PORTEKİZ İDARE HUKUKU: ANAYASAL ÇERÇEVE, İDARİ USUL VE YARGISAL DENETİM

Yıl 2023, Cilt: 3 Sayı: 2, 237 - 269, 30.10.2023

Halim Alperen Çıtak

https://doi.org/10.59909/khm.1326386

Öz

Yürürlükteki 1976 tarihli Portekiz Anayasası, uzun süren bir diktatörlük tecrübesinden sonra yapılması sebebiyle, kamu gücü kullanan otoriteleri olabildiğince sınırlamayı amaçlayan, kazuistik ve sert bir anayasadır. İdarenin teşkilatlanmasına ve faaliyetine ilişkin detaylı hükümler içeren, aynı zamanda idari usulün ve idari yargılama usulünün çerçevesini çizen Anayasa, idare hukukunun anayasallaşması olgusuna da örnek teşkil etmektedir. Anayasa’daki etkili yargısal korunma hakkını somutlaştıran 2002 tarihli İdari Yargılama Usulü Kanunu (Código de Processo nos Tribunais Administrativos), başta yargısal emir olmak üzere, idari yargıcı güçlendiren birçok müesseseyi düzenlemektedir. Son versiyonu 2015 yılında yürürlüğe giren İdari Usul Kanunu (Código do Procedimento Administrativo) ise, Anayasa’nın koyduğu esaslar doğrultusunda, idare ile bireyler arasındaki eşitsizliği azaltan çok sayıda yeni çözüm getirmektedir. İdari yargı örgütü bakımından yaklaşık bir buçuk asırdır Fransız modelini benimseyen ülke, yine Anayasa’nın etkisiyle mahkeme tipi örgütlenmeyi (Alman modelini) tercih etmiş durumdadır. Bu makale, Portekiz’de idarenin yargısal denetimine ilişkin anayasal çerçeveyi tasvir etmekte, İdari Usul Kanunu ve İdari Yargılama Usulü Kanunu hakkında temel bilgiler vermekte ve Türk hukuku açısından karşılaştırmalı değerlendirmelerde bulunmaktadır.

Anahtar Kelimeler

Portekiz, İdari Yargı, İdarenin Yargısal Denetimi, İdari Usul, Yargısal Emir

PORTUGUESE ADMINISTRATIVE LAW: CONSTITUTIONAL FRAMEWORK, ADMINISTRATIVE PROCEDURE AND JUDICIAL REVIEW

Öz

The current Constitution of Portuguese Republic (1976) is an entrenched and detailed constitution which aims to limit as much as possible the bodies exercising public power, since it was made after a long period of dictatorship. The Constitution, including detailed provisions on the organization and functioning of the administration and drawing the framework of the administrative procedure and administrative judicial procedure, sets an example for the constitutionalization of administrative law as well. The 2002 Code of Procedure in the Administrative Courts (Código de Processo nos Tribunais Administrativos), which concretizes the constitutional right to effective judicial protection, regulates many institutions strengthening administrative judge, especially the power of injunction. The Code of Administrative Procedure (Código do Procedimento Administrativo), the last version of which came into force in 2015, introduces many new solutions that reduce the inequality between the administration and individuals, in the direction of the principles set by the Constitution. In terms of the organization of the administrative judiciary, Portugal had adopted the French model (Council of State-type) for about a century and a half. With the influence of the Constitution of 1976, German model (court-type) has been preferred. This article describes the constitutional framework regarding the judicial review of the administration in Portugal, gives basic information about the Code of Administrative Procedure and the Code of Procedure in the Administrative Courts and makes comparative evaluations concerning Turkish law.

Anahtar Kelimeler

Portugal, Administrative Justice, Judicial Review of Administration, Administrative Procedure, Injunction

Kaynakça

• Addink, Henk. “The Ombudsman as The Fourth Power: On the Foundations of Ombudsman Law From a Comparative Perspective”. Judicial Lawmaking and Administrative Law. Ed., Stroink, Frits ve Eveline van der Linden. Anvers: Intersentia, 2005: (s. 251-284).
• Akyılmaz, Bahtiyar, Murat Sezginer ve Cemil Kaya. Türk İdare Hukuku. Ankara: Seçkin Yayıncılık, 2023.
• Akyılmaz, Bahtiyar, Murat Sezginer ve Cemil Kaya. Türk İdari Yargılama Hukuku. Ankara: Seçkin Yayıncılık, 2023.
• Alberts, Susan, Chris Warshaw ve Barry R. Weingasts. “Democratization and Countermajoritarian Institutions: Power and Constitutional Design in Self-Enforcing Democracy”. Comparative Constitutional Design. Ed., Ginsburg, Tom. New York: Cambridge University Press, 2012: (s. 69-100).
• Avrupa Konseyi. “Türk Heyetinin İdari Yargı Alanında Lizbon Çalışma Ziyareti”. Son güncelleme 30.06.2023, https://www.coe.int/tr/web/ankara/news.
• Biagi, Francesco. European Constitutional Courts and Transitions to Democracy. Cambridge: Cambridge University Press, 2020.
• Birmingham, David. A Concise History of Portugal. Cambridge: Cambridge University Press, 2018.
• Boyron, Sophie. “Semi-Presidentialism: The Rise of an ‘Accidental’ Model”. The Oxford Handbook of Compa-rative Administrative Law. Ed., Cane, Peter, Herwig C. H. Hofmann, Eric C. Ip ve Peter L. Lindseth. Oxford: Oxford University Press, 2021: (s. 388-418).
• Bravo, Bárbara, Isabela de Melo ve Carlos Branco. “Administrative Democratization: the Participation of Citi-zens in the Portuguese Administrative System”. Practical Aspects Regarding the Role of Administrative Law in the Modernization of Public Administration. Ed. Méndez-Pinedo, M. Elvira, Jakub Handrlica ve Cătălin-Silviu Săraru, Bükreş: ADJURIS, 2019: (s. 150-166).
• Brenninkmeijer, Alex, Laura Frederika Lalikova ve Dylan Siry. “Public Audit Accountability”. The Oxford Handbook of Comparative Administrative Law. Ed., Peter Cane, Herwig C. H. Hofmann, Eric C. Ip ve Peter L. Lindseth. Oxford: Oxford University Press, 2021: (s. 987-1012).
• Brewer-Carías, Allan R. Constitutional Courts as Positive Legislators. New York: Cambridge University Press, 2017. Cohen-Eliya, Moshe ve Iddo Porat. “The Administrative Origins of Constitutional Rights and Global Constitutionalism”. Proportionality: New Frontiers, New Challenges. Ed., Jackson, Vicki C. ve Mark Tushnet. New York: Cambridge University Press, 2017: (s. 103-129).
• Comella, Víctor Ferreres. “The Rise of Specialized Constitutional Courts”. Comparative Constitutional Law. Ed., Ginsburg, Tom ve Rosalind Dixon. Northampton: Edward Elgar Publishing, 2011: (s. 265-277).
• Correia, Sérvulo. “Judicial Resolution of Administrative Disputes”. Comparative Law: Portuguese-American Perspectives (Volume I). Ed., Vicente, Dário Moura. Almedina: Livraria Almedina, 2006. https://www.servulo.com/xms/files/OLD/publicacoes/Jud_Resol_SC_05.pdf, (erişim: 10.07.2023).
• Da Silva, Virgílio Afonso. “Beyond Europe and the United States: The Wide World of Judicial Review”. Comparative Judicial Review. Ed., Delaney, Erin F. ve Rosalind Dixon. Northampton: Edward Elgar Publishing, 2018: (s. 318-336).
• De Figueiredo, Antonio. Portugal: Fifty Years of Dictatorship. Middlesex: Penguin Books, 1975.
• De Freitas, Tiago Fidalgo. “Administrative Transparency in Portugal”. European Public Law. 22/4 (2016): (s. 667-688).
• De Lima, Débora Reis, Willian Batista de Oliveira ve Sónia P. Nogueira. “Principles of the Administrative Pro-cedure Code and their Contributions to Accountability: the Portuguese Case”. Journal of Accounting, Ma-nagement and Governance. 24/3 (2021): (s. 438-455).
• De Sousa Ribero, Joaquim ve Esperança Mealha. “Portugal”. Constitutional Courts as Positive Legislators. New York: Cambridge University Press, 2017: (s. 721-734).
• Diário da República. “Associação publica”. Son güncelleme 30.06.2023. https://diariodarepublica.pt/dr/lexionario/termo/associacao-publica.
• Encyclopaedia Britannica. “Portugal”. Son güncelleme 24.06.2023. https://www.britannica.com/place/Portugal.
• Fabbrini, Federico. Economic Governance in Europe: Comparative Paradoxes, Constitutional Challenges. Oxford: Oxford University Press, 2016.
• Feijó, Rui Graça. Presidents in Semi-Presidential Regimes: Moderating Power in Portugal and Timor-Leste. Cham: Palgrave Macmillan, 2021.
• Figueiredo Dias, José Eduardo. “Portugal”. Codification of Administrative Procedure. Ed., Jean-Bernard Auby. Brüksel: Bruylant, 2013: (s. 345-353).
• Fundação Francisco Manuel dos Santos. “O que são os tribunais arbitrais e como funcionam?”. Son güncelleme 10.07.2023. https://ffms.pt/pt-pt/direitos-e-deveres/o-que-sao-os-tribunais-arbitrais-e-como-funcionam. Gargarella, Roberto. “The Constitution and Justice”. The Oxford Handbook of Comparative Constitutional Law. Ed., Rosenfeld, Michel ve András Sajó. Oxford: Oxford University Press, 2012: (s. 336-350).
• Garoupa, Nuno ve Lydia Tiede. “Judicial Politics in Portugal”. The Oxford Handbook of Portuguese Politics. Ed., Fernandes, Jorge M., Pedro C. Magalhães ve António Costa Pinto. Oxford: Oxford University Press, 2023: (s. 164-180).
• Gerkrath, Jörg. “Are ‘Octroyed Constitutions’ of the 19th Century to be Considered as Imposed Constitutions?”. The Law and Legitimacy of Imposed Constitutions. Ed., Albert, Richard, Xenophon Contiades ve Alkmene Fotiadou. New York: Routledge, 2019: (s. 120-139).
• Harden, Ian. “Ombudsmen and Complaint-Handling”. The Oxford Handbook of Comparative Administrative Law. Ed., Cane, Peter, Herwig C. H. Hofmann, Eric C. Ip ve Peter L. Lindseth. Oxford: Oxford University Press, 2021: (s. 963-986).
• Hirschl, Ran. “Judicial Review and the Politics of Comparative Citations: Theory, Evidence and Methodological Challenges”. Comparative Judicial Review. Ed., Delaney, Erin F. ve Rosalind Dixon. Northampton: Edward Elgar Publishing, 2018: (s. 403-422).
• Hoque, Ridwanul. “Eternal Provisions in the Constitution of Bangladesh: A Constitution Once and for All?”. An Unamendable Constitution? Unamendability in Constitutional Democracies. Ed., Albert, Richard ve Bertil Emrah Oder. Cham: Springer, 2018: (s. 195-230).
• Jacobini, H. B. An Introduction to Comparative Administrative Law. New York: Oceana Publications, 1991. Kissane, Bill ve Nick Sitter. “National Identity and Constitutions in Modern Europe: Into the Fifth Zone”. Comparative Constitution Making. Ed., Landau, David ve Hanna Lerner. Northampton: Edward Elgar Publishing, 2019: (s. 408-426).
• Kızıl Erkelli, Neşe. “Portekiz’de İdari Reform Projesine İlişkin Bazı Notlar”. İdare Hukuku ve İlimleri Dergisi. 6/1-3 (1985): (s. 181-188).
• Kosař, David. Perils of Judicial Self-Government in Transitional Societies: Holding the Least Accountable Branch to Account. Cambridge: Cambridge University Press, 2016.
• Magalhães, Pedro C. “Explaining the Constitutionalization of Social Rights: Portuguese Hypotheses and a Cross-National Test”. Social and Political Foundations of Constitutions. Ed., Galligan, Denis J. ve Mila Versteeg. New York: Cambridge University Press, 2013: (s. 432-468).
• Napolitano, Giulio. “Looking for a Smarter Government (and Administrative Law) in the Age of Uncertainty”. Comparative Administrative Law. Ed., Rose-Ackerman, Susan, Peter L. Lindseth ve Blake Emerson. Nort-hampton: Edward Elgar Publishing, 2017: (s. 352-369).
• Napolitano, Giulio. “The Rule of Law”. The Oxford Handbook of Comparative Administrative Law. Ed., Cane, Peter, Herwig C. H. Hofmann, Eric C. Ip ve Peter L. Lindseth. Oxford: Oxford University Press, 2021: (s. 519-547).
• OECD. Making Life Easy for Citizens and Businesses in Portugal: Administrative Simplification and e-Government. 2008. https://www.oecd.org/mena/governance/42600869.pdf, (erişim: 26.06.2023).
• Ongaro, Edoardo. Public Management Reform and Modernization: Trajectories of Administrative Change in Italy, France, Greece, Portugal and Spain. Northampton: Edward Elgar Publishing, 2009.
• Opello, Walter C. Jr. Portugal’s Political Development. Londra: Westview Press, 1985.
• Pedro, Ricardo. “Administrative Arbitration in Public Procurement in Portugal”. European Procurement & Public Private Partnership Law Review. 15/3 (2020): (s. 225-235).
• Raimundo, Miguel Assis, João Tiago Silveira, Tiago Fidalgo de Freitas ve Gonçalo De Andrade Fabião. “Admi-nistrative Silence in Portugal”. The Sound of Silence in European Administrative Law. Ed., Dragos, Dacian C., Polonca Kovac ve Hanna D. Tolsma. Cham: Palgrave Macmillan, 2020: (s. 279-307).
• República Portuguesa. “Justice”. Son güncelleme 07.07.2023. https://www.portugal.gov.pt/en/gc21/ministries/justice/about.
• Scotti, Valentina Rita. “Unamendable Constitutional Provisions and the European Common Constitutional Heritage: A Comparison Among Three Waves of Constitutionalism”. An Unamendable Constitution? Unamendability in Constitutional Democracies. Ed., Albert, Richard ve Bertil Emrah Oder, Cham: Springer, 2018: (s. 365-390).
• Secretária de Estado Adjunta e da Modernização Administrativa. Relatório da Volta SIMPLEX+. 2016. https://www.simplex.gov.pt/app/files/33d9ef89f2328ba7f54385c3927153b9.pdf, (erişim: 08.07.2023).
• Silveira, João Tiago, Tiago Fidalgo de Freitas, Gonçalo de Andrade Fabião ve Miguel Assis Raimundo. “The Simplification of Procedures in Portuguese Administrative Law”. Lisbon Public Law Working Paper Series. 2022-01. SIMPLEX. “O que é o Programa SIMPLEX?”. Son güncelleme 26.06.2023. https://www.simplex.gov.pt/.
• Supremo Tribunal Administrativo. “Apresentação”. Son güncelleme 30.06.2023. https://www.stadministrativo.pt/tribunal/apresentacao_pt/.
• Tavares, António F. “Bureaucracy and Public Administration”. The Oxford Handbook of Portuguese Politics. Ed., Fernandes, Jorge M., Pedro C. Magalhães ve António Costa Pinto. Oxford: Oxford University Press, 2023: (s. 197-211).
• Teles, Filipe. “Public Administration in Portugal”. European Perspectives for Public Administration: The Way Forward. Ed., Bouckaert, Geert ve Werner Jann. Leuven: Leuven University Press, 2020: (s. 439-454).
• Tushnet, Mark. Weak Courts, Strong Rights: Judicial Review and Social Welfare Rights in Comparative Constitutional Law. Princeton: Princeton University Press, 2008.
• Türkoğlu Üstün, Kamile. “Almanya’da İdari Yargının Tarihi Gelişimi”. Prof. Dr. Metin Günday Armağanı (2. Cilt). Ankara: Atılım Üniversitesi Yayınları, 2020: (s. 1443-1468).
• Varol, Ozan O. “Constitutional Performance in Transitions from Military to Civilian Rule”. Assessing Constitutional Performance. Ed., Ginsburg, Tom ve Aziz Z. Huq. New York: Cambridge University Press, 2016: (s. 145-170).
• Yıldız, A. Çağrı. Alman İdari Yargılama Hukukuna Özgü Bir Dava Türü: Yükümlülük Davası. İstanbul: On İki Levha Yayıncılık, 2021.