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Vështrim krahasues i hartimit të akteve normative (Shqipëri-SHBA)

Nga Sonila Rrahmani

HYRJE

Zakonisht te berit krahasime midis shteteve eshte nje proces i veshtire, pasi kerkon njohuri mbi shume aspekte qe jane te ndertuar keto shtete, megjithate kur flasim per akte normative koncepti qe presim te trajtojme eshte me I ngushte. Zgjedhja e kesaj teme perkon pikerisht me faktin se gjendemi perballe dy sistemeve me te njohura te se drejtes Comon Law dhe Civil Law. Pikerisht mu duk interesante ti vija perballe keto dy sistemi ne aspektin e hartimit te akteve normative, duke e perfaqesuar te parin me nje shtet te sukseshem ne fushen legjislative dhe nga ana tjeter duke e krahasuar me vendin tone.

Lidhur me kete do te shqyrtojme nivele te njepasnjeshme te hartimit te akteve normative, kalimi i tyre nga nje projektligj ne nje ligj funksional. Gjithashtu do te shohim edhe diferencat midis orgaveve qe kane kompetenca per nxjerrjen e akteve normative, ku gjejne zbatim, dhe cilat jane problematikat

Pra ne vija te pergjithshme kjo eshte ajo cka mundohet te trajtoje ky punim, ku pavarsisht informacionit te paket do te japim se paku nje pasqyrim krahasues.


Burimet e akteve Normative (Nisma Legjislative)

Perpara se te hyjme ne trajtimin e posacem te temes se pari le te bejme nje paranteze ne lidhje me se kush e ka te drejten per te ushtruar pushtetin legjislativ. Keshtu le ti referohemi kushtetutave te shteteve perkatese per te ngritur konceptin themelor mbi ate cka do te trajtojme. Kushtetuta e Republikes se Shqiperise nuk jep nje shprehimisht percaktimin se kush e ushtron pushtetin legjislativ ashtu sikurse ben Kushtetuta e SHBA ne nenin 1/1 ku thote “I gjithe pushteti  legjislativ qe caktohet ketu do te ushtrohet nga Kongresi I Shteteve te Bashkuara, I cili perbehet nga Senati dhe Dhoma e Perfaqesuesve”.

Ndersa ne Kushtetuten tone do te shohim disa nene qe shprehin karakterin legjislativ te parlamentit sic eshte neni 1/1 dhe e gjithe pjesa mbi Kuvendin. Megjithe diferencave ne shprehi te dyja shtetet e ushtrojne pushtetin legjislativ ne Parlament.

Interesante do te ishte pjesa e shqyrtimit se cilat jane ato burime te ndertimit te akteve normative?  Kushtetuta e RSH shprehet per kete ne nenin 81/1 ku si burime cilesohen 3:

  1. Propozimi i Keshillit te Ministrave
  2. Propozimi nga çdo deputet
  3. Propozimi nga 20 mije zgjedhes

 

Keto tre subjekte cilesohen burimi i vetem per nxjerrjen e akteve normative me fuqi te ligjit. Nuk mund te ndodhe qe subjekte te tjere te pacilesuar ne kete nen te kushtetutes te paraqesin vullnetin per nisme legjislative dhe ai te pranohet nga kuvendi, pervec rasteve te siperpermendura pasi do te binte drejtperdrejt ndesh me Kushtetuten.

Ne SHBA funksionon ndryshe. Burimet e ideve per legjislacione te ndryshme jane te pakufizuara, keshtu propozimet per projektligje e marrin fillesen ne sfera nga me te ndryshmet. Nga keto sfera e para dhe me e rendesishmja cilesohet ideja dhe projekti nga nje Anetar i Kongresit. Kjo pike eshte e njejte me te drejten qe ka ne RSH çdo deputet per te propozuar ligje.

Pervec kesaj, edhe zgjedhesit e elektoratit te Antarit, qofte si individe qofte si grup dhe veprimtari, shoqata etj, mund te perfitojne nga e drejta qe kane per peticione, e drejte kjo qe iu eshte garantuar nga Amendamenti i Pare i Kongresit. Kjo mund te ngjasoje me burimin e trete te 20 mije zgjedhesve por dallon ne dy vecori kryesore:

Se pari, nuk kerkon nje numer te cilesuar zgjedhesish, mund te jete dhe nje i vetem.

Se dyti, eshte kusht qe ky individ ose grupim tia transmetoje propozimin e tij Anetarit te Kongresit.

Praktika ne ShBA ka treguar  se shume ligje te shkelqyera jane filluar pikerisht ne kete menyre, ndryshe nga cndodh ne Shqiperi ku raste te propozimit nga 20 mije zgjedhes ka mbetur vetem nje alternative qe nuk ka patur pothuajse kurre praktike, vetem me dy raste ku njera mbeti thjesht projektligj dhe tjetra e dekretuar se fundi nga Presidenti I RSH.

Megjithate ne SHBA propozimi I bere nga zgjedhesit nuk mbetet ne ate stad, perkundrazi eshte detyra qe ka Anetari per ta keshilluar me Keshilltarin Juridik te Dhomes, ose Senatit per ti dhene idese paraqitje gjuhesore dhe juridike te pershtatshme para paraqitjes.

Meqe nje projektligj mund te paraqitet vetem nga nje Anetar I Kongresit, ky njoftim i dergohet me pas komitetit te perhershem qe e ka ne juridiksionin e vet ceshtjen e perfshire ne propozim.

Nje sere departamentesh te deges ekzekutive kane stafe me keshilltare juridike te specializuar.

Rruga qe ndjek SHBA ne krijimin e nje nisme legjislative sic e pame eshte e gjate dhe kjo sepse hartimi I ligjeve eshte nje “art” qe kerkon mjeshteri te larte, dije dhe pervoje.

Per kete arsye koha qe duhet per marrjen e nje projektligji mund te jete nje vit dhe per raste si procedurat penale dhe ato gjyqsore jane dashur edhe deri ne disa vjet.

Edhe Shqiperia ndjek nje kohe te caktuar megjithate nuk mund te mohojme qe ligjet paraqiten ne formen e projektligjeve me shpejt nga cduhet, dhe kjo behet shkak per ndryshime te mevonshme sepse hasim gabime ne hartim dhe formulimin e normes.

Aspekte të projektligjit

Ne SHBA projektligjet ndahen ne dy tipe:

  1. Projektligje Publike
  2. Projektligje Private

 

Ne vendin tone nuk behet nje percaktim i tille por vete natyra e projektligjeve tregon qe kane ekzistuar keto dy tipe. Sigurisht eshte evidente qe projektligjet me te shumta jane ato me karakter publik, megjithate kjo nuk eshte e prere. Mund te ndodhe qe rendesia e nje projektligji te marre karakter te gjere dhe rendesia e tij te kaperceje rendesine e projektligjeve me karakter publik.

Shqyrtimi

Ne sistemin tone ligjor eshte percaktuar qe shqyrtimi I projektligjeve te behet ne menyre me te vecante nga paralamenti, I cili eshte hallka e fundit e shqyrtimit. Themi se eshte I fundit pasi para tij nje projektligj shkon per shqyrtim ne komisione te ngritura posacerisht per kete mission. Karakteristike e shqyrtimit ne Parlament eshte edhe ngritja e nje komisioni te perbere nga dy forcat politike madhore, mazhorance dhe opozite te kryesuar nga Kryetari I Kuvendit.

Ndryshe ndodh ne SHBA, ku pavarsisht se shqyrtimi ndodh ne Asamble ka disa karakteristika kyce. Tradia demokratike qe perfaqeson SHBA prej kohesh kerkon qe projektligjet te shqyrtohen nga te gjithe anetaret, me mundesi te plota per debate dhe propozime amendamentesh.

Faza e Pare

Per te lehtesuar shqyrtimin e projektligjeve I jepet mundesia Dhomes te veproje me nje kuorum jo me te vogel se shumica e domosdoshme prej 218 vetesh. Per te Shqyrtuar nej Projektligj Dhoma kthehet ne Komunitetin e te gjithe Dhomes ne gjendjen e Bashkimit. Te gjitha propozimet qe ndodhene ne Kalendarin e Bashkimit, qe kane te bejne me taksat, caktimin e fondeve, duhet te shqyrtohen te parat nga Komiteti I gjithe Dhomes. Komiteti raporton nje “rregull” te posacem ne menyre qe te lejohet shqyrtimi I menjehershem I nje projektligji nga Komiteti I te Gjithe Dhomes. Sigurisht qe cdo shqyrtim ka ne thelb te tij debatin qe behet ne Asamble. Rregulla qe folem me siper percakton edhe kohezgjatjen e debatit, kohezgjatje e cila varet nga lloji I rendesise qe shfaq projektligji. Zhvillimi I debatit behet kryesisht mbi bazen e rregullave te dhomes qe jane miratuar ne kohen e hapjes se cdo Kongresi. Duke qene se legjislacioni amerikan I takon tradites Cammon Law, sigurisht qe menyra e shqyrtimit eshte e bazuar ne precedente te meparshem qe ne vija te pergjithshme mund te ishin: Manuali i Xhefersonit, Precedentet e Haindsit dhe Kenonit etj.

Faza e Dyte

Gjate debatit te pergjithshem koha e vene ne dispozicion te seciles pale respektohet me perpikmeri me te madhe edhe kur koha e caktuar ne baze te rregullave mbaron, Kryetari I jep fund debatit. Pas kesaj fillon faza e dyte e shqyrtimit te projektligjit, qe behet paragraf pas paragrafi, kohe gjate se ciles mund te propozohen amendamente per cdo paragraf qe lexohet. Cdo antar ka kohe 5 minuta per te argumentuar amendimin dhe po aq edhe kundershtari i tij ne debat. Kjo faze mbyllet me raportimin e dhomes se projektligji eshte shqyrtuar tashme paragraph pas paragrafi dhe amendimet e mundshme jane bere. Keshtu ska me vend per debat dhe mbyllet faza e diskutimit.

Votimi

Kur kemi folur per menyren se si miratohet nje projektligj sigurisht qe kemi parasysh menyrat se si ai eshte votuar. Ne Republiken e Shqiperise votimi i nje projektligji njeh keto 3 raste

  1. Votimi ne parim
  2. Votimi Nen per Nen
  3. Votimi ne teresi


Secila prej tyre lidhet me aspektin se kush eshte kriteri dhe sasia qe merret parasysh ne votim. Keshtu tek e para projektligji votohet nese parimisht eshte I pranueshem. Nese jo ai nuk mund tiu nenshtrohet fazave te tjera te votimit. Votimi nen per nen perfshin votimin qe I behet neneve qe perbejne projektligjin duke shikuar perputhjen e tyre me objektin e vete projektligjit dhe parimeve te tjera te se drejtes. E fundit ka te beje me miratimin e pergjithshem qe lidhet me objektin dhe formen e projektligjit. Votimi sic e cituam edhe me siper behet ne Kuvend dhe eshte percaktuesi I pare I fatit te projektligjit.

Ndryshe nga votimi qe i behet projektligjit ne Shqiperi, ne SHBA perdoren kater menyra votimi[1] te cilat jane:

  1. Votimi me Goje (Viva Voce)
  2. Votimi me Ndarje
  3. Votimi me numerues
  4. Votimi I regjistruar

 

Per votimin me goje Kryetari thote: “Ata qe jane ne favor te ceshtjes te thone Po, ata qe jane kunder te thone <<Jo>>” Dhe ne baze te po-ve dhe jo-ve vendoset rezultati. Kjo eshte forma qe aplikohet me se pari.

Nese eshte e veshtire te percaktohet rezultati me kete menyre, atehere zbatohet votimi me ndarje. Kjo realizohet me ngritjen ne kembe te atyre qe jane ne favor dhe behet numerimi I tyre ne kete menyre del rezultati.

 Votimi me numerues eshte nje votim I cili realizohet me kerkese dhe mbeshtetet nga nje e pesta e kuorumit. Ne kete votim kuvendi cakton 1 ose me shume persona si numerues te votave sipas gupeve politike te cilet raportojne ne asamble numrin e pergjithshem te votave.

Keto duken si metoda primitive dhe teper te pabesueshme per nje shtet si SHBA, por megjithate kane rezultuar te sukseshme. Kjo nuk do te thote qe nuk ekziston votimi elektronik. Perkundrazi, kjo perben menyren e katert te votimit, menyre e cila aplikohet me kerkese te nje antari dhe me mbeshtetje te nje te pestes se kuorumit. Ne kete rast votimi eshte elektronik, dhe per kryerjen e votes se tij cdo antar ka kartelen e vet te votimit.

Shpallja

Momenti definitive per te kuptuar qe nje projektligj ka mbaruar ciklin e tij , duke u shenderruar ne nje ligj eshte shpallja.

Mbas miratimit të projektligjit, ai i dërgohet Presidentit të Republikës, i cili duhet ta shpallë atë brenda 20 ditëve nga paraqitja e tij. Presidenti ka të drejtë ta kthejë për rishqyrtim ligjin vetëm një herë. Dekreti për rishqyrtimin e një ligji e humbet fuqinë, kur kundër tij votojnë shumica e të gjithë anëtarëve të Kuvendit. Në rast se Presidenti nuk e shpall ose nuk e kthen ligjin për rishqyrtim brenda 20 ditëve nga paraqitja e tij, atëherë ligji quhet i shpallur. Kur ligji kthehet për rishqyrtim, Kryetari i Kuvendit e kalon menjëherë atë për shqyrtim në komisionin përgjegjës, që e ka shqyrtuar fillimisht. Komisioni përgjegjës e shqyrton dekretin vetëm për cështjet e paraqitura nga Presidenti.

Ne SHBA cdo proektligj qe aprovohet nga Dhoma e Perfaqesuesve dhe Senati, perpara se te behet ligj, duhet ti paraqitet Presidentit te Shteteve te Bashkuara. Zakonisht kopjet e projektligjit te redaktuar Shtepia e Bardhe ua percjell departamenteve te ndryshme te interesuara per lenden ne menyre qe keta ta keshillojne Presidentin I cili, natyrisht nuk mund te njohe cdo aspekt qe ka projektligji.

Ne qofte se Presidenti e aprovon projektligjin, ai e nenshkruan dhe zakonisht shkruan fjalen  “u aprovua”, megjithese kushtetuta vetem kerkon firmosjen e tij. Bazuar kushtetutes ne nje nen te saj nje projektligj mund te kthehet ligj edhe pa firmen e Presidentit. Kjo ndodh me veton pezulluese ashtu si edhe ne vendin tone, kur Presidenti nuk shprehet duke e cuar ligjin per rishqyrtim Brenda 10 diteve dhe as kur ai nuk e miraton ligji quhet I vetshpallur, dhe amenrikanet kete e quajne “veto xhepi”. Nje pyetje interesante lind ne kete pike “ A do ta miratoje Dhoma projektligjin pas rishqyrtimit, pavarsisht kundershtimit te Presidentit per te?” Sigurisht kjo ndodh kur miratohet nga shumica.

Hyrja ne Fuqi

Nje nga hapat e rendesishem ne nxjerrjen e nje ligji me fuqi vepruese eshte kerkesa qe ai ti behet I njohur popullit, I cili duhet ti bindet atij. Sigurisht, nuk do te kishte drejtesi nese shteti do ti bente njerezit pergjegjes perpara se tua bente te njohur paligjshmerine e nje sjellje te tille

 Ne Shqiperi ligji hyn në fuqi me kalimin e jo me pak se 15 ditëve nga botimit i tij në Fletoren Zyrtare, por në rastet e masave të jashtëzakonshme, si dhe në rast emergjence dhe nevoje, kur Kuvendi vendos me shumicën e të gjithë anëtarëve dhe Presidenti i Republikes jep pëlqimin, ligji hyn në fuqi menjëherë vetëm pasi të jetë njoftuar publikisht. Ligji duhet që të botohet në numrin më të parë të Fletores Zyrtare.

Pak a shume e njejta praktike zbatohet edhe ne SHBA por me keto ndryshime qe do ti paraqesim me poshte.

Praktika ka treguar se ligjet ne Amerike botohen menjehere pas dekretimit te tyre qe ti behen te njohura publikut. Nqs. Presidenti e aprovon nje projektligj, ose lejon qe ai te behet ligj pa e nenshkruar ate, ai pasi eshte redaktuar Shtepia e Bardhe ia dergon Arkivistit te SHBA-ve per botim. Nqs. Nje projektligj aprovohet nga te dyja dhomat megjithe vrejteve te Presidentit, ate e dergon per botim organi me I fundit qe kapercen veton.

Botimi I pare I ligjit behet ne formen qe pergjithesisht njihet si  “ligj i shkeputur”. Ne kete forme cdo ligj botohet me vete sin je pamflet I palidhur.

Me qellim qe te sigurohet nje permbledhje e perhershme e ligjeve, pergatiten vellimet e lidhura, dhe kjo I takon nje “botimi te dyte”. Kjo lidhje mund te arrije deri ne formimin e Kodit te SHBA-ve, I cili permban nje rregullim te konsoliduar dhe te kodifikuar te ligjeve te perhershme dhe te pergjithshme te SHBA-ve, te sistemuara ne baze te lendes ne 50 tituj sipas rendit alfabetik.

Konkluzion

Si perfundim, mund te themi qe keto shtete qe morem ne analize kane ndryshimet e tyre te dukshme per shkak qe sistemi legjislativ eshte I ndyshem ku sic thame me siper jane pjese e dy nenndarjeve te medha te se drejtes (Common Law dhe Familjes Romano- Gjermanike). Megjithate eshte e dukshme qe pershkak se te dy shtetet bazohen ne rendin demokratik edhe praktika e tyre e hartimit te akteve normative eshte teper e njejte. Fazat qe shqyrtuam me siper jane nje tregues I mire i nje krahasimi qe ndermerret rralle ne vendin tone, por ne mendojme qe duke trajtuar ne kete menyre, do te kuptojme me mire legjislacionin tone dhe poziten e tij qe per hi rte se vertetes eshte krejt i ri dhe ende i pakompletuar.



[1] Si Behen Ligjet ne Amerike- EDUARD F. UILLIET I Riu; The Speaker, United States House of Representatives, Washington D. C

  • 2 vota. Mesatarja e 2.50 të 5.

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