Eduardo Olarte Soto. Abogado.
En los últimos días, y poco después de que el Gobierno dictara el Real Decreto 463/2020, de 14 de marzo, por el que se declara el estado de alarma para la gestión de la situación de crisis sanitaria ocasionada por el COVID-19, los Ayuntamientos han venido dictando bandos y decretos en los que se restringía, interpretaba o se decretaban medidas accesorias que limitaban los derechos de los ciudadanos. Y todo ello sin la menor competencia legal habilitante.
Efectivamente, el RD 463 señala que la ÚNICA autoridad a los efectos del estado de alarma será el Gobierno y, dentro de este, para el ejercicio de las funciones el Ministerio de Defensa, el Ministerio del Interior, el de Transportes, Movilidad y Agenda Urbana y, por supuesto, el de Sanidad. En ningún sitio se habilita o dan facultades normativas a los Ayuntamientos.
Si bien el Real Decreto 463/2020 no habla expresamente de la posibilidad de pasear a nuestros perros por la vía pública, el Presidente del Gobierno durante su comparecencia del pasado 14 de marzo manifestó que los ciudadanos podrían sacar a pasear a sus perros durante el confinamiento, de forma individual, apelando a la responsabilidad ciudadana y al sentido común.
Pero, ¿pueden los Ayuntamientos dictar normas, de obligado cumplimiento, ¿limitadora de derechos durante el estado de alarma? Es decir, ¿se pueden considerar de obligado cumplimiento los bandos y decretos de los Ayuntamientos en materias que quedan bajo la competencia del Gobierno? Yo entiendo que un Ayuntamiento no puede regular el paseo de las mascotas al igual que no puede limitar o aumentar el control ciudadano en el estado de alarma.
El artículo 139 CE sujeta la autonomía normativa de los Ayuntamientos a un principio de igualdad entre los ciudadanos de todo el ámbito territorial, al indicar que: “Todos los españoles tienen los mismos derechos y obligaciones en cualquier parte del territorio del Estado lo que supone la necesidad de que entre los distintos niveles de la organización del Estado, se guarde cierto equilibrio para que no haya menoscabo o disparidad en la regulación de derechos y obligaciones de los ciudadanos.
Cuando cada Ayuntamiento dicta normas distintas sobre cuando, como y de qué forma sacar a las mascotas, están invadiendo competencias que sólo corresponden al Gobierno y, además, violan la igualdad de todos los ciudadanos pues, se puede (de hecho ya se está produciendo) dar la paradoja de que dos Ayuntamientos tengan medidas contradictorias y que un ciudadano esté cumpliendo con unas obligaciones e infringiendo otras dependiendo de si se encuentra a un lado de la raya o a otro.
El marco legal dentro DEL cual los municipios no pueden salirse es el recogido en el art. 4.1 a) de la LBRL, en relación, especialmente, al artículo 140 de la Constitución sin perjuicio a que, de acuerdo a la actual tendencia de vinculación negativa del principio de legalidad y el principio de autonomía local, puedan éstos regular, mediante ordenanza, aquello que no suponga una intromisión en las competencias estatales o autonómicas (sea por regular una materia que, como mínimo de forma básica, les corresponde a estos ámbitos superiores, o por regularlo de forma distinta, suponiendo ello una vulneración al principio de relativa igualdad de derechos y obligaciones entre los españoles (ex. art. 139 CE).
En esencia, esta regulación supone que, los Ayuntamientos, al ejercer la potestad reglamentaria, en la dictación de ordenanzas no podrían establecerse criterios manifiestamente quebrantadores del principio de igualdad entre los ciudadanos, así como tampoco vulnerar intereses supra locales o afectar ilegalmente en contenido o en procedimiento los derechos subjetivos (es decir, que ello supusiera afectar el núcleo esencial de los derechos y obligaciones de éstos, penetrando en los ámbitos donde las reglas deban ser necesariamente uniformes en todo el Estado). Tampoco cabe la imposición de obligaciones sin cobertura legal, fuera del alcance competencial de los municipios.
En resumen, los Ayuntamientos que limitan la salida de los dueños con sus mascotas, ya sea por tiempo, por distancia o imponiendo obligaciones agravatorias, están incumpliendo el Principio de legalidad y de jerarquía normativa por lo que tales bandos o decretos serian nulos de pleno derecho.
Photo by Clem Onojeghuo on Unsplash
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