Publication: La extensión del derecho administrativo y su proyección contencioso-administrativa
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2021
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Abstract
El Derecho administrativo ha conocido una importante expansión en los últimos decenios hacia ámbitos no protagonizados formalmente por una Administración pública, dando lugar a lo que en este trabajo se califica de extensión asimilativa, extensión reactiva y extensión adaptativa o sustitutiva, respectivamente. La extensión asimilativa proviene de la necesidad de los órganos externos al poder ejecutivo (ya sean constitucionales, estatutarios, o jurisdiccionales) de contar con un Derecho administrativo “operativo” para la organización y funcionamiento de sus estructuras de gestión. La extensión reactiva es el Derecho administrativo que se aplica a los entes instrumentales de las Administraciones públicas, como límite (o recuperación, según se mire) en su recurso al ordenamiento jurídico-privado. Y la extensión adaptativa o sustitutiva es la que se aplica al heterogéneo y creciente fenómeno de los sujetos privados que ejercen funciones públicas o que al menos colaboran con su ejercicio. A partir de este esquema, se propone acudir al concepto de funciones públicas (tareas de responsabilidad pública cuyo titular ejerce desde una posición de preeminencia) y al de relación jurídico-administrativa (sin que una de las partes tenga que ser necesariamente una Administración) para identificar los supuestos de extensión debida del Derecho administrativo. También se sistematizan con arreglo a criterios clasificatorios duales los supuestos normativos de extensión adaptativa que ofrece nuestro ordenamiento. Finalmente, se defiende que todas estas relaciones jurídicas en las que se ejercen funciones públicas se sometan a un régimen de garantía y protección según los parámetros del Derecho administrativo y, sobre todo, que en última instancia sean susceptibles de tutela ante la jurisdicción contenciosa, proponiéndose los ajustes legales necesarios para facilitar el desarrollo de un proceso contencioso-administrativo entre particulares.
In recent decades, Administrative law experienced a significant extension. Three areas in which there is no public administration attract particular interest. This paper names them: assimilative extension, reactive extension, adaptive or substitutive extension. The assimilative extension focuses on the “operational” Administrative law applied to the organization and management of constitutional organisms alien to the executive power. Reactive extension refers to Administrative law applicable to instrumental entities of the public administrations as a limit (or recovery, depending on the perspective) in their recourse to the private-legal system. An adaptive or substitutive extension applies to the heterogeneous and growing phenomenon of private subjects who exercise public functions or collaborate with that exercise. The paper proposes the concepts of public functions (public responsibility tasks whose holder exercises from a position of pre-eminence) and of legal-administrative relationship to identify the cases of due extension of administrative law. Such relationships do not necessarily mean the presence of a public administration as one of its parties. In particular, the paper systematizes normative assumptions of adaptive extension according to dual classification criteria. Finally, all these legal relationships in which public functions are exercised should be subject to a guarantee and protection regime according to the parameters of Administrative law. Above all, in the last instance, they have to receive protection before the particular contentious administrative jurisdiction. Therefore, the paper proposes legal adjustments to facilitate a contentious administrative process between private parties.
In recent decades, Administrative law experienced a significant extension. Three areas in which there is no public administration attract particular interest. This paper names them: assimilative extension, reactive extension, adaptive or substitutive extension. The assimilative extension focuses on the “operational” Administrative law applied to the organization and management of constitutional organisms alien to the executive power. Reactive extension refers to Administrative law applicable to instrumental entities of the public administrations as a limit (or recovery, depending on the perspective) in their recourse to the private-legal system. An adaptive or substitutive extension applies to the heterogeneous and growing phenomenon of private subjects who exercise public functions or collaborate with that exercise. The paper proposes the concepts of public functions (public responsibility tasks whose holder exercises from a position of pre-eminence) and of legal-administrative relationship to identify the cases of due extension of administrative law. Such relationships do not necessarily mean the presence of a public administration as one of its parties. In particular, the paper systematizes normative assumptions of adaptive extension according to dual classification criteria. Finally, all these legal relationships in which public functions are exercised should be subject to a guarantee and protection regime according to the parameters of Administrative law. Above all, in the last instance, they have to receive protection before the particular contentious administrative jurisdiction. Therefore, the paper proposes legal adjustments to facilitate a contentious administrative process between private parties.