Fuqia juridike e aktit administrativ

Dr. Sokol Sadushi

A.  Kuptimi i fuqisë juridike të aktit

           Qëllimi i nxjerrjes së një akti administrativ është krijimi i efekteve juridike për subjektet të cilëve ai u drejtohet. Nuk mund të kuptohet nxjerrja e aktit administrativ nga një organ kompetent, pa fuqinë e tij juridike. Organet administrative, kur nxjerrin një akt juridik, kanë parasysh që vullneti juridik i pushtetit të gjej në të shprehjen e plotë dhe të qartë, si dhe sa do t’i shërbejë vetë akti nevojave të kohës. Këto kërkesa duhet të vlerësohen përpara ose gjatë nxjerrjes së aktit për arsye se deklarimi i vullnetit të pushtetit në akt është i lidhur ngushtë me krijimin, ndryshimin ose shuarjen e pasojave juridike.

            Akti administrativ, si rregull, lind të drejta e detyrime të caktuara, krijon dobi a favore, si dhe prek interesa të caktuara të personave që u drejtohet. Prandaj, krahas kërkesave për një përmbajtje ligjore që duhet të ketë akti administrativ, rëndësi paraqesin dhe çështjet që lidhen me fuqinë juridike të aktit.

            Fuqia juridike e aktit administrativ, ashtu si dhe për çdo akt legjislativ a gjyqësor, është e ndërvarur nga disa faza ose momente juridike të rëndësishme, mosrespektimi i të cilave sjell pafuqinë juridike të aktit. Fuqia juridike e aktit administrativ njësohet me terminologjinë e përdorur aq shpesh në praktikë, kur themi se akti ka hyrë në fuqi. Tri janë fazat në të cilat zbërthehet koncepti i fuqisë juridike të aktit administrativ.

            Faza e parë lidhet me momentin e nxjerrjes së aktit nga organi administrativ kompetent; faza e dytë është njohja e përmbajtjes së aktit nga subjektet e interesuara; faza e tretë lidhet me efektin e vonuar të fuqisë së aktit.

1.  Nxjerrja e aktit administrativ

            Me nxjerrjen e aktit, organi administrativ shpreh në mënyrë të qartë e të plotë vullnetin shtetëror. Organi administrativ nëpërmjet aktit shpreh vullnetin juridik, duke qartësuar se cilat janë të drejtat dhe detyrimet që rrjedhin nga përmbajtja e tij. Nxjerrja e aktit paraqitet e ndryshme në organe të administratës. Në këtë aspekt ndikon forma ose përmbajtja e aktit, si dhe elemente të tjera të veçanta që janë karakteristike për organin administrativ. Kështu, procedura që ndiqet nga organi monokratik nuk mund të jetë e njëjtë me atë të një organi kolegjial. Rregullat që zbatohen në procedurat e organeve kolegjiale janë më të hollësishme dhe më të ndërlikuara. Nuk mund të ketë thjeshtësinë dhe shpejtësinë e urdhrit të nxjerr nga Kryeministri, ministri ose kryetari i bashkisë një vendim i Këshillit të Ministrave ose i këshillit të bashkisë. Pra, struktura e organit, si dhe karakteri i përmbajtjes së vet aktit ndikojnë në këtë drejtim.

            Për nxjerrjen e aktit administrativ nga një organ individual mjafton formulimi dhe nënshkrimi i tij nga titullari, që akti të sjellë efekte juridike. Kështu p.sh., urdhri i Kryeministri për emërimin e një funksionari i fillon efektet juridike me nënshkrimin e tij, pa qenë i nevojshëm kalimi në të gjitha fazat. 

            Në rastet e organeve kolegjiale, si p.sh. të Këshillit të Ministrave ose të këshillit të bashkisë së një qyteti, miratimi i aktit kërkon një procedurë jo aq të thjeshtë sa në rastin e nxjerrjes së aktit nga organi individual. Nxjerrja e aktit kalon në një procedurë më të gjatë, e cila nuk mund të mënjanohet, sepse përndryshe sjell pasoja të pavlefshmërisë së aktit. Kështu, nxjerrja e aktit kalon në fazën përgatitore, ku kryhen veprime me karakter teknik ose material, bëhen studime, analiza, diskutime e redaktime të projektaktit, me qëllim që ai të bëhet sa më i saktë dhe i bazuar në ligj. Pas kësaj projektakti kalon për shyrtim në mbledhjen e organit kolegjial.

            Përpara se të marrë formën e aktit administrativ, është e detyrueshme që projekti të diskutohet nga të gjithë anëtarët e organit kolegjial, të cilët kanë të drejtë të shprehen për plotësimin, modifikimin ose edhe ndryshimin në dispozita të veçanta ose në tërësi të projektaktit konkret. Pas diskutimit, projektakti hidhet në votim. Votimi është momenti përfundimtar që e shndërron projektaktin në akt administrativ. Pra, pavarësisht se me hedhjen në votim dhe me miratimin e tij akti mund të mos paraqitet i plotë për arsye të mosformulimit të tij me të gjitha ndryshimet që mund t’i jenë bërë gjatë diskutimit, ai konsiderohet se është marrë. Momenti i votimit, i cili pasqyrohet në procesverbalin e mbledhjes së organit, është vendimtar për aktin. Kështu, p.sh., projektvendimet e Këshillit të Ministrave konsiderohen të miratuar si akte nga çasti që janë votuar dhe regjistruar në procesverbalin përkatës. 

            Marrja e formës juridike për aktin është momenti fillestar që duhet të pasohet nga faza të tjera, me qëllim që të prodhojë pasojat e dëshiruara. Megjithatë, duke kuptuar specifikën e aktit administrativ, si dhe veçoritë e organit nuk përjashtohen rastet që ai të fillojë të veprojë dhe të sjellë efekte juridike nga momenti i nxjerrjes, pa qenë nevoja e vënies në dijeni të përmbajtjes së tij personave të interesuar. Raste të tilla, të cilat nuk janë të pakta në praktikën administrative, përbëjnë një përjashtim nga rregulli i përgjithshëm, sipas të cilit akti duhet të ndjekë të gjitha fazat, për të prodhuar efekte juridike. Të tilla janë si p.sh., aktet administrative në formën e gjobës që vendosen nga punonjësit e qarkullimit rrugor për drejtuesit e automjeteve, të cilët nuk zbatojnë dispozitat e Kodit Rrugor. Gjoba në këtë rast, që është një formë e aktit administrativ, sjell efektin e saj juridik edhe pa qenë të pranishëm drejtuesit e automjeteve. Gjobat që vendosen në rastin e ndalimit a parkimit të automjeteve në trotuare a vende të ndaluara dhe të tjera raste të ngjashme me to, sjellin efekte, qoftë kur ato nxirren në prani të drejtuesve të automjeteve, ashtu dhe në mungesë të tyre. Në raste të tilla gjoba vendoset në pjesën e përparme të automjetit. Akti administrativ konsiderohet i nxjerrë pa qenë i nevojshëm kalimi në të tri fazat e fuqisë juridike.  Subjektit të cenuar nga një masë e tillë ndëshkimore i lind e drejta të ankohet në organet kompetente vetëm për paligjshmërinë e gjobës dhe jo për mënyrën e nxjerrjes së saj, sepse procedura prezumohet e ligjshme.

            Ka raste në praktikën administrative kur nxjerrja e aktit bëhet në moment, aty për aty dhe pa qenë i nevojshëm respektimi i procedurës ligjore. Kjo ndodh kryesisht në veprimtarinë e organeve monokratike, kur aktet janë të formës verbale. P.sh., kur ministri urdhëron një punonjës të aparatit të tij të ushtrojë një kontroll në një institucion ose hallkë që është në varësinë e tij, ose të kryejë një punë të caktuar. Në këtë rast akti administrativ quhet i nxjerrë menjëherë, sepse dhënia e urdhrit u bë në çast.

            Faza e parë që ka të bëjë me nxjerrjen e aktit administrativ nga organi kompetent, si rregull nuk përkon në kohë me dy fazat e tjera. Kjo është procedurë normale që ndjek akti për të fituar fuqinë juridike. Me qëllim që akti të bëhet i zbatueshëm, është e nevojshme që të kalojë një kohë e caktuar nga momenti i  nxjerrjes deri tek hyrja e tij në fuqi. Kjo kohë nevojitet për njohjen dhe kuptimin sa më të plotë të urdhërimeve që parashikon akti administrativ për subjektet e interesuara.

2. Njohja e përmbajtjes së aktit nga subjektet e interesuara.

           Akti administrativ nxirret me qëllim që të rregullojë marrëdhënie të caktuara juridike. Siç dihet marrëdhënia administrative juridike krijohet midis subjekteve të saj, ku nga njëra anë është organi i administratës publike që ka nxjerrë aktin dhe nga ana tjetër janë subjektet të cilave u drejtohen urdhërimet e tij. Me qëllim që të realizohen efektet e aktit juridik dhe që këto subjekte të bashkëveprojnë për përmbushjen e të drejtave dhe detyrimeve që rrjedhin prej tij, është e domosdoshme të njihen me përmbajtjen e aktit. Ky është momenti i dytë i rëndësishëm që lidhet me fuqinë juridike të aktit administrativ.

            Legjislacioni e parashikon formën që duhet të marrë një akt administrativ. Sipas nenit 106 të Kodit të Procedurave Administrative, aktet kanë formë shkresore, me përjashtim të rasteve kur me ligj kërkohet një formë tjetër ose kur një gjë të tillë imponohet nga rrethanat. Kështu, sipas rasteve, një zyrtari ose organi administrativ i kërkohet të njoftojë me shkrim zbatuesin e vendimit. Aty ku nuk është bërë një parashikim i tillë, forma shkresore ose verbale që do të marrë akti juridik, ndryshon sipas kushteve dhe rrethanave në të cilat merret.

            Njihen disa mënyra për realizimin e fazës së dytë të marrjes së fuqisë detyruese të aktit. Aspekti më i rëndësishëm është njoftimi i përmbajtjes së aktit subjekteve që janë të lidhura në mënyrë të drejtpërdrejt me të. Palët e interesuara duhet të njoftohen për aktet administrative. Nëpërmjet akteve administrative organet shprehin vullnetin e tyre për pretendimet që kanë patur subjektet konkrete, vendosen detyrime, ndëshkime ose shkaktohen dëme, krijohen, zhduken, zgjerohen ose kufizohen interesat ose të drejtat legjitime të palëve, ose preken në ndonjë mënyrë tjetër kushtet për ushtrimin e tyre etj.[1]

            Akti administrativ konsiderohet se i është njoftuar nga autoriteti shtetëror subjekteve të interesuar nga momenti i kryerjes së atyre veprimeve që kërkon ligji për t'u quajtur akti i shpallur. Kur një subjekt preket drejtpërdrejt nga veprimi administrativ, atij i duhet bërë njoftimi vetjak mbi veprimin e kryer. Njoftimi duhet të jepet në atë mënyrë që mendohet se është e sigurt dhe se atij do t'i shkojë ky njoftim.

            Momenti i njoftimit të aktit është një aspekt i rëndësishëm ligjor, sepse me të lidhen të drejta dhe detyrime njëkohësisht. Në qoftë se ligji nuk e lidh fuqinë juridike të aktit me ndonjë moment tjetër procedural, siç janë botimi, kundërfirmimi, efekti pezullues ose afati kohor, atëherë njoftimi bëhet momenti vendimtar që përcakton pasojat juridike të tij. Nga ky moment i kërkohet subjektit zbatimi i urdhërimeve të aktit dhe njëkohësisht i fillon atij përgjegjësia ligjore për moszbatim. Nga momenti i njoftimit subjektit i lind e drejta të ankohet ndaj aktit në organin më të lartë administrativ ose në gjykatë.

            Në Kodin e Procedurave Administrative janë parashikuar llojet e njoftimit të aktit si dhe afatet kohore për bërjen e tij. Në rastet kur aktet vendosin detyrime ose ndëshkime për palët njoftimi është i detyrueshëm. Mënyrat e kryerjes së njoftimit janë të ndryshme. Njihen dhe praktikohen njoftimet me anë të postës, me kusht që të ketë shërbim postar derë më derë në vendin e banimit ose qendrën e punës së palës që duhet të njoftohet, si dhe njoftimet vetjake, në rast se kjo formë e njoftimit nuk e kompromenton shpejtësinë e zhvillimit të procedimit, ose kur njoftimi me postë nuk është i mundur të kryhet. Forma të tjera njoftimi janë: me telegram, telefon, teleks ose faks në rastet e urgjencës, me lajmërim publik, i cili afishohet në vende publike, nëpërmjet një lajmërimi që botohet në gazetën e pushtetit vendor ose në dy gazetat më të lexuara në vendin e banimit ose të punës të palëve që duhen njoftuar, në rastet kur palët e interesuara janë të panjohura, ose në numër aq të madh saqë çdo formë tjetër njoftimi vlerësohet si e papërshtatshme.[2] Në rastet kur njoftimi bëhet me telegram, telefon, teleks ose faks, ai duhet të konfirmohet nga organi që bën njoftimin në ditën pasardhëse të punës, pavarësisht se si rregull njoftimi quhet se është bërë në datën e komunikimit të parë.  

            Lajmërimi i veprimit ose aktit administrativ mundet, sipas rëndësisë të mos përmbajë deklarimin e arsyeve mbi të cilat është bazuar. Përgjithësisht është e rëndësishme  të jepen detaje të mjaftueshme në lidhje me kuptimin dhe efektin e aktit, pasi në mungesë të tyre, ai mund të bëhet i pavlefshëm për pasaktësi. Nga ky këndvështrim, njoftimi do të konsiderohet i kryer kur ai të përmbajë tekstin e plotë të aktit administrativ, emrin e personit përgjegjës për aktin dhe datën e këtij të fundit, organin që ka juridiksion për të vendosur për apelimet kundër aktit dhe afatet kohore për këtë qëllim etj.

            Teksti i plotë i aktit mund të zëvendësohet me një përmbledhje të përmbajtjes dhe objektit të tij, në rastet kur i ka plotësuar kërkesat e formuluara nga palët e interesuara ose kur akti ka të bëjë me marrjen e masave procedurale. Në raste të veçanta nuk ekziston detyrim i administratës për të njoftuar në lidhje me aktet administrative. Kjo mënyrë është e pranueshme kur aktet administrative komunikohen verbalisht dhe në prani të palëve të interesuara ose kur pala e interesuar merr pjesë në zhvillimin e procedimit administrativ dhe shfaq njohuri të plota për aktin administrativ në fjalë.[3]  

            Në ndonjë rast fillimi i kryerjes së disa veprimeve konkrete nga organet e caktuara për zbatimin e aktit luan në të njëjtën kohë edhe rolin e njoftimit të përmbajtjes së tij personave të interesuar. Me kryerjen e këtyre veprimeve lind detyrimi për këta persona që të marrin masa për zbatimin e aktit: P.sh., inspektori i sigurimit teknik në një objekt ndalon punën e makinerive të caktuara, të cilat nuk kanë kushtet për specialistët për të kryer punë normale dhe pa rreziqe. Në këtë rast procesverbali që ai përpilon përmban detyrimin për subjektin që i drejtohet, që të marrë masat përkatëse për ndreqjen e gjëndjes. Pezullimi i punimeve në një objekt që ndërtohet pa leje ose në kundërshtim me rregullat urbanistike është njëkohësisht edhe njoftim i përmbajtjes së aktit dhe i zbatimit të urdhërimeve të tij.

            Kodi i Procedurave Administrative ka parashikuar edhe afatet kohore për njoftimet. “Përveç rasteve kur me ligj vendoset ndryshe, aktet administrative duhet të njoftohen brenda 8 ditësh. Afatet fillojnë të llogariten që nga data që pason ditën në të cilën nxirret akti ose data kur palët e interesuara marrin pjesë në procedimin administrativ"[4]. Respektimi i afateve kohore të njoftimit lidhet me realizimin e të drejtës së ankimit ndaj paligjshmërisë së aktit në organet kompetente. Prandaj, në llogaritjen e afateve kohore nuk përfshihet dita e nxjerrjes së aktit, si dhe ditët e pushimit (ditët e shtuna, të diela dhe festat zyrtare).  

            Një tjetër veprim procedural, që përdoret gjatë fazës së dytë të fuqisë juridike të aktit, është botimi i njoftimit, si dhe botimi i aktit. Këto dy forma njoftimi, si rregull nuk janë të njëjta dhe për këtë arsye janë parashikuar në dispozita të veçanta në Kodin e Procedurave Administrative. Neni 60 i Kodit të Procedurave Administrative e parashikon njoftimin e aktit nëpërmjet lajmërimit publik ose botimit të lajmërimit, ndërsa neni 114 parashikon botimin e plotë të aktit si një veprim i domosdoshëm që ai të marrë fuqinë juridike.

            Kështu, akti bëhet i njohur nëpërmjet lajmërimit publik. Ky lajmërim afishohet në vende publike dhe zakonisht përdoret për aktet që nxjerrin organet e pushtetit vendor ose të njësive më të ulta administrative operative në bazë. Ka një mënyrë tjetër të njoftimit nëpërmjet një lajmërimi që botohet në gazetën e pushtetit vendor ose në dy gazetat më të lexuara në vendin e banimit ose në vendin e punës së palëve që duhen njoftuar. Ky lloj njoftimi përdoret vetëm në rastet kur palët e interesuara janë të panjohura ose mund të jenë në numër aq të madh, sa çdo mënyrë tjetër njoftimi vlerësohet si e papërshtatshme. Kjo mënyrë njoftimi përfshin si bërjen publike nëpërmjet një lajmërimi ku thuhet se është nxjerrë një akt administrativ, ashtu edhe njohjen nga të interesuarit të përmbajtjes së plotë të aktit konkret.[5] Në praktikë një numër i madh lajmërimesh të organeve administrative botohen në gazeta, por megjithatë kjo nuk mund të jetë më shumë se sa një fraksion i vogël i akteve administrative që janë marrë në fakt.

            Në praktikën administrative ka raste të cilat nuk kanë nevojë për botimin e njoftimit. Kjo ndodh kur nuk ka palë të treta të prekura në procedim administrativ. Zakonisht palët e interesuara janë në kontakt vetjak me organin që nxjerr aktin, për arsye se janë të interesuara për nxjerrjen e tij ose e kanë vënë vetë atë në lëvizje. Ashtu siç mund të ndodh që njoftimi i aktit ose botimi, në mënyrë të veçantë në rastet e emergjencës ose të gjendjes së jashtzakonshme, mund të mos jetë praktik. Ndonjëherë, aktet administrative, që prekin një numër të madh njerëzish, nuk mund të botohen, për arsye se botimi i tyre nuk paraqet ndonjë rëndësi. Ligji duhet vetë të parashikojë që për raste konkrete të lidhë detyrimin për botimin e këtij akti ose njoftimi me efektet juridike. Janë botimet e njoftimit që bëhen për zhvillimin e ankandit për një ose disa objekte, të cilat kalojnë në proces privatizimi ose për zhvillimin e prokurimeve me fonde publike (tenderat) etj. Këto njoftime duhet detyrimisht të bëhen publike në shtyp ose në media elektronike, sepse përndryshe akti administrativ konkret që është nxjerrë mbi një procedurë me mangësi të tilla ligjore mund të shpallet i pavlefshëm.

            Një tjetër formë për vënien në dijeni të të interesuarve për përmbajtjen e akteve administrative është botimi në Fletoren Zyrtare dhe në buletinet e posaçme. Data e hyrjes në fuqi të akteve administrative shpesh caktohet në vetë aktin administrativ dhe përcaktohet rast pas rasti nga karakteri i përmbajtjes së aktit, rëndësia e pasojave që krijon ai, rrethi i personave që u drejtohet etj.

            Botimi në Fletoren Zyrtare është një formë e veçantë e publikimit të aktit. Ky botim zbatohet për një kategori të caktuar aktesh juridike që nxjerrin organet e larta të administrates që përcaktohet nga rëndësia e aktit dhe e marrëdhënieve juridike që ai rregullon. Momenti i botimit është vendimtar për arsye se nga ky çast lindin për subjektet, të cilëve u drejtohet akti, të drejta dhe detyrime ligjore. Botimi në Fletoren Zyrtare nuk është i detyrueshëm për të gjitha aktet që nxjerrin organet e larta të administratës publike. Botimi i akteve administrative është i detyrueshëm vetëm kur një gjë e tillë kërkohet nga ligji.[6] Mosbotimi i aktit, kur kjo kërkohet nga ligji, shkakton moshyrjen në fuqi të tij.

            Kushtetuta e Republikës së Shqipërisë këtë moment të rëndësishëm juridik e ka sanksionuar për një kategori të caktuara të akteve juridike. Sipas nenit 117 të Kushtetutës, aktet normative që nxjerr Këshilli i Ministrave, ministrat dhe institucionet e tjera qëndrore të administrates marrin fuqi juridike, vetëm pasi botohen në Fletoren Zyrtare. Për vetë rëndësinë që paraqesin aktet normative në dallim nga aktet individuale, kuptimi i të cilave është shtjelluar në kreun e klasifikimit të akteve, Kushtetuta i ka dhënë atyre fuqi të ndryshme juridike. Një vendim i Këshillit të Ministrave me karakter normativ, që parashikon rregulla të detyrueshme sjelljeje për subjekte të ndryshme, nuk merr fuqi juridike pa u botuar në Fletoren Zyrtare. Ndërsa për aktin individual ky rregull i botimit në Fletoren Zyrtare nuk parashikohet në Kushtetutë, por në ligj. Konkretisht në nenin 114, pika 3 të Kodit të Procedurave Administrative parashikohet se në rastet kur botimi i aktit është i detyrueshëm, ai botohet në Fletoren Zyrtare brenda 30 ditëve nga miratimi. Kjo dispozitë nuk qartëson se cilat akte individuale duhet të botohen në Fletoren Zyrtare. Kjo nënkupton se mbetet në diskrecionin e ligjvënësit përcaktimi i rasteve se kur akti individual domosdoshmërisht duhet të botohet në Fletoren Zyrtare. Kështu psh në ligjin për sigurimet dhe risigurimet është parashikuar se dhënia e licencës nga Autoriteti i Mbikqyrjes Financiare, si një akt individual, duhet të botohet në Fletoren Zyrtare. I njëjti formulim është edhe në ligjin për radiotelevizionet publike dhe private.   

            Akti ose veprimi administrativ sanksionon rregulla sjellje dhe vendos norma të detyrueshme për organet dhe shtetasit në përgjithësi. Prandaj ai duhet të botohet me qëllim që të mos mbetet i panjohur për ta. Në praktikën administrative ka akte, kryesisht normative, të cilat janë zbatuar dhe kanë krijuar pasoja juridike midis subjekteve të së drejtës, ndërkohë që nuk janë botuar në Fletoren Zyrtare. Mosplotësimi i një detyrimi të tillë kushtetues e bën atë të papajtueshëm me Kushtetutën dhe pa asnjë efekt ligjor.[7] Prandaj botimi i këtyre akteve në Fletoren Zyrtare nuk ka thjeshtë karakter teknik, por merr efektet e një detyrimi kushtetues dhe me pasoja juridike.

Fuqia detyruese e aktit administrativ ndaj subjekteve, të cilëve u drejtohet, është e lidhur me momentin se kur bëhet e zbatueshme kjo fuqi e aktit. Pra, pas kryerjes së njoftimit të aktit ose pas botimit, ai fillon të marrë fuqinë juridike. Mbi subjektet, të cilëve u drejtohet ky akt, rëndon detyrimi për zbatimin e urdhërimeve që parashikohen në të. Nga kryerja e këtyre veprimeve ekziston prezumimi ligjor se për përmbajtjen e aktit janë në dijeni subjektet e interesuara. Për rrjedhojë, ato nuk mund të përjashtohen nga përgjegjësia për mosplotësimin e detyrimeve që rrjedhin nga akti, me pretendimin se nuk janë njoftuar për përmbajtjen e tij. Nga momenti ose data që vërtetohet se ekziston prezumimi ligjor, fillojnë efektet juridike dhe zbatimi i aktit administrativ bëhet i detyrueshëm. Prandaj hyrja në  fuqi e aktit administrativ paraqet rëndësi të veçantë për trajtimin teorik dhe praktik të fuqisë detyruese të aktit administrativ.  

3. Efekti i vonuar

             Krahas dy momenteve që u trajtuan më lart, sipas të cilave akti administrativ mund të marrë fuqi juridike, ekziston dhe një moment i tretë që lidhet me ekzistencën ose vërtetimin e disa rrethanave konkrete. Hyrja në fuqi e aktit administrativ mund të kushtëzohet edhe nga faktorë, ngjarje ose faza të ndryshme të procedurës, vërtetimi i të cilave pritet të realizohet detyrimisht në një kohë të ardhme. Pa u vërtetuar këto kushte, akti nuk mund të hyjë në fuqi. Sigurisht që këto kushte ose elemente që kushtëzojnë hyrjen në fuqi të aktit duhet të parashikohen nga ligji dhe nuk mund të vlerësohen ose të lihen në diskrecionin e organit administrativ.[8]

            Efekti i vonuar është një fazë e tretë që nuk kërkohet për të gjitha aktet, por vetëm për ato akte administrative që për nga natyra e tyre a specifika ligjore që paraqesin kërkojnë domosdoshmërisht një vonesë kohore për të marrë fuqinë juridike. Ky term përdoret për herë të parë në legjislacionin tonë administrativ. Sipas Kodit të Procedurave Administrative, aktet administrative mund të kenë efekt të vonuar në rast se hyrja në fuqi e tyre kushtëzohet nga miratimi ose kundërfirmimi i aktit, kur efektet juridike të aktit bëhen të pamundura për shkak të ndonjë pezullimi ose afati konkret, si dhe në rastet kur hyrja në fuqi e aktit varet nga vërtetimi i disa kushteve ose rrethanave, të cilat janë të domosdoshme për të.[9] I shohim me radhë të gjithë aspektet juridike të efektit të vonuar për një akt administrativ.          

- Miratimi i një akti është faza përfundimtare e nxjerrjes së aktit. Shumica e akteve administrative konsiderohen të nxjerrë dhe të miratuar nga organi që është caktuar sipas ligjit për të ushtruar një të drejtë të tillë. Kështu, p.sh., ministri nxjerr një urdhër për një çështje konkrete. Nxjerrja e urdhrit në këtë rast përputhet me miratimin që ai i bën atij. Megjithatë, fillimi i fuqisë juridike për aktin administrativ mund të kushtëzohet edhe nëpërmjet kryerjes së ndonjë veprimi konkret. Akti i nxjerr nga një organ administrativ, për të hyrë në fuqi mund të kërkojë njëkohësisht edhe miratimin formal nga një organ tjetër. Kështu, për analogji mund t’i referohemi dispozitave të ligjit “Për statusin e shërbimit civil”. Sipas nenit 13, pika 5, shkronja “c” të tij, eprori direkt, nën varësinë e të cilit është nëpunësi që do të punojë, si psh ministri, zgjedh një nga tre kandidatët e propozuar nga komitetet ad-hoc. Ky veprim i ministrit për përzgjedhjen e nëpunësit plotëson elementet e një akti administrativ në vetvete, sepse nga ky moment fillojnë të veprojnë disa efekte juridike për personin konkret. Ai konsiderohet se ka fituar të drejtën për tu pranuar në shërbimin civil me kryerjen e kësaj procedure. Megjithatë, nga pikëpamja formale akti përfundimtar i emërimit nuk ka marrë ende fuqi juridike, sepse sipas pikës 7 të këtij neni, marrëdhëniet juridike të nëpunësit fillojnë me nënshkrimin e aktit të emërimit nga Departamenti i Administratës Publike. Pra, akti i zgjedhjes që bën ministri nuk merr fuqi juridike pa miratimin e organit kompetent ligjor.

- Kundërfirmimi është një tjetër moment procedural me efekt të vonuar që i jep fuqi juridike aktit administrativ. Kundërfirmimi është nënshkrimi i aktit nga një organ, i ndryshëm nga organi kompetent i ngarkuar nga ligji për të nxjerrë aktin administrativ. Në praktikën administrative kundërfirmimin nuk e gjejmë dhe aq të zbatueshëm. Më tepër, kundërfirmimi ka gjetur zbatim në disa akte të natyrës kushtetuese. Kështu, sipas “Dispozitave Kryesore Kushtetuese” disa nga dekretet që nxirrte Presidenti i Republikës merrnin fuqi juridike vetëm pasi kundërfirmoheshin nga Kryeministri ose nga ministri përkatës. Një rregull i përafërt është parashikuar edhe në Kushtetutën aktuale. Kështu, në bazë të nenit 100, aktet e Këshillit të Ministrave nuk do të konsiderohen të vlefshme, dhe për rrjedhojë nuk duhet të sjellin efekte juridike, nëse ato nuk nënshkruhen nga Kryeministri dhe ministri propozues. Ky moment juridik, në dukje i njëllojtë me kundërfirmimin, pavarësisht se lidhet më tepër me vlefshmërinë e aktit, merr rëndësi nga pikëpamja e fuqisë juridike të aktit administrativ. Pa u kundërfirmuar akti në rastin konkret nuk duhet të sjellë efekte juridike.

            Ligji njeh raste kur akti administrativ, megjithëse është miratuar nga organi kompetent, nuk merr fuqi juridike pa rënë shkaqet që e kanë ndërprerë këtë fuqi. Dy janë shkaqet që e pengojnë dhe nuk e bëjnë të mundur hyrjen e menjëhershme në fuqi të aktit administrativ- pezullimi dhe afati.

- Pezullimi është një moment juridik që ndërpret në mënyrë të menjëhershme dhe për një kohë të caktuar fuqinë juridike të aktit. Fillimisht, akti administrativ nxirret nga organi administrativ, i komunikohet subjektit të interesuar nëpërmjet mënyrave që parashikohen me ligj dhe më pas mund të pezullohet. Pezullimi në kohë kryhet gjithnjë pasi është nxjerr akti. Pezullimi i hyrjes në fuqi të aktit kryhet me disa mënyra :

a) Pezullimi nga organi që ka të drejtë të shfuqizojë aktin e kundërshtuar për paligjshmëri. Organi që e shqyrton nga pikëpamja ligjore ligjshmërinë e aktit nuk mund të ndalohet që të pezullojë efektet juridike të tij. Kjo mënyrë realizohet kur organi që ka nxjerrë aktin, organi më i lartë që shqyrton ankimin administrativ ose gjykata që shqyrton konfliktin, me anë të një akti tjetër pezullojnë hyrjen në fuqi të aktit konkret[10].

b) Pezullimi për pamundësi ekzekutimi të aktit. Ndodh pezullimi i efekteve juridike të aktit në rastet kur objektivisht nuk ka mundësi që të ekzekutohet. Mund të ndodh që akti të jetë i pezulluar si për arsye të rrethanave që mund të varen nga organi apo subjektet përkatëse dhe që e bëjnë të pamundur ekzekutimin e tij, ashtu edhe për raste kur kërkohet nxjerrja e akteve të tjera juridike që lidhen me të dhe pa të cilat nuk mund të kryhet ekzekutimi[11].

c) Pezullimi si rrjedhojë e një ankimi me efekt pezullues. Në bazë të nenit 138 të Kodit të Procedurave Administrative, ankimi administrativ e pezullon zbatimin e aktit administrativ. Pra, ankimi ndaj aktit administrativ sjell automatikisht pezullimin e fuqisë juridike të aktit. Në këtë rast akti quhet i pezulluar derisa organi të shprehet për ankimin administrativ.

 - Afati është momenti tjetër procedural që lidhet me efektin e vonuar të fuqisë juridike të aktit administrativ. Akti nuk hyn në fuqi menjëherë në rast se ligji ka parashikuar ndonjë afat për fillimin e efekteve juridike të tij. Plotësimi i këtij afati i jep fuqi juridike aktit. Njihen dy mënyra për caktimin e afateve:

Afati i caktuar nga akti. Vetë akti administrativ mund të parashikojë në dispozitat e fundit se fuqia juridike e tij fillon me një datë të mëvonshme. Nga momenti që nxirret dhe deri në datën që do të hyjë në fuqi, akti nuk sjell asnjë efekt juridik. Gjatë kësaj periudhe kohe akti nuk është bërë ende pjesë e normave të detyrueshme të së drejtës. Afati i caktuar në akt është dhe data e hyrjes së tij në fuqi.

Afati i caktuar nga ligji. Ky paraqitet në dy raste :  

a) Afat i caktuar për ushtrimin e të drejtës së ankimit. Ky afat duhet të përcaktohet konkretisht në ligj. Afati në këtë rast lidhet edhe me pezullimin si moment juridik që bën të pamundur hyrjen në fuqi të aktit. Kur dikush kërkon të ankohet ndaj një akti që e ka cenuar në të drejtën e tij, ai duhet ta ushtrojë këtë të drejtë brenda afatit të përcaktuar me ligj. Pikërisht ky afat që parashikon ligji për ushtrimin e të drejtës së ankimit i alternuar dhe me efektin pezullues të ankimit administrativ, e bën të pamundur hyrjen në fuqi të aktit. Akti do të hyjë në fuqi kur subjekti konkret nuk e ushtron të drejtën e ankimit brenda afatit të caktuar ose kur organi shprehet përfundimisht për ligjshmërinë e vetë aktit. 

b)  Afat i caktuar për shkak të arsyeve objektive. Ky afat parashikohet në ligj për arsye të pamundësisë së palëve për të qenë në dijeni të marrjes së fuqisë juridike të aktit. Ligji bën një dallim ndërmjet subjekteve, duke patur parasysh vendndodhjen e tyre në momentin e hyrjes në fuqi të aktit. Nuk mund të ketë efekt të njëjtë juridik me subjektet e tjera kur akti administrativ u drejtohet subjekteve që banojnë ose gjenden përkohësisht jashtë territorit të Republikës së Shqipërisë ose në zona të largëta të Republikës së Shqipërisë. Kodi i Procedurave Administrative[12] ka parashikuar se për këtë kategori personash efektet juridike të aktit administrativ fillojnë në afate të ndryshme. Kështu, kur palët e interesuara janë të vendosura në zona larg vendodhjes së organit administrativ, afati për krijimin e efektit ligjor të aktit mund të zgjatet 5 ditë nga momenti i hyrjes së tij në fuqi; kur palët e interesuara ndodhen në një shtet të Europës afati zgjatet me 15 ditë dhe kur palët e interesuara mund të jenë të vendosura në një shtet tjeter jashtë Europës, afati zgjatet 30 ditë.[13]

 - Vërtetimi i kushteve ose rrethanave të ndryshme që mund të parashikojë vetë akti, të cilat mund të lidhen me kohën, dukurinë, ngjarjen ose faktin që do të ndodhë, janë elementë thelbësore që kushtëzojnë hyrjen në fuqi të aktit administrativ. Mjafton ndodhja ose plotësimi i këtyre kushteve e rrethanave, pa qenë e nevojshme që organi të shprehet për hyrjen në fuqi të aktit administrativ, që ai të sjell efektet juridike. 

            Sipas Kushtetutës, hyrja në fuqi e akteve normative të Këshillit të Ministrave, të ministrave dhe drejtuesve të institucioneve të tjera qendrore është e kushtëzuar me botimin e tyre në Fletoren Zyrtare. Për hyrjen në fuqi të ligjeve, Kushtetuta në nenin 84/3 ka vendosur afatin prej jo më pak se 15 ditë nga dita e botimit në Fletoren Zyrtare, afat i cili mund të jetë dhe më i gjatë, ndërsa për aktin normativ nuk ka vendosur afat, por ka përcaktuar si moment të hyrjes në fuqi botimin e aktit në këtë Fletore. Gjithashtu, në rast se ligji e parashikon, botimi në Fletoren Zyrtare mund të jetë një moment përcaktues për hyrjen në fuqi, jo vetëm për aktet normative, por edhe për ato me natyrë individuale. Pikërisht botimi në Fletoren Zyrtare paraqitet si një rrethanë a kusht determinant që duhet të vërtetohet, me qëllim që akte të kësaj natyre të marrin fuqi juridike. 

4.   Hyrja në fuqi e aktit administrativ

            Tri fazat e trajtuara më sipër, në veçanti ose së bashku, përcaktojnë në mënyra të ndryshme marrjen e fuqisë juridike të aktit administrativ. Ka akte që e marrin fuqinë juridike duke kaluar në secilën fazë, ashtu siç mund të ndodhë që akti të kalojë domosdoshmërisht më shumë se një fazë. Kështu që secila prej këtyre fazave ka rëndësinë e vet për fuqinë juridike të aktit administrativ. 

            Hyrja në fuqi e aktit administrativ është e ndërvarur nga çasti i fillimit të veprimit juridik të aktit dhe i shtrin efektet deri në mbarimin e këtij veprimi, pra deri në momentin kur aktit e humbet fuqinë juridike. Një akt administrativ hyn në fuqi në çastin që nxirret nga organi administrativ[14] dhe vazhdon të mbetet i tillë derisa të anulohet nga autoriteti administrativ ose nga gjykata. Akti e humbet fuqinë e tij juridike dhe me mbarimin e afatit, si dhe mënyrat e tjera që do të trajtohen në krerët në vazhdim. Sidoqoftë, një akt administrativ i pavlefshëm nuk hyn në fuqi.

            Një akt administrativ konsiderohet si një shpallje autoritare në interpretimin dhe zbatimin e ligjit, besueshmëria dhe ligjshmëria e të cilit duhet të pranohet nga kushdo në të mirë të parimit të sigurisë ligjore. Kur një akt administrativ hyn në fuqi, ai bëhet i detyrueshëm jo vetëm për palët, të cilëve u drejtohet, por edhe për autoritetin administrativ. Në këtë pikëpamje, akti ka fuqi stabilizuese dhe qëndron në nivelin e një vendimi gjyqësor. Efekti stabilizues i aktit paraqitet në dy forma: efekti stabilizues material dhe ai formal.

            Efekti stabilizues formal nënkupton moskundërshtimin e aktit nëpërmjet mjeteve të rregullta të ankimit para autoritetit administrativ ose para gjykatës. Ky efekt është i barasvlershëm me rishikimin. Kështu do të ndodhemi përpara këtij efekti në rastet kur ka kaluar afati për përdorimin e mjeteve ligjore, për arsye se nuk ekziston mjeti i ankimit, kur personi i interesuar heziton të kërkojë të drejtën e tij ose kur mjeti konsiderohet se është ezauruar plotësisht.

            Efekti stabilizues material është kur ndodhemi përpara parimit të gjësë së gjykuar (res judiciata). Sipas këtij parimi akti administrativ nuk mund t’i nënshtrohet procedurave rishikuese për arsye se ai është gjykuar më parë dhe si rrjedhojë e këtij gjykimi, ka mbetur i pacenuar. Prandaj detyrimi për zbatimin e aktit bie si ndaj personave që u drejtohet, ashtu edhe ndaj autoritetit administrativ. Një akt administrativ ka efekt faktik në kuptimin që të gjitha organet dhe autoritetet shtetërore duhet ta njohin atë. Megjithatë, autoriteti administrativ nuk ka ndonjë pengesë për të anuluar aktin e tij nëpërmjet revokimit ose me rihapjen e procedurave administrative. Sidoqoftë, një individ nuk mund të veprojë dot në këtë mënyrë. Ai vetëm mund t’i kërkojë autoritetit administrativ të marrë parasysh mundësinë e ushtrimit të pushtetit me anë të revokimit ose rihapjes së procedurave ligjore duke parashtruar shkaqe të reja për kundërshtimin e aktit. Nga kjo pikëpamje efekti i aktit administrativ ndryshon nga efekti i një vendimi gjyqësor, pasi gjykata nuk ka fuqi të revokojë ose rihap procedurat gjyqësore.  

            Data nga e cila akti administrativ bëhet detyrues merret si data e fillimit të tij. Data e fillimit është e rëndësishme, jo thjesht për arsye teorike e studimi, por për të llogaritur afatin, kohën që akti fillon të prodhojë efekte juridike për subjektet. Kështu, ky moment shërben për të llogaritur datën e mbarimit të afatit për depozitimin e ankimeve administrative në organet më të larta, të kërkesëpadive në gjykatë, të aplikimeve për rishikim, të veprimeve për dëmshpërblime dhe të çdo lloji kërkese tjetër që paraqet rëndësi për subjektin konkret. Data e fillimit të efekteve juridike për aktin varet nga Kushtetuta, legjislacioni në fuqi, si dhe nga vetë akti, kur ai e përcakton këtë moment fillimi.

            Në aktet administrative, zakonisht data e fillimit të efekteve ligjore të aktit është ajo kur nxirret akti nga organi kompetent. Hyrja në fuqi e akteve administrative me njoftimin e tyre subjekteve të interesuara është një moment tjetër që mund ta parashikojë ligji ose vetë akti. Në rastin e akteve normative, hyrja në fuqi nuk mund të jetë më parë se data e botimit të tyre në Fletoren Zyrtare.   

            Çështja e fillimit të efekteve juridike është e rëndësishme për t’u kuptuar drejt, sidomos për aktet normative. Siç u theksua më lart për hyrjen në fuqi të ligjeve, Kushtetuta ka vendosur afatin prej jo më pak se 15 ditë nga data e botimit në Fletoren Zyrtare, afat i cili mund të jetë dhe më i gjatë, ndërsa për aktin normativ nuk ka vendosur afat, por ka përcaktuar si moment të hyrjes në fuqi, botimin e aktit në Fletoren Zyrtare.

            Në një akt normativ duhet të ketë një interval kohor midis nxjerrjes, shpalljes së aktit fuqizues dhe fuqisë së tij detyruese. Kjo vonesë, ashtu si për ligjet është e domosdoshme, sepse shërben për t’i krijuar mundësi subjekteve të interesuar që të njihen me përmbajtjen e aktit, me të drejtat dhe detyrimet ose me sanksionet që mund të parashikojë ai. Kjo kohë u shërben atyre për të marrë të gjitha masat e nevojshme, që hyrja në fuqi e aktit (dhe në këto raste bëhet fjalë për aktet me karakter normativ) të mos i gjej të panjohur me urdhërimet e tij. 

            Nëse në zbatim të një ligji me karakter fiskal, p.sh. Këshilli i Ministrave nxjerr një vendim me karakter normativ, është e kuptueshme që ky akt nuk mund të ketë fuqi të menjëherëshme, sepse zbatimi i një mënyre të tillë të hyrjes në fuqi të aktit mund të shkaktojë vështirësi serioze për subjektet që veprojnë, si p.sh. në fushën e doganës ose të tatimeve, të cilat paraprakisht duhet të njihen me ekzistencën dhe me përmbajtjen e këtij akti. Prandaj lind detyrimi kushtetues i botimit të akteve me karakter normativ.

            Megjithatë nuk është i mjaftueshëm vetëm botimi i aktit, pasi rëndësi paraqet koha që i duhet lënë në dispozicion subjekteve të interesuara që të njohin me hollësi normat urdhëruese të aktit. Ky afat mund të paraqitet i ndryshëm, por ashtu si dhe për ligjet nuk mund të jetë më i vogël se 15 ditë, afat i cili është pranuar si më i përshtatshëm në praktikën legjislative dhe administrative.

            Paraqet rëndësi për trajtimin teorik dhe praktikë problemi se cili do të konsiderohet si momenti juridik më i përshtatshëm i hyrjes në fuqi të aktit normativ.  

            Në bazë të Kushtetutës, është pranuar rregulli se akti normativ, ashtu si dhe ligji hyjnë në fuqi në të njëjtën kohë në të gjithë territorin e Republikës së Shqipërisë dhe vetëm pas botimit të tyre në Fletoren Zyrtare. Pra, sipas këtij koncepti kushtetues mjafton botimi i një vendimi normativ të Këshillit të Ministrave, që rregullat dhe urdhërimet e detyrueshme që parashikon ai, të kenë efekte juridike për të gjitha ato subjekte të cilave u drejtohet. Kjo është e lidhur me parimin, sipas të cilit, askush nuk mund të përjashtohet nga përgjegjësia ligjore për padijeni të ligjit, sepse prezumohet se ekziston dijenia e ligjit për këdo. Sipas këtij parimi, subjekti, të cilit i drejtohet akti, prezumohet se ka marrë dijeni si për ekzistencën, ashtu dhe për përmbajtjen e një akti normativ. Vetë botimi apo shpalljet publike të aktit presupozojnë edhe marrje dijeni për të. Ky parim kërkon njëkohësisht zbatim të përpiktë të ligjit, si për organet e administratës publike që nxjerrin aktin normativ, ashtu edhe për subjektet e interesuara që ta zbatojnë atë. Megjithatë, një çështje e tillë nuk mund të trajtohet vetëm teorikisht, për arsye se në praktikë janë ndeshur vështirësi. Aktet, kryesisht ato me karakter normativ, kanë filluar të prodhojnë efektet e tyre ligjore shumë më herët në kohë se ato t’u jenë shpërndarë subjekteve të interesuara.

            Nisur nga këto, lind pyetja: A do të konsiderohet oportune që të pretendohet hyrja në fuqi e aktit normativ me botimin e tij në Fletoren Zyrtare, në një kohë kur ky botim dhe aq më tepër shpërndarja e tij bëhet shumë kohë pasi akti ka hyrë në fuqi? Mbi këtë bazë shtrohet pyetja tjetër:  A mund të kërkosh vënien përpara përgjegjësisë të subjektit konkret, kur objektivisht ai nuk ka patur asnjë lloj mundësie për t’u njohur me ekzistencën dhe përmbajtjen e një akti normativ që përcakton urdhërime për të? 

            Një praktikë e tillë që është ndeshur jo rrallë, kërkon, përveç rregullimit ligjor të momentit të botimit të aktit normativ edhe pasjen e një koncepti të drejtë dhe serioz nga organet administrative për informimin e shpejtë që i duhet dhënë publikut për procesin legjislativ dhe atë administrativ.

            Data e botimit të aktit normativ në Fletoren Zyrtare nuk duhet kuptuar si një procedurë e rëndomtë administrative, por si një moment tepër i rëndësishëm kushtetues, sepse që nga kjo datë fillojnë efektet juridike për aktin dhe për subjektet e interesuar. Kjo datë botimi presupozon se që nga ky moment publikut iu bë i njohur akti. Dalja nga shtypi e Fletores Zyrtare duhet të jetë data e prezumimit ligjor se me shpërndarjen e saj publiku mori dijeni për aktin juridik. Dhe që nga data e daljes nga shtypi të Fletores Zyrtare, do të pranohej si optimal një afat të paktën 15 ditor (ashtu si për ligjet) i njohjes me përmbajtjen e plotë të aktit nga subjektet e interesuara. Plotësimi i afatit të mësipërm garanton për këdo se akti ka hyrë në fuqi dhe konsiderohet i zbatueshëm nga subjektet.

            Hyrja në fuqi e akteve normative me botimin e tyre në Fletoren Zyrtare është një rregullim kushtetues dhe si i tillë nuk mund të mosrespektohet. Pengesat që haset në praktikën administrative për mosnjohjen në kohë të subjekteve juridikë me aktet normative, është një çështje që mbetet të zgjidhet nga organet shtetërore të ngarkuara me publikimin e tyre. Sidoqoftë, vështirësitë e hasura në vite për këtë çështje tashmë mund të konsiderohen të kaluara edhe për arsye të rregullimit me një ligj të posaçëm të mënyrës së botimit të akteve normative në Fletoren Zyrtare.[15]

            Në dallim nga aktet normative, aktet me karakter individual kanë një tjetër trajtim për momentin e hyrjes së tyre në fuqi. Akti administrativ individual, duke qenë konkret, për një problem të caktuar dhe për subjekte të individualizuara, nuk kërkon procedurën e hyrjes në fuqi të aktit normative. Me nxjerrjen e aktit individual, subjekti është vënë në dijeni menjëherë drejtëpërdrejt dhe nuk ka arsye që për hyrjen në fuqi të tij të kërkohet ndonjë afat i mëvonshëm. Praktika e hyrjes në fuqi menjëherë, që më parë zbatohej dhe për aktet normative, aktualisht njihet vetëm për aktet individuale. Ato hyjnë në fuqi  nga dita e miratimit të tyre, me përjashtim të rasteve kur ligji ose vetë akti mund t’i japin atij fuqi prapavepruese ose një efekt juridik të vonuar.

 

B. Efekti prapaveprues i aktit

            Teoria e së drejtës në përgjithësi (pothuajse çdo disiplinë shkencore e së drejtës, qoftë penale, civile, kushtetuese, e punës, familjare dhe administrative) e trajton konceptin e efektit prapaveprues të ligjit ose të aktit juridik.

            Prapaveprimi (retroaktiviteti), është një koncept me mjaft rëndësi për trajtimin e çështjeve që kanë lindur përpara hyrjes në fuqi të një ligji ose akti administrativ. Ngjarjet që kanë ndodhur në të kaluarën nuk mund të ndryshohen, por marrëdhëniet ligjore që rrjedhin prej tyre mund edhe të rishihen ose rivlerësohen nëpërmjet vendimeve gjyqësore ose legjislacionit prapaveprues. Veprime të tilla me efekt prapaveprues, të krijojnë idenë e një paqëndrueshmërie juridike në marrëdhëniet e krijuara. Parimi i sigurisë juridike, i shprehur në parimin juridik të shtetit të së drejtës duket sikur vihet në dyshim. Nga ana tjetër, situatat mund të rrjedhin në atë mënyrë dhe të jenë të tilla që të kërkojnë domosdoshmërisht korrigjimin e padrejtësive të së shkuarës. Pikërisht riparimit të dëmeve të së kaluarës u vjen në ndihmë efekti prapaveprues i ligjit ose i aktit.

            Në teorinë e së drejtës ekziston rregulli se legjislacioni nuk është i paracaktuar që të veprojë me efekte prapavepruese, ose në një mënyrë të tillë sa të ndërhyjë në të drejtat dhe liritë ekzistuese. Ky rregull zbatohet njëlloj edhe në legjislacionin që autorizon nxjerrjen e akteve administrative. Për më tepër, aty ku ligji është shfuqizuar, ky shfuqizim nuk prek pasojat që rrjedhin si rezultat i një veprimi administrativ të marrë përpara se të shfuqizohej ky legjislacion. Kjo duhet kuptuar në atë mënyrë që, për çdo fakt, ngjarje ose marrëdhënie do të zbatohet ligji ose akti administrativ që ka qenë në fuqi në kohën që ka ekzistuar fakti ose marrëdhënia juridike konkrete.

            Akti administrativ përcakton rregulla të detyrueshme sjelljeje për subjektet dhe mbi këtë bazë lind detyrimi për ta që të njohin ligjet dhe aktet nënligjore, me qëllim që t’i zbatojnë sa më drejtë në praktikë. Prandaj, të gjitha marrëdhëniet që krijohen midis tyre do të rregullohen në bazë të atyre akteve ligjore e nënligjore, të cilat kanë qenë në fuqi në atë kohë. Në qoftë se do të mendohej se prapaveprimi i akteve do të ekzistonte si parim kryesor në legjislacion, kjo jo vetëm që do të binte ndesh me parimin e ligjshmërisë, por njëkohësisht do të çorodiste dhe nuk do të krijonte stabilitet në marrëdhëniet juridike që do të lindnin midis subjekteve, duke i bërë ato marrëdhënie juridike të paqëndrueshme dhe pa asnjë garanci për të ardhmen. Një situatë e tillë do të krijonte te subjektet mendimin se në të ardhmen këto marrëdhënie të krijuara do të rregullohen ndryshe me ligjet e reja që do të dalin. Megjithatë, pavarësisht nga kjo, prapaveprimi i akteve është një koncept që pranohet në teorinë e të drejtës administrative, por si një përjashtim.

            Teoria e të drejtës administrative dhe në veçanti Kodi i Procedurave Administrative e njeh fuqinë prapavepruese të aktit. Aktet administrative mund të kenë fuqi prapavepruese vetëm në disa raste, të cilat konsiderohen si një përjashtim nga rregulli i përgjithshëm.

            Kur akti administrativ interpreton një akt të mëparshëm, atij mund t’i jepet fuqi prapavepruese.[16] Interpretimi i aktit administrativ bën sqarimin e normës juridike, krahasimin e pjesëve të saj, si dhe krahasimin e aktit konkret me aktet e tjera ose ligjet në tërësi. Në përgjithësi akti juridik, duke parashikuar rregulla sjelljeje të përgjithshme, nuk është në gjendje të jap në detaje veçoritë e çdo rasti, fakti ose marrëdhënie të veçantë. Prandaj, zbatimi i normës juridike në çdo rast konkret mund të kërkoj sqarimin ose interpretimin e detyrueshëm të përmbajtjes së aktit. Akti administrativ, duke kryer një interpretim të një akti të mëparshëm, i jep normës juridike karakter prapaveprues, d.m.th, aktin e mëvonshëm e bën të zbatueshëm edhe për një kohë tjetër, kur ai nuk ishte nxjerr.  

            Karakteri prapaveprues i interpretimit të normës juridike është i zbatuar në raste të veçanta. Në teorinë e së drejtës penale njihet parimi kushtetues, sipas të cilit ligji penal favorizues ka fuqi prapavepruese, ndërsa nga e drejta kushtetuese evidentohet rasti kur vendimet e Gjykatës Kushtetuese bëjnë interpretimin përfundimtar të Kushtetutës. Sipas nenit 79 të ligjit nr. 8577, datë 10.2.2000 “Për organizimin dhe funksionimin e Gjykatës Kushtetutese të Republikës së Shqipërisë”, vendimi i Gjykatës Kushtetuese, që bën interpretimin e Kushtetutës, ka fuqi prapavepruese.

            Kur organi administrativ ose gjykata e zakonshme deklaron të pavlefshëm një akt administrativ, vendimi i shtrin efektet nga koha e daljes së aktit që u deklarua pa fuqi juridike. Plotësimi i zbrazëtisë ligjore të krijuar nga pavlefshmëria e aktit, me nxjerrjen e një akti të ri dhe të ligjshëm administrativ që do t’i shtrijë efektet e tij nga koha e daljes së aktit të shfuqizuar, i jep gjithashtu atij karakter prapaveprues. Pra ky akt i shtrin efektet juridike edhe për marrëdhëniet e krijuara përpara daljes së tij.[17] Akti administrativ mund të ketë fuqi prapavepruese edhe në rast se vetë ligji i jep këtij akti një fuqi të tillë.[18]

            Përveç rasteve të përmendura më lartë, nuk përjashtohen edhe rastet kur vetë organi administrativ kompetent mund t’i japë fuqi prapavepruese aktit që ai nxjerr. Parashikimi i prapaveprimit të normës juridike është në çmimin e vet organit administrativ, sipas rrethanave ose kushteve konkrete të marrëdhënies juridike që akti rregullon, me përjashtim të rasteve kur ligji mund të parashikojë efektin prapaveprues të tij. Ky rregull zbatohet në raste të veçanta. Kjo e drejtë mund të përdoret nga organi kompetent kur efektet prapavepruese të aktit janë në favor të subjekteve të përfshira në akt dhe që janë të interesuara për të, me kusht që ky prapaveprim të mos dëmtojë interesat e ndonjë pale të tretë.[19] Gjithashtu, organi ka diskrecion të zbatojë efektin prapaveprues në ato raste kur akti shfuqizon një akt të mëparshëm së bashku me të gjitha aktet e tjera të nxjerra në zbatim të këtij të fundit. Ky moment duhet parë i lidhur me nenin 127 të Kodit të Procedurave Administrative, i cili parashikon ripërtëritjen e fuqisë ligjore të një akti të mëparshëm, si rrjedhojë e një shfuqizimi ose revokimi. Në kuptim të kësaj dispozite, revokimi ose shfuqizimi i një akti, i cili nga ana e tij ka revokuar/shfuqizuar një akt të mëparshëm, përtërin fuqinë ligjore të këtij të fundit vetëm në rastet kur ligji ose akti i fundit revokues/shfuqizues parashikon shprehimisht një gjë të tillë. Pra, lihet në të drejtën e organit që të parashikojë ose jo një efekt të tillë të aktit të shfuqizuar.

            Efekti prapaveprues i një akti administrativ do të jetë i pavlefshëm në rast se ligji e përjashton atë, ose në rast se akti i referohet një periudhe më përpara se të hynte në fuqi ligji, mbi bazë të të cilit akti nxirret, ose në rast se ai urdhëron a ndalon një veprim të së kaluarës. Megjithatë, përjashtimi nga kuptimi klasik i konceptit të efektit prapaveprues të aktit, si dhe nga rregulli i mësipërm, është zbatuar në vendin tonë, lidhur me procedurën e kthimit dhe të kompensimit të pronave ish-pronarëve, sipas të cilës akteve administrative iu dha efekt prapaveprues për një kohë, kur ligji specifik i kthimit të pronave nuk ekzistonte. Megjithatë ishte vetë ligji, i cili për problemet që ai trajtonte i njohu të drejtën aktit administrativ për të pasur fuqi prapavepruese.

            Konstituimi me ligj i komisionit të kthimit dhe kompensimit të pronave ish-pronarëve, si dhe dhënia këtij organi nëpërmjet akteve që do të nxirrte, të të drejtës për të krijuar, ndryshuar ose shuar pasoja juridike për kohën përpara daljes së ligjit, është aspekt i pranimit të fuqisë prapavepruese të aktit. Pra, efektet juridike të vendimit të komisionit të kthimit dhe kompensimit të pronave ish-pronarëve shtrihen që në momentin e kryerjes së shpronësimit, shtetëzimit ose konfiskimit të pronave nga pushteti i asaj kohe, duke i dhënë fuqi prapavepruese aktit administrativ përkatës.

            Megjithatë, efekti prapaveprues i akteve administrative i pranuar nga teoria e së drejtës në përgjithësi është një moment të cilit nuk i duhet dhënë rëndësi më shumë se sa paraqet në praktikë. Sidoqoftë, prapaveprimi është një përjashtim nga rregulli i përgjithshëm, sipas të cilit zbatohet ligji që është në fuqi në kohën e lindjes së marrëdhënies juridike konkrete.


[1] Shih nenin 56 të Kodit të Procedurave Administrative.
[2] Neni 60, pika 1 i Kodit të Procedurave Administrative.
[3] Shih nenin 57 të Kodit të Procedurave Administrative.
[4] Neni 59 i Kodit të Procedurave Administrative.
[5] Në nenin 60, pika 1, shkronja “ç”, të këtij Kodi parashikohet:”Njoftimi bëhet:…ose nëpërmjet një lajmërimi që botohet në Fletoren Zyrtare, në gazetën e pushtetit vendor ose në dy gazetat më të lexuara në vendin e banimit apo të punës së palëve që duhen njoftuar, në rastet kur palët e interesuara janë të panjohura ose në numër aq të madh saqë çdo formë tjetër njoftimi vlerësohet si e papërshtatshme”.
[6] Shih nenin 114 të Kodit të Procedurave Administrative.
[7] Shih vendimet e Gjykatës Kushtetuese nr. 47 dhe nr. 53 të vitit 1999, sipas të cilëve ajo nuk mund të vendos për një akt që në bazë të Kushtetutës nuk ka marrë fuqi juridike, pasi ka të drejtë vetëm shfuqizimin e akteve që shqyrton, d.m.th. të akteve që kanë marrë fuqi juridike.
[8] Komentar Kodi i Procedurave Administrative, Botimet Toena, Tiranë 2004, Ribotim i plotësuar,faqe 257.
[9] Shih nenin 113 të Kodit të Procedurave Administrative.
[10] Neni 131, pika 2 e Kodit të Procedurave Administrative.
[11] Ky është një rast që më tepër lidhet me mosekzekutimin e aktit se me moshyrjen e tij në fuqi. Sidoqoftë, si rrjedhojë e këtij mosekzekutimi, akti është njëkohësisht edhe pa fuqi juridike. Në këtë drejtim, është me interes trajtimi i këtij rasti si aspekt i efektit të vonuar të fuqisë juridike të aktit.
[12] Shih nenin 63 të KPA-së që parashikon zgjatjen e afateve kohore.
[13] Ky rregull është i zbatueshëm kryesisht për aktet me natyrë individuale, sepse për aktet normative Kushtetuta ka parashikuar si afat të hyrjes në fuqi momentin e botimit të tyre në Fletoren Zyrtare, i cili është afat kushtetues që nuk mund të preket.
[14] Neni 111 i Kodit të Procedurave Administrative parashikon:”Aktet administrative hyjnë në fuqi nga dita e miratimit të tyre, me përjashtim të rasteve kur ligji ose vetë akti i jep atij fuqi prapavepruese ose të vonuar.”

[15] Në nenin 6 të ligjit nr. 8502, datë 30.6.1999 “Për krijimin e qendrës së publikimeve zyrtare” është parashikuar se organet përkatëse janë të detyruara të paraqesin për botim në Qendër aktet normative brenda 3 ditëve nga miratimi i tyre dhe në raste të veçanta jo më vonë se 15 ditë. Qendra brenda 45 diteve nga marrja e akteve ligjore dhe nënligjore, si dhe akteve të tjera zyrtare me interes shtetëror e publik duhet të bëjë botimin dhe shpërndarjen e tyre. Ndërsa në nenin 7 të këtij ligji thuhet: “Fletorja Zyrtare botohet rregullisht një herë në dy javë, por në çdo rast, jo më vonë se 15 ditë nga ardhja për botim e një akti ligjor.”
[16] Shih nenin 112 pika 1 shkronja “a” të Kodit të Procedurave Administrative.
[17] Neni 112, pika 1, shkronja “b” i Kodit të Procedurave Administrative parashikon :”Aktet administrative kanë fuqi prapavepruese… kur akti nxirret në zbatim të një vendimi gjyqësor, i cili nga ana e tij ka deklaruar të pavlefshëm një akt administrativ.” 
[18] Shih nenin 112, pika 1 shkronja “b” dhe “c” të Kodit të Procedurave Administrative.
[19] Neni 112, pika 2 shkronja “a” e Kodit të Procedurave Administrative.

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