Ya se tramita en el Congreso la reforma constitucional que permitirá abrir un nuevo proceso constituyente. Allí se incluye unas “bases constitucionales” a las que la nueva entidad elegida deberá atenerse, con definiciones como que: “Chile es una república democrática, cuya soberanía reside en el pueblo”, con el límite de: “la dignidad de la persona humana y los derechos humanos”. Ahora se agrega como uno de los fundamentos de que la república el que Chile sea: “un estado democrático y social de derecho”. Esta noción es menos conocida y estará sujeta a más interpretaciones y controversias.
Gonzalo Martner
El “Estado democrático de derecho” es el punto de partida y es el que consagra mediante la ley la vigencia de la igualdad de trato y de libertades para todos los miembros de la sociedad sin discriminaciones de clase, etnia o género (derechos civiles). Al mismo tiempo, extiende la esfera de los derechos y de la igualdad ante la ley del dominio civil al dominio político, y establece la primacía de las normas por sobre la mera voluntad de las personas que ejercen cargos de autoridad. El estado democrático establece un orden político basado en procedimientos, en los que las autoridades son seleccionadas por el pueblo entre distintas opciones alternativas, mediante sufragio y según el principio de mayoría, y del derecho periódico de las minorías a transformarse en mayoría. Cualquier persona con derechos de ciudadanía puede ser elegida para ejercer las funciones públicas electivas. Las autoridades ejecutivas pueden actuar solo en el marco de la ley, emanada de representantes constituidos en poder legislativo o directamente mediante referéndum (derechos políticos). El reino de la ley se expresa también a través de un poder independiente encargado de aplicarla (el poder judicial). El estado de derecho y la democracia se articulan así de manera complementaria.
Es la idea democrática de la igual libertad de los individuos, por su parte, la que ha llevado necesariamente desde el estado de derecho liberal al “estado social”. Siguiendo a Hermann Heller, el jurista alemán que fundamentó esta noción a principios del siglo XX, si es que la sociedad permanece como aquella de un estado y el estado es aquel de una sociedad, y si la ley es la forma jurídica, en la que se juega el sistema de interacción y de mediación entre el estado y la sociedad civil, entonces el estado no puede sino ser un estado social. La democracia debe constituirse en un “estado de derecho social” para realizarse plenamente e incluir libertades y derechos fundamentales, con mecanismos que los hagan efectivos y no solo declarativos. En particular, debe impedir el dominio de un poder plutocrático sobre la sociedad, es decir, el control del gobierno por una minoría formada por sus miembros más ricos y, en esa condición, más influyentes.
El estado social resulta así de la premisa según la cual los seres humanos no son individualidades que gozan de una libertad aislada, sino que esta presupone la existencia de una comunidad que garantiza su ejercicio. Este no es el caso de la concepción del estado subsidiario, en donde la comunidad y el estado que la representa deben actuar solo cuando existen límites objetivos en la capacidad individual de interacción con otros. Además, el estado social asume que el individuo pertenece necesariamente a diversas esferas de identidad y acción colectiva, a las que deben reconocerse derechos para que cada cual logre el pleno desarrollo de su personalidad, las llamadas entidades intermedias.
El estado social reconoce, entonces, que el ciudadano es miembro de una comunidad y que tiene derecho a un lugar digno y económicamente seguro en ella. Como señala el jurista Walter Wefers: “esto es lo esencial del principio (del Estado social), cuya perfección depende del progreso practicado por la legislación particular” y de su capacidad material de sustentar ese lugar digno y seguro.
Sí, a los deberes de abstención (libertades) y a los marcos de acción (primacía del derecho) impuestos constitucionalmente al estado, deben agregársele “deberes de prestación positiva” para asegurar ciertas condiciones de existencia a todos los miembros de la sociedad. Que estos deberes de abstención, de acción y de prestación sean llevados o no a la práctica, y en qué condiciones y alcances, dependerá de la dinámica política y económico-social de cada sociedad. Pero su existencia normativa es al menos un punto de partida indispensable para el logro de una mejor vida en sociedad. La nueva Constitución chilena está llamada, en este sentido, a establecer el marco en el que la libertad económica y la propiedad privada, que se garantizan en el acuerdo de “bases constitucionales”, tendrán como límite el interés general.
El estado social incluye, en términos prácticos, la protección social, las regulaciones en materia de negociación colectiva y de acceso y ejercicio del trabajo, los servicios públicos y las políticas económicas de apoyo a la actividad y al empleo, así como su dimensión ambiental para preservar el interés de las futuras generaciones. Esto no excluye que el estado pueda delegar la producción de elementos necesarios para la provisión pública en entidades privadas y remunerarlas por ello, o someterse, cuando es recomendable y posible, a la competencia de entidades privadas con o sin fines de lucro para contrarrestar su eventual burocratización o captura por intereses particulares.
Su fundamento jurídico y valórico primordial es la Declaración Universal de los Derechos Humanos de 1948, la que establece que: “toda persona tiene derecho a un nivel de vida adecuado que le asegure, así como a su familia, la salud y el bienestar, y en especial la alimentación, el vestido, la vivienda, la asistencia médica y los servicios sociales necesarios; tiene asimismo derecho a los seguros en caso de desempleo, enfermedad, invalidez, viudez, vejez u otros casos de pérdida de sus medios de subsistencia por circunstancias independientes de su voluntad”. Esa declaración universal establece que: “toda persona tiene derecho a la propiedad, individual y colectivamente”. Aunque la Declaración señala que: “nadie será privado arbitrariamente de su propiedad”, se infiere que el “derecho a la propiedad” incluye la propiedad privada tradicional. y también a formas de propiedad social y solidaria o de carácter estatal. Sin perjuicio de las normas y recomendaciones de la Organización Internacional del Trabajo y la suscripción posterior de acuerdos internacionales en otros campos, en especial de derechos de la mujer, de los pueblos indígenas, de los migrantes y en contra de las discriminaciones arbitrarias, junto a los compromisos en materia de protección del ambiente, la Declaración Universal de los Derechos Humanos de 1948, el Pacto Internacional de Derechos Económicos, Sociales y Culturales de 1966 y la Convención Americana de 1969 deben ser tomadas, en tanto constituyen tratados internacionales vigentes suscritos por Chile, como la base constitucional del futuro estado social, dado que la reforma constitucional en tramitación los preserva expresamente.
61 comentarios en “El principal desafío en la nueva Constitución: Transitar hacia un estado democrático y social de derechos”
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