Suspension of union email service after the referendumSuspensión del correo electrónico sindical tras el referéndum

“II.- Purpose of the amparo action (Objeto del recurso). The petitioner (recurrente) alleges that even though the referendum proceeding has already concluded, the respondent authority (autoridad recurrida) maintains the suspension of the “ZZC ICE Global” electronic mail (correo electrónico) service, which is a system of massive and generalized scope for sending messages addressed to all network users and in which the organization ASDEICE holds an account.

a. III.- Proven facts (Hechos probados). (…)

IV.- Preliminary issue (Cuestión previa). Before analyzing the present matter on the merits, it is considered worthwhile to refer to amparo action (recurso de amparo) number 07-000654-0007-CO, which is cited in the report rendered, referencing that in that case this Chamber already analyzed some of the facts on which this amparo is based. Indeed, that action was declared without merit by vote (voto) number 2007-00238 of fifteen hours forty-eight minutes on February 20, 2007; however, the dismissal was not because the petitioner lacked reason in its demand but rather because the claim raised, namely that the protected union association (Asociación Sindical amparada) had been prohibited and deprived of the technical possibility of generating ZZC ICE Global emails addressed to the labor community, was rendered without effect without intervention of this Court. Having clarified that point, it is considered worthwhile to proceed to resolve the present matter on the merits, as is hereby ordered.

V.- On the merits (Sobre el fondo). From the documentary evidence submitted to the case file, as well as from the report rendered by the General Judicial Representative of the Costa Rican Electricity Institute (Instituto Costarricense de Electricidad) ratified by the Institutional Administrative Deputy Manager, —which is given under the solemnity of oath, with timely warning of the consequences, including criminal ones, provided for in article 44 of the Law of Constitutional Jurisdiction (Ley de la Jurisdicción Constitucional)— it is taken as accredited, in the first place, that that Institution permits the protected union association the use of electronic mail, both individual and collective, in order to keep its members informed on matters concerning the work of that union organization, as well as on some matters referring to decisions made by the Administration. (report at folios 27 to 38 ratified at folios 77 and 78); second, that by official communication (oficio) No. 5001-1080-2007 dated August 21, 2007, the respondent Deputy Manager communicated to the Union Leaders of the Institution that, because it had been proven that the provisions issued by the Supreme Electoral Tribunal (Tribunal Supremo de Elecciones) regarding the application of article 88 of the Electoral Code (Código Electoral) and related norms in the referendum proceeding concerning the Draft Law of the Free Trade Agreement (Proyecto de Ley del Tratado de Libre Comercio) had been ignored, she found herself obligated to act with the purpose of preventing public resources from continuing to be used in propaganda tending to directly or indirectly support the referendum process the country was experiencing, and therefore, until said process concluded, the Administration found itself unable to provide work tools for electronic mail or of any kind for those purposes, thereby suspending the sending of mass mail with the “ZZC ICE Global” system. (document at folios 6 and 7, report at folios 27 to 38 ratified at folios 77 and 78).

VI.- In this regard, concerning the scope of freedom of expression, article 29 of the Political Constitution (Constitución Política) establishes:

“Article 29.- All may communicate their thoughts by word or in writing, and publish them without prior censorship; but they shall be responsible for the abuses they commit in the exercise of this right, in the cases and in the manner established by law.” For its part, article 13 of the American Convention on Human Rights provides:

Article 13.- Freedom of Thought and Expression.

“1. Everyone has the right to freedom of thought and expression. This right includes freedom to seek, receive, and impart information and ideas of all kinds, regardless of frontiers, either orally, in writing, or in print or artistic form, or through any other procedure of one’s choice.

2. The exercise of the right provided for in the foregoing paragraph shall not be subject to prior censorship but shall be subject to subsequent liability, which must be expressly established by law and be necessary to ensure:

• a)respect for the rights or reputations of others; or b) the protection of national security, public order, or public health or morals.

3. The right of expression may not be restricted by indirect methods or means, such as the abuse of governmental or private controls over newsprint, radio broadcasting frequencies, or equipment and apparatus used in the dissemination of information, or by any other means aimed at impeding communication and the circulation of ideas and opinions.

4. Public entertainments may be subjected by law to prior censorship for the exclusive purpose of regulating access to them for the moral protection of childhood and adolescence, without prejudice to the provisions of paragraph 2.

5. Any propaganda in favor of war and any advocacy of national, racial, or religious hatred that constitute incitement to violence or any other similar illegal action against any person or group of persons, for any reason, including those of race, color, religion, language, or national origin, shall be prohibited by law.” On the subject, this Chamber in Judgment No. 1292-90 of 14:40 hrs. October 17, 1990, stated:

“The freedom of expression contained in article 29 of our Constitution permits the communication of thoughts by word or in writing and their publication, without prior censorship, a guarantee reinforced by article 28 of the same normative body by prohibiting persecution for the exercise of that freedom. However, like all rights, this freedom is not absolute, and it has its limit, so that the abuse made of it will make its author incur liability, according to the legislation governing the matter.” Basing ourselves, then, on the considerations outlined in the transcribed judgment, it is observed that the action of the respondent authority, while initially having had its reason for being, by maintaining it over time has come to constitute a gross violation of a Constitutional Right, which must be remedied in this forum.

VII.- In this regard, the argument made in the rendered report that the protected union association has not submitted to the corresponding department of the Costa Rican Electricity Institute the request for enabling the sending of mass electronic mail is not reasonable, since evidently the reason and the period for which it was suspended, namely, the alleged non-observance of provisions issued by the Supreme Electoral Tribunal regarding the application of article 88 of the Electoral Code and related norms in the referendum process concerning the Draft Law of the Free Trade Agreement and until said process concluded, no longer exist. Apart from the fact that it is not admissible for the authorization to be subject to it being requested, since as was demonstrated, the protected party already had that means of communication before the aforementioned suspension, thus a procedure in that sense through which it is intended to subject it to a new evaluation being unnecessary. Additionally, it was never stipulated as a requirement to have it again once the referendum period had been overcome. For this, the various instruments promulgated by the International Labour Organization must also be kept in mind, which stipulate the employer’s obligation to provide facilities to workers’ representatives —among them union ones— for the prompt and effective performance of their duties, thereby facilitating the exercise of that activity. —articles 2 and 3 of Convention No. 135.

VIII.- Such being the case, as it is considered in this judgment that the action of the sued authority violated the fundamental rights of the protected Union Association, the appropriate course is to declare the amparo action with merit, consequently requiring the restoration of the “ZZC ICE Global” electronic mail service that had been suspended, if no other cause different from the one resolved here prevents it.” **VI.-** In this regard, concerning the scope of freedom of expression (libertad de expresión), Article 29 of the Political Constitution (Constitución Política) establishes:

 ***"Article 29.-** Everyone may communicate their thoughts by word or in writing, and publish them without prior censorship; but they shall be responsible for the abuses they commit in the exercise of this right, in the cases and in the manner established by law."*  For its part, Article 13 of the American Convention on Human Rights (Convención Americana sobre Derechos Humanos) provides:

 *Article 13.- Freedom of Thought and Expression.*  *"1. Everyone has the right to freedom of thought and expression. This right includes the freedom to seek, receive, and impart information and ideas of all kinds, regardless of frontiers, either orally, in writing, or in print, in the form of art, or through any other medium of one's choice.*  *2. The exercise of the right provided for in the foregoing paragraph shall not be subject to prior censorship but shall be subject to subsequent imposition of liability, which shall be expressly established by law and be necessary to ensure:*  *a) respect for the rights or reputations of others, or*  *b) the protection of national security, public order, or public health or morals.*  *3. The right of expression may not be restricted by indirect methods or means, such as the abuse of government or private controls over newsprint, radio broadcasting frequencies, or equipment used in the dissemination of information, or by any other means tending to impede the communication and circulation of ideas and opinions.*  *4. Public entertainments may be subject by law to prior censorship for the sole purpose of regulating access to them for the moral protection of childhood and adolescence, without prejudice to the provisions of paragraph 2.*  *5. Any propaganda for war and any advocacy of national, racial, or religious hatred that constitute incitements to violence or any other similar illegal action against any person or group of persons on any grounds, including those of race, color, religion, language, or national origin, shall be prohibited by law."*  On this matter, the Chamber, in judgment No. 1292-90 of 2:40 p.m. on October 17, 1990, stated:

 *“The freedom of expression contained in Article 29 of our Constitution allows the communication of thoughts by word or in writing and their publication, without prior censorship, a guarantee reinforced by Article 28 of the same normative body by prohibiting persecution for the exercise of that freedom. However, like any right, this freedom is not absolute, and it has its limit, such that the abuse made of it will cause its author to incur liability, according to the legislation governing the matter.”*  Starting, then, from the considerations outlined in the transcribed judgment, it is observed that the action of the respondent authority, although it initially had its reason for being, by maintaining it over time, has become a gross violation of the Right of the Constitution, which must be remedied in this venue.

 **VII.-** In this sense, what was argued in the report rendered is not reasonable, that the protected Trade Union Association (Asociación Sindical) has not submitted to the corresponding department of the Costa Rican Electricity Institute (Instituto Costarricense de Electricidad) the request for enabling the sending of mass emails (remisión de correos electrónicos masivos), since the reason and the period for which it was suspended evidently no longer exist — namely, the alleged non-observance of provisions issued by the Supreme Electoral Tribunal (Tribunal Supremo de Elecciones) regarding the application of Article 88 of the Electoral Code (Código Electoral) and related norms in the referendum process concerning the Draft Law on the Free Trade Agreement (Tratado de Libre Comercio), and until said process concluded. Apart from the fact that it is not tenable that the authorization is subject to it being requested, since as was demonstrated, the protected party already had that means of communication before the cited suspension, making a procedure in that regard, by which it is intended to subject it to a new assessment, consequently unnecessary. Furthermore, it was never stipulated as a requirement to have it again once the referendum period had already been surpassed. For this, the various instruments promulgated by the International Labour Organization (Organización Internacional de Trabajo) must also be kept in mind, which stipulate the employer's obligation to provide facilities to workers' representatives — including union representatives — for the rapid and effective performance of their duties, thus facilitating the exercise of that activity. — Articles 2 and 3 of Convention No. 135.

**VIII.-** Therefore, given that this judgment considers that the action of the respondent authority violated the fundamental rights of the protected trade union association (Asociación Sindical), it is appropriate to grant the appeal (recurso), and consequently, the "ZZC ICE Global" electronic mail (correo electrónico) service that had been suspended must be restored, provided that no other cause different from the one resolved herein prevents it." VI.- In this regard, regarding the scope of freedom of expression, Article 29 of the Political Constitution (Constitución Política) establishes:

 "Article 29.- Everyone may communicate their thoughts orally or in writing, and publish them without prior censorship; but they shall be responsible for the abuses they commit in the exercise of this right, in the cases and in the manner established by law."  For its part, Article 13 of the American Convention on Human Rights (Convención Americana sobre Derechos Humanos) provides:

 Article 13.- Freedom of Thought and Expression.  "1. Everyone has the right to freedom of thought and expression. This right includes freedom to seek, receive and impart information and ideas of all kinds, regardless of frontiers, either orally, in writing or in print, in the form of art, or through any other medium of one's choice.

 2. The exercise of the right provided for in the foregoing paragraph shall not be subject to prior censorship but shall be subject to subsequent imposition of liability, which shall be expressly established by law and be necessary to ensure:  a) respect for the rights or reputations of others; or  b) the protection of national security, public order, or public health or morals.

 3. The right of expression may not be restricted by indirect methods or means, such as the abuse of government or private controls over newsprint, radio broadcasting frequencies, or equipment used in the dissemination of information, or by any other means tending to impede the communication and circulation of ideas and opinions.

 4. Public entertainments may be subject by law to prior censorship for the sole purpose of regulating access to them for the moral protection of childhood and adolescence, without prejudice to the provisions of paragraph 2.

 5. Any propaganda for war and any advocacy of national, racial or religious hatred that constitute incitements to violence or any other similar illegal action against any person or group of persons on any grounds, including those of race, color, religion, language, or national origin, shall be prohibited by law."  On this matter, this Chamber, in judgment No. 1292-90 at 14:40 hrs. on October 17, 1990, stated:

 “Freedom of expression contained in Article 29 of our Constitution (Constitución) allows the communication of thoughts orally or in writing and their publication, without prior censorship, a guarantee reinforced by Article 28 of the same normative body by prohibiting persecution for the exercise of that freedom. However, like any right, this freedom is not absolute, and it has its limit, such that the abuse made of it will cause its author to incur liability, according to the legislation governing the matter.” Starting, then, from the considerations outlined in the transcribed judgment, it is observed that the action of the appealed authority, although it initially had its reason for being, by maintaining it over time, has become a gross violation of the Right of the Constitution (Constitución), which must be remedied in this venue.

 VII.- In this regard, what was argued in the report rendered is not reasonable: that the protected labor union (Asociación Sindical) has not submitted to the corresponding department of the Costa Rican Electricity Institute (Instituto Costarricense de Electricidad, ICE) the request for authorization to send mass emails, since the reason and the period for which it was suspended—namely, the alleged non-observance of provisions issued by the Supreme Electoral Tribunal (Tribunal Supremo de Elecciones) regarding the application of Article 88 of the Electoral Code (Código Electoral) and related norms in the referendum process (proceso de referéndum) concerning the Free Trade Agreement Draft Law (Proyecto de Ley del Tratado de Libre Comercio), and until said process concluded—evidently no longer exist. Aside from the fact that it is not acceptable that the authorization is subject to a request, since, as was demonstrated, the protected party (amparada) already had that means of communication before the cited suspension, making a procedure in that regard—through which it is intended to subject her to a new assessment—consequently unnecessary. Furthermore, it was never stipulated as a requirement to have it again once the referendum period was already over. For this, the various instruments promulgated by the International Labour Organization (Organización Internacional de Trabajo) must also be kept in mind, which stipulate the employer's obligation to provide facilities to workers' representatives—among them, union representatives—for the rapid and efficient performance of their functions, thereby facilitating the exercise of that activity. – Articles 2 and 3 of Convention No. 135.

 VIII.- This being the case, upon considering in this judgment that the action of the respondent authority (autoridad accionada) injured the fundamental rights of the protected labor union (Asociación Sindical amparada), the appropriate course is to grant the appeal (recurso), consequently ordering the restoration of the "ZZC ICE Global" email service that had been suspended, unless another cause different from the one resolved herein prevents it.”

“II.- Objeto del recurso. El recurrente alega que a pesar de que ya finalizó el procedo de referéndum, la autoridad recurrida mantiene la suspensión del servicio de correo electrónico “ZZC ICE Global”, el cual es un sistema de alcance masivo y generalizado para mandar mensajes dirigidos a todos los usuarios de la red y en el que la organización ASDEICE, posee una cuenta.

a. III.- Hechos probados. (…)

IV.- Cuestión previa. De previo a analizar el presente asunto por el fondo, se considera de merito hacer referencia al recurso de amparo número 07-000654-0007-CO, el cual se cita en el informe rendido, haciéndose referencia a que en el mismo ya esta Sala analizó algunos de los hechos en los cuales se basa este amparo. Efectivamente, ese recurso fue declarado sin lugar mediante voto número 2007-00238 de las quince horas cuarenta y ocho minutos del 20 de febrero del 2007, sin embargo, la desestimatoria no obedeció a que el recurrente no tuviere razón en su demanda sino a que el reclamo planteado, sea que a la Asociación Sindical amparada se le había prohibido y suprimido la posibilidad técnica de generar correos ZZC ICE Global, dirigidos a la comunidad laboral, fue dejado sin efecto sin intervención de este Tribunal. Aclarado ese punto, se considera de mérito entrar a resolver el presente asunto por el fondo, como en efecto se dispone.

V.- Sobre el fondo. De la prueba documental allegada a los autos, como del informe rendido por el Apoderado General Judicial del Instituto Costarricense de Electricidad ratificado por la Subgerente Administrativa Institucional, -que es dado bajo la solemnidad del juramento, con oportuno apercibimiento de las consecuencias, incluso penales, previstas en el artículo 44 de la Ley de la Jurisdicción Constitucional- se tiene por acreditado, en primer lugar, que esa Institución le permite a la Asociación Sindical amparada la utilización del correo electrónico, tanto individual como colectivo, a efecto de que tenga comunicados a sus agremiados en temas del quehacer de esa organización sindical, así como de algunos temas referentes a decisiones tomadas por la Administración. (informe a folios 27 a 38 ratificado a folios 77 y 78); en segundo, que mediante oficio No. 5001-1080-2007 de fecha 21 de agosto del 2007, la Subgerente recurrida le comunicó a los Dirigentes Sindicales de la Institución, que en razón de que se había comprobado que se había hecho caso omiso a las disposiciones emitidas por el Tribunal Supremo de Elecciones, sobre la aplicación del artículo 88 del Código Electoral y normas conexas en el proceso de referéndum relativo al Proyecto de Ley del Tratado de Libre Comercio, se vía en la obligación de actuar con el propósito de evitar que se continuaran utilizando los recursos públicos en propaganda tendiente a apoyar en forma directa o indirecta el proceso de referéndum que vivía el país, por lo que hasta tanto finalizara dicho proceso, la Administración se vía imposibilitada de facilitar herramientas de trabajo para el correo electrónico o de cualquier índole, para dichos fines, suspendiendo así el envío del correo masivo con el sistema “ZZC ICE Global”. (documento a folios 6 y 7, informe a folios 27 a 38 ratificado a folios 77 y 78).

VI.- En este sentido, en cuanto a los alcances de la libertad de expresión, el artículo 29 de la Constitución Política establece:

"Artículo 29.- Todos pueden comunicar sus pensamientos de palabra o por escrito, y publicarlos sin previa censura; pero serán responsables de los abusos que cometan en el ejercicio de este derecho, en los casos y del modo que la ley establezca." Por su parte, el artículo 13 de la Convención Americana sobre Derechos Humanos, dispone:

Artículo 13.- Libertad de Pensamiento y de Expresión.

"1. Toda persona tiene derecho a la libertad de pensamiento y de expresión. Este derecho comprende la libertad de buscar, recibir y difundir informaciones e ideas de toda índole, sin consideración de fronteras, ya sea oralmente, por escrito o en forma impresa o artística, o por cualquier otro procedimiento de elección.

2. El ejercicio del derecho previsto en el inciso precedente no puede estar sujeto a previa censura sino a responsabilidades ulteriores, las que deben estar expresamente fijadas por la ley y ser necesarias para asegurar:

• a)el respeto a los derechos o a la reputación de los demás, o b) la protección de la seguridad nacional, el orden público o a la salud o a la moral públicas.

3. No se puede restringir el derecho de expresión por vías o medios indirectos, tales como el abuso de controles oficiales o particulares de papel para periódicos, de frecuencias radioeléctricas, o de enseres y aparatos usados en la difusión de información o por cualesquiera otros medios encaminados a impedir la comunicación y la circulación de ideas y opiniones.

4. Los espectáculos públicos pueden ser sometidos por la ley a censura previa con el exclusivo objeto de regular el acceso a ellos para la protección moral de la infancia y la adolescencia, sin perjuicio de lo establecido en el inciso 2.

5. Estará prohibida por la ley toda propaganda en favor de la guerra y toda apología del odio nacional, racial o religioso que constituyan incitaciones a la violencia o cualquier otra acción ilegal similar contra cualquier persona o grupo de personas, por ningún motivo, inclusive los de raza, color, religión, idioma u origen nacional." Sobre el particular, la Sala en sentencia Nº1292-90 de las 14:40 hrs. 17 de octubre de 1990, señaló:

“La libertad de expresión contenida en el artículo 29 de nuestra Constitución, permite la comunicación de pensamientos de palabra o por escrito y su publicación, sin previa censura, garantía que refuerza el artículo 28 del mismo cuerpo normativo al prohibir la persecución por el ejercicio de esa libertad. No obstante, como todo derecho, esta libertad no es absoluta, y tiene su límite, de tal forma que el abuso que se haga de ella hará incurrir en responsabilidad a su autor, según la legislación que rige la materia.” Partiendo, pues, de las consideraciones esbozadas en la sentencia transcrita, se aprecia que la actuación de la autoridad recurrida si bien inicialmente tuvo su razón de ser, al mantenerla en el tiempo, ésta se ha constituido en una grosera violación del Derecho de la Constitución, que debe ser reparada en esta sede.

VII.- En este sentido, no es razonable lo argumentado en el informe rendido, de que la Asociación Sindical amparada no ha presentado ante la dependencia correspondiente del Instituto Costarricense de Electricidad la solicitud de habilitación de remisión de correos electrónicos masivos, pues evidentemente la razón y el periodo por el cual se suspendió, a saber, la supuesta inobservancia a disposiciones emitidas por el Tribunal Supremo de Elecciones, sobre la aplicación del artículo 88 del Código Electoral y normas conexas en el proceso de referéndum relativo al Proyecto de Ley del Tratado de Libre Comercio y hasta tanto finalizara dicho proceso, ya no existen. Aparte de que no es atendible que la autorización esté sujeta a que se solicite, pues como quedó demostrado, ya la amparada contaba con ese medio de comunicación antes de la citada suspensión, siendo en consecuencia innecesario una gestión en ese sentido mediante la cual se le pretenda someter a una nueva valoración. Además, de que en ningún momento se estipuló como un requisito para tenerla de nuevo cuando ya se superara el periodo de referéndum. Para ello, igualmente se debe tener presente los distintos instrumentos promulgados por la Organización Internacional de Trabajo, que estipulan la obligación del patrono de brindar facilidades a los representantes de los trabajadores -entre ellos los sindicales- para el desempeño rápido y eficaz de sus funciones, facilitando así el ejercicio de esa actividad. -artículos 2º y 3º del Convenio No. 135.

VIII.- Así las cosas, al considerarse en esta sentencia que la actuación de la autoridad accionada lesionó los derechos fundamentales de la Asociación Sindical amparada, lo procedente es declarar con lugar el recurso, debiendo en consecuencia restituirse el servicio de correo electrónico “ZZC ICE Global” que había sido suspendido, si otra causa diferente a la aquí dirimida, no lo impide.”