El Defensor del Pueblo,la experiencia Latinoamericana: El caso Argentino

In Opiniones
febrero 20, 2021
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Por José Manuel Jerez.-El primer Ombudsman de América Latina aparece en la Constitución Política de Guatemala de 1985, denominándosele, “Procurador de los Derechos Humanos” y, a quien se le asigna el deber de procurar la vigencia y vigilancia de los derechos humanos. Posteriormente, en El Salvador, “El Procurador para la Defensa de los Derechos Humanos”, se establece en la reforma de la Constitución de 1991, con el cometido esencial de promover y proteger los derechos y libertades fundamentales de sus habitantes, a fin de terminar con el conflicto armado y lograr la convivencia de todos los sectores de la vida nacional. En el caso de Argentina, varios legisladores de la Cámara de Diputados presentaron en 1975 un proyecto de ley para establecer la Oficina del Comisionado del Congreso. Esta iniciativa no tuvo éxito debido a la interrupción de la vida institucional que dió lugar el golpe de estado de l976 y que se prolongó hasta 1983. Diez años después de finalizadas las dictaduras militares en 1993 y, durante la presidencia de Carlos Menem, se creó la “Defensoría del Pueblo”, mediante decreto presidencial, sin llegar a designarse su titular hasta que fue regulado a nivel legal a finales de ese mismo año. En 1994 se le otorga a la institución rango constitucional.

El caso Argentino es muy aleccionador, nos muestra el porqué todas las Constituciones políticas, así como las Declaraciones de París y Venecia, insisten en no llevar a esa función estatal a ningún activista político. En efecto, en dicho país, un año antes de la elección de “El Defensor del Pueblo”, Eduardo Mondino “renuncia a su partido y a toda actividad política” con el objetivo de llegar a ser “Defensor del Pueblo”. Logrado su primer objetivo, “este Defensor del Pueblo”, utiliza dicha institución como plataforma política que lo lleve a Senador Nacional por la provincia de Córdoba, Partido Justicialista. ¡Nunca dejó de ser activista político! Ahora, el daño que le infligió a dicha institución y a la democracia Argentina con su renuncia en el 2009, ha mantenido acéfala dicha institución hasta el día de hoy.

Paraguay, que tuvo una dictadura de 1954 a 1989, incorporó la figura del Ombudsman en la Constitución de 1992; sin embargo, los paraguayos tuvieron que esperar nueve años para que se nombrara el primer “Defensor del Pueblo”. Su particularidad radica en que este nace con la potestad de conocer sobre los reclamos indemnizatorios de las víctimas del sistema dictatorial imperante en el país durante dicha dictadura, estableciendo que el mecanismo para tramitar las indemnizaciones debía de ser a través de la Defensoría del Pueblo. Por su parte, en Nicaragua y Honduras, surgió la figura del Ombudsman una vez finalizados los regímenes militares y dictatoriales e iniciada la transición hacia la democracia. En el primero, se le otorgó rango constitucional a la institución en 1995 y, en el caso hondureño, aquel se creó primero mediante decreto ejecutivo en 1992, como un Comisionado, designado por el Presidente de la República. Posteriormente, en la reforma constitucional de diciembre de 1994 y su ratificación correspondiente en febrero de 1995, se instituyó “El Comisionado Nacional de los Derechos Humanos”.

En Bolivia, entre 1979 y 1983, los golpes militares y sucesivas elecciones presidenciales se repitieron en forma alternada. A partir de esa fecha, se inició un proceso de elecciones que, incluso, llevó a la presidencia al ex dictador Bánzer Suárez en 1997, quien renunció en 2001 por razones de salud. Es en este contexto que en 1997, se crea con rango constitucional, la “Defensoría del Pueblo”. Dentro de su mandato cabe destacar que esta institución debe velar por el respeto de la naturaleza multiétnica y pluricultural del país, así como promover y vigilar, los derechos de la mujer, los policías y los militares. Por su lado, los casos de Perú y Colombia son peculiares pues, si bien es cierto no tuvieron dictaduras militares, sí vivieron un conflicto armado de gran magnitud donde las violaciones a los derechos fundamentales fueron masivas y donde también se ha dado una debilidad institucional que no ha permitido el esclarecimiento a muchas de estas violaciones. En ese contexto, surge en Perú, el “Defensor del Pueblo”, en la Constitución de 1993. En Colombia, el Ombudsman surge en 1991, con rango constitucional.

En México, el antecedente más directo data del 13 de febrero de 1989, cuando se conformó la Dirección General de Derechos Humanos dentro de la Secretaría de Gobernación de la federación. “La Comisión Nacional de Derechos Humanos” (CNDH), como tal, fue creada a través de la reforma constitucional del 28 de enero de 1992, la cual le dio el carácter de agencia descentralizada con personería jurídica propia. Otra reforma constitucional del 13 de septiembre de 1999, le concedió su actual autonomía funcional, administrativa y presupuestaria, desvinculándola definitivamente del Poder Ejecutivo.

República Dominicana y Uruguay, incorporaron la institución del Ombudsman por vía legislativa en 2001 y 2008, respectivamente. La Constitución de 2010 elevó a rango constitucional esta figura en República Dominicana, mientras en Uruguay, lo único que ha operado hasta la fecha, es una modificación legislativa de fecha 6 de noviembre de 2011. Siendo Chile la única democracia latinoamericana que aún no cuenta con el Ombudsman o Defensoría del Pueblo, aunque se tiene contemplada para la reforma constitucional de 2022. 

Uno de los elementos claves para la consolidación de la democracia, es la de contar con diversos mecanismos de control para el ejercicio del poder. Lo que se busca con este sistema es el equilibrio entre los diferentes poderes que coexisten en dicha forma de organización del Estado. América Latina no ha sido la excepción y, principalmente, durante los últimos treinta años ha abierto diferentes espacios por medio de los cuales se canalizan los planteamientos y opiniones acerca del funcionamiento del sector público y se exige, además, el respeto efectivo de los derechos e intereses de sus habitantes. Esta apertura es una forma de fortalecer la democracia, de hacerla más participativa y de crear espacios en los cuales la sociedad pueda manifestarse de una forma más organizada. Este es uno de los ámbitos en los que la institución de “El Defensor del Pueblo” puede llegar a desempeñar un papel de significativa trascendencia en la consolidación de las democracias latinoamericanas. Una política de Estado que estimule la creación de organizaciones como las Defensorías, los Comisionados o las Procuradurías de Derechos Humanos, tal y como ha sucedido en América Latina, debe ir acompañada por una estrategia tendente a

fortalecerlas y a dotarlas de total independencia política, administrativa, funcional y presupuestaria. Es decir, que los “Defensores del Pueblo”, deben realizar sus funciones sin interferencia de ningún interés político o poder estatal, así como disponer de un presupuesto anual adecuado aprobado por el Congreso, tener la libertad de darse su propia organización y administrar los recursos necesarios para el optimo logro de sus metas misionales.

Al hacer el análisis de “El Defensor del Pueblo” u Ombudsman en América Latina, es importante destacar, en primer lugar, su fundamento jurídico, ya que en algunos casos se les ha dado rango constitucional y, en otros, uno meramente legal. Esto resulta de sumo interés, ya que del rango legal que se dé a cada “Defensor del Pueblo”, en su Estado respectivo, dependerá su incidencia en la seguridad, independencia, imparcialidad, inmunidades o privilegios, con las que éste cuenta para desempeñar a plenitud sus valiosas y preponderantes funciones. Así pues, de los Estados de América Latina, que cuentan con la figura de “El Defensor del Pueblo”, a la mayoría de ellos se le ha otorgado rango constitucional, ya fuere al momento de su creación o posteriormente, como es el caso de Ecuador, Panamá y República Dominicana. Únicamente, en el caso de Costa Rica, ha sido creada y regulada esta institución, solo por medio de una Ley Orgánica.

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