sector K y del Gobierno para someter a la Corte transitan por más de un camino.

Por un lado se concentran en criticar el diseño constitucional que, en verdad, se corresponde a la estructura republicana de nuestro país.

Simultáneamente proliferan los insultos, amenazas, buscando o bien las renuncias o bien que los Ministros contesten y se coloquen en posición de recusarlos. También los amenazan con el juicio político.

Más complicado – por el momento – es aumentar la cantidad de Ministros incorporando adictos en cantidad suficiente para tener mayoría. Esto no es fácil por la sensibilidad de la opinión pública y porque el PE no logra la mayoría de 2/3 que se requiere en el Senado para las designaciones (CN 99,4).

Finalmente se propone quitarle al Alto Tribunal el control de constitucionalidad que se encargaría a un tribunal ad hoc, como existen en países europeos de estructura parlamentaria distinta a la nuestra.

En todo sistema de derecho debe existir una palabra final y también, en el sistema republicano constitucional, debe resolver qué es lo que corresponde. En el sistema republicano que tomamos de los EE. UU. hay tres poderes con funciones y naturaleza diferentes que se controlan entre sí. Un poder unipersonal que se renueva íntegramente, cada 4 u 8 años, el Ejecutivo; otro colegiado que lo hace parcialmente, el Legislativo, y hay un tercer poder permanente – el Judicial – que entrelaza las administraciones que se suceden en los otros poderes (Se ejerce en forma unipersonal o colegiada, según el tipo de tribunal de que se trate, con un sistema de revisión por el tribunal superior). Hay un sistema de control entre poderes – check and balances –. Esto es incompatible la renovación total y simultánea en los tres poderes porque ello llevaría a la suma del poder público.

En nuestro sistema el Poder Judicial, presidido por la Corte, resuelve los conflictos entre particulares, y entre éstos y el Estado. Ejerce un control de constitucionalidad con muchas limitaciones que son razonables pues no sería propio que un poder no electivo pueda enervar sin límites las normas y actos de los poderes electivos e impedir el nefasto ‘gobierno de los jueces’:

En países con otros sistemas – parlamentario en los casos de España, Francia, Alemania – el control de constitucionalidad la hace un Tribunal especial, separado del sistema judicial y con otras características pues son electivos y renovables. Esto es imposible en Argentina por nuestra arquitectura constitucional (y no sólo porque la Constitución reformada lo dice). Ni siquiera bastaría una reforma constitucional, porque en verdad, se trataría de deslizarse hacia un sistema parlamentario que no es el que las provincias que organizaron el país lo determinaron.

El gobierno sugiere que sus propuestas siguen las conclusiones de la Comisión Beraldi, pero en verdad, de ningún modo son unánimes ni coherentes ni en lo que respecta a la cantidad de ministros ni a la creación de un tribunal paralelo. De ninguna forma pueden sustentar un cambio drástico. Ni siquiera son unánimes las conclusiones de la ‘mayoría automática’ que se formó por la digitación que hizo el Gobierno en las designaciones. Hay estudios muy interesantes como el de Bacigalupo, especialmente el de Ferreyra, con toda la autoridad académica de ambos especialistas, y también los de Kogan, Weinberg, (pero se extrañan opiniones de litigantes y estudios empíricos).

Cómo proteger y mejorar a la Corte

Espero que esta explicación demuestre que las medidas que el Gobierno propone son inadecuadas: es como si a una persona indigestada se pretenda curarla amputándole un brazo.

Y tratándose de algo tan delicado como el sistema judicial y sus repercusiones institucionales, ninguna solución podría resultar exitosa en el contexto actual del país, y sin un consenso general de las fuerzas políticas y de la ciudadanía. Y aun el día en que esas condiciones existan todo el tema debe tratarse con la máxima circunspección.

En verdad, las soluciones no requieren más que la decisión de la Corte de enfrentar los problemas, en algún caso con mínimas reformas legislativas (por ej. ampliar el plazo de interposición del Recurso Extraordinario y crear una acción especial de responsabilidad contra el Estado Nacional por errores judiciales). Las jubilaciones deberán volver a las Cámaras Apelaciones de Seguridad Social. Es esencial que la Corte se concentre en sus funciones específicas. Debe achicar su infraestructura y enviar secretarios a trabajar como jueces. Debe involucrarse en mejorar el sistema judicial, junto con el Consejo de la Magistratura en tanto éste exista. Y que los Ministros tengan dedicación full time.

El objetivo es que la República tenga la seguridad que cada sentencia de la Corte ha sido efectivamente estudiada, pensada y redactada por los Ministros y no por los Secretarios o sus ayudantes.

Las propuestas del Gobierno y sus conmilitones solo buscan apoderarse de esta institución clave para la República.

Acerca del autor / fuentes

    V. LYNCH, Horacio M., entre otros: La Corte Suprema y el futuro del país (conferencia dictada en el Rotary Club de Buenos Aires, 1978); La libertad económica y la Corte Suprema, (serie de artículos en LA NACION. 1982); Reformas en la Corte Suprema (investigación empírica sobre 500 casos de la Corte, 1987); Radiografía de la Corte Suprema (mimeo, investigación FORES, 1988); El Recurso Extraordinario por arbitrariedad y la responsabilidad del Estado por errores judiciales (Un dilema para la nueva Corte Suprema), en LA LEY, 1990; Crisis de la Corte Suprema, (conferencia dictada en la FACA, en Córdoba, 1998); La crisis y la justicia, (1ª.parte: panorama general, la justicia penal y la Corte Suprema, 2002); Cambios en la Corte Suprema, enfoques del Siglo XXI, (en LA NACIÓN, 2003); Reingeniería de la Corte Suprema, (dirigido para FORES y presentado al entonces Presidente de la Corte Suprema, Dr. Carlos Fayt, en 2003); La realidad de la Corte Suprema (2005); El Recurso Extraordinario por arbitrariedad de sentencia en la Corte Suprema (investigación empírica sobre 2000 casos preparada por FORES a pedido del Dr. Ricardo Luis Lorenzetti en 2005); Luces y sombras de la nueva Corte Suprema (2003/2009), (paper difundido en 2009); Juicio a la nueva Corte Suprema (2003-2009), (en la Revista del Colegio de Abogados de la Ciudad de Buenos Aires, 2009); ¿Quién dicta los fallos en la Corte? La delegación en la Corte Suprema (en el blog Abogados.Com.Ar, 2010); La Corte Suprema – Acciones de fortalecimiento institucional (informe para AEA, 2010); Nuestra Corte ¿es suprema?, (nota para el blog Todos sobre la Corte, 2010); La Corte Suprema, (Carta de Lectores en LA NACIÓN sobre la facultad del Presidente Néstor Kirchner para las vacantes que impulsó en la Corte Suprema, 2003); Cantidad ideal de Ministros de la Corte Suprema (2005); Un plazo de gracias para el Recurso Extraordinario, (Mesa del Diálogo Argentino, 2005); El fallo ATE y sus circunstancias, elementos para su estudio, (paper difundido en 2008).

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