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Res. 07828-2024 Sala Constitucional · Sala Constitucional · 22/03/2024
OutcomeResultado
The Chamber denied the amparo because no specific violation of fundamental rights was established and the respondent institutions had acted within their powers to continue the Los Diques Metropolitan Park project.La Sala declaró sin lugar el amparo porque no se acreditó una lesión concreta a derechos fundamentales y las instituciones recurridas habían actuado dentro de sus competencias para dar continuidad al Parque Metropolitano Los Diques.
SummaryResumen
The Constitutional Chamber denied an amparo filed on behalf of the Cartago community concerning institutional management and the reallocation of funds earmarked for Los Diques Metropolitan Park. It held that amparo protects against direct violations or threats to fundamental rights but is not a general mechanism for processing complaints about administrative or budgetary decisions or alleged failures to perform official duties. According to the reports and evidence, the respondent institutions acted within their respective powers and continued implementing the project through measures such as transferring funds, providing land, and issuing environmental viability approval. The project had not been deemed unfeasible, and the public space already existed for residents’ enjoyment. Because the petitioner failed to establish a concrete violation of fundamental rights, the Chamber denied relief. Justice Salazar Alvarado agreed with the disposition for different reasons, maintaining that once public agencies have intervened and issued administrative acts in an environmental matter, review belongs in the administrative-litigation jurisdiction.La Sala Constitucional rechazó el recurso de amparo promovido a favor de la comunidad de Cartago por la gestión institucional y la redistribución de recursos destinados al Parque Metropolitano Los Diques. Determinó que el amparo protege contra lesiones o amenazas directas a derechos fundamentales, pero no funciona como vía genérica para tramitar quejas sobre actuaciones administrativas, presupuestarias o posibles incumplimientos de deberes. Según los informes y pruebas, las instituciones recurridas actuaron dentro de sus competencias y dieron continuidad al proyecto mediante acciones como transferir recursos, facilitar terrenos y emitir la viabilidad ambiental. Además, el proyecto no había sido declarado inviable y el espacio público ya existía para el disfrute de la ciudadanía. Como el recurrente no acreditó una lesión concreta a sus derechos fundamentales, el recurso fue declarado sin lugar. El magistrado Salazar Alvarado concurrió con el resultado, pero sostuvo que la fiscalización de actuaciones administrativas ambientales ya desplegadas corresponde a la jurisdicción contencioso-administrativa.
Key excerptExtracto clave
Additionally, it is reiterated that the petitioner does not identify any specific violation or threat to his fundamental rights by the authorities of the National Commission for Risk Prevention and Emergency Response, the National Institute of Housing and Urban Development, the Ministry of Environment and Energy, the Ministry of Culture and Youth, the Ministry of Public Works and Transportation, the Ministry of Housing and Human Settlements, the Municipality of Cartago, or the National Museum. In any event, analysis of the reports and evidence submitted shows that each institution has taken the relevant actions within the scope of its powers to monitor and continue the implementation phase of the Los Diques Metropolitan Park project, such as issuing environmental viability approval, transferring the budget agreed upon to finance the project, or providing land on which to carry out the works included in the project. Therefore, under the terms in which the petition was filed, no violation of the protected party’s fundamental rights can be identified. Consequently, the appropriate course is to deny the petition. The petition is denied. Justice Salazar Alvarado provides different reasons.Adicionalmente, se reitera que el recurrente no expone alguna situación concreta de lesión o amenaza a sus derechos fundamentales por parte de las autoridades de la Comisión Nacional de Prevención de Riesgos y Atención de Emergencias, del Instituto Nacional de Vivienda y Urbanismo, del Ministerio de Ambiente y Energía, del Ministerio de Cultura y Juventud, del Ministerio de Obras Públicas y Transportes, del Ministerio de Vivienda y Asentamientos Urbanos, de la Municipalidad de Cartago o del Museo Nacional. En todo caso, del análisis de los informes y las pruebas aportadas se evidencian que cada institución ha ejecutado las acciones pertinentes dentro del ámbito de sus competencias para brindar un seguimiento y la continuidad de la fase de ejecución del proyecto del Parque Metropolitano Los Diques, tales como emitir la viabilidad ambiental, transferir el presupuesto acordado para financiar el proyecto o el otorgamiento de terreno para realizar las obras contenidas en el proyecto. De ahí que, en los términos planteados en el escrito de interposición, no se aprecia alguna lesión a los derechos fundamentales del amparado. En consecuencia, lo procedente es desestimar el recurso. Se declara sin lugar el recurso. El magistrado Salazar Alvarado da razones diferentes.-
Pull quotesCitas destacadas
"La finalidad del recurso de amparo es brindar tutela oportuna contra infracciones o amenazas directas a los derechos y libertades fundamentales, no servir como un instrumento genérico para canalizar peticiones o quejas de otros tipos."
"The purpose of amparo is to provide timely protection against violations or direct threats to fundamental rights and freedoms, not to serve as a general instrument for channeling other kinds of petitions or complaints."
Considerando IV
"La finalidad del recurso de amparo es brindar tutela oportuna contra infracciones o amenazas directas a los derechos y libertades fundamentales, no servir como un instrumento genérico para canalizar peticiones o quejas de otros tipos."
Considerando IV
"Debe quedar claro que el Parque Metropolitano los Diques como espacio público ya existe para el disfrute de los ciudadanos de la provincia de Cartago."
"It must be clear that Los Diques Metropolitan Park already exists as a public space for the enjoyment of the residents of Cartago Province."
Considerando IV
"Debe quedar claro que el Parque Metropolitano los Diques como espacio público ya existe para el disfrute de los ciudadanos de la provincia de Cartago."
Considerando IV
"Por ello, el simple incumplimiento de obligaciones y deberes impuestos legalmente a las diversas administraciones públicas en materia ambiental es propio de ser conocido en la vía de legalidad –administrativa o jurisdiccional-, donde, con mucha mayor amplitud, podrán fiscalizarse los incumplimientos u omisiones que se acusen."
"Therefore, a mere failure to comply with obligations and duties legally imposed on public administrations in environmental matters is properly heard through ordinary administrative or judicial review, where the alleged failures or omissions may be examined much more fully."
Razones diferentes del magistrado Salazar Alvarado
"Por ello, el simple incumplimiento de obligaciones y deberes impuestos legalmente a las diversas administraciones públicas en materia ambiental es propio de ser conocido en la vía de legalidad –administrativa o jurisdiccional-, donde, con mucha mayor amplitud, podrán fiscalizarse los incumplimientos u omisiones que se acusen."
Razones diferentes del magistrado Salazar Alvarado
"La revisión de las actuaciones administrativas llevadas a cabo en torno a un tema ambiental que requiera, para su correcta valoración, de un proceso de conocimiento pleno, solo es posible en la jurisdicción ordinaria."
"Review of administrative actions taken in connection with an environmental matter that requires full evidentiary proceedings for proper assessment is possible only in the ordinary courts."
Razones diferentes del magistrado Salazar Alvarado
"La revisión de las actuaciones administrativas llevadas a cabo en torno a un tema ambiental que requiera, para su correcta valoración, de un proceso de conocimiento pleno, solo es posible en la jurisdicción ordinaria."
Razones diferentes del magistrado Salazar Alvarado
Full documentDocumento completo
Document Review *230198200007CO* Decision No. 2024007828 CONSTITUTIONAL CHAMBER OF THE SUPREME COURT OF JUSTICE. San José, at nine twenty a.m. on March twenty-second, two thousand twenty-four.
Petition for constitutional relief (recurso de amparo) filed by [Nombre01 001], identity card [Valor CED01], on behalf of the COMUNIDAD DE CARTAGO, against the COMISIÓN NACIONAL DE PREVENCIÓN DE RIESGOS Y ATENCIÓN DE EMERGENCIAS (CNE), the INSTITUTO NACIONAL DE VIVIENDA Y URBANISMO (INVU), the MINISTERIO DE AMBIENTE Y ENERGÍA (MINAE), the MINISTERIO DE CULTURA Y JUVENTUD (MCJ), the MINISTERIO DE OBRAS PÚBLICAS Y TRANSPORTES (MOPT), the MINISTERIO DE VIVIENDA Y ASENTAMIENTOS URBANOS (MIVAH), the MUNICIPALIDAD DE CARTAGO, and the MUSEO NACIONAL.
Findings of Fact (Resultando):
8), the Administration was authorized to carry out all necessary formalities before the relevant institutions for the registration in the name of Nombre01 of the Municipalidad de Cartago of land located within the Reserva Nacional Cuenta del río Reventado (see evidence No. 19). In May 2021, according to Minutes No. 81-2021 of the Concejo de Cartago (Art. 1), the award of abbreviated bidding procedure (licitación abreviada) No. 2021la-000006-0022030101 was approved in order to complete construction plans with technical specifications and the permitting process for the treatment plant, as well as obtain environmental viability (viabilidad ambiental) from SETENA for the park at issue, thereby ensuring the project’s feasibility before the bidding process for its construction. In March 2021, according to Minutes No. 67-2021 of the Concejo de Cartago (Art. 8), authorization was granted. In August 2021, according to Minutes No. 96-2021 of the Concejo de Cartago (Art. 5), the request to reallocate the budget earmarked for Parque Metropolitano los Diques, submitted by the mayor of Cartago through official letter No. AM-INF-223-2021, was approved; the mayor, in turn, submitted it to the Asamblea Legislativa without the corresponding technical endorsement from the director of the project at issue, as required by the aforementioned interinstitutional cooperation agreement (convenio de cooperación interinstitucional), asserting for that purpose that: “(…) After thoroughly analyzing this project, including reviewing it with the Ministerio de Vivienda y Asentamientos Humanos, we have concluded that 1.100 million colones, rather than the 2000 million originally allocated to us, will be sufficient for its development—plans, sports courts, trails, and treatment plant.
(…)”. He alleges that this analysis was neither presented nor submitted for consultation to the project director, that there is no evidence of it in the municipal file (expediente municipal), and that it was not communicated by the technical division of MIVAH; instead, in 2016, the project’s preliminary feasibility (prefactibilidad) was estimated at approximately 3.300.000.000,00 (MIVAH-DMVAH-0329-2016). In August 2021, the technical director of the project at issue issued official letter No. OMPU-OF- 075-2021, in which he informed the mayor of Cartago of the risk of reallocating the budget assigned to the project and the possible consequences thereof; this official letter was not brought to the attention of the Concejo de Cartago. On 1º de setiembre de 2021, the mayor of Cartago achieved his objective through the amendment of Ley No. 9926, Ley de Presupuesto Ordinario y Extraordinario de la República para el Ejercicio Económico de 2021—due, in his view, to the mayor’s connections in the Asamblea Legislativa—thereby “betraying” an arduous interinstitutional process lasting more than 5 years.
The following was established: “(…) Article 32: “The Municipalidad de Cartago is authorized to change the designated use of the appropriation approved through Ley 9791, budget code 215 814 70104 280 2310 3120 201, in the amount of two billion colones (¢2.000.000.000), or the remaining balance, earmarked ‘For the project involving works for the Parque Subregional de los Diques de Cartago,’ so that it may be distributed as follows: One billion one hundred million colones (¢1.100.000.000) for the Project for Works at the Parque Subregional de los Diques de Cartago, Directriz 027- MS-MIVAH del 25/03/2008 and pursuant to Articles 22, 23, and 24 of Title IV of Ley 9635, Fortalecimiento de las Finanzas Públicas, de 3 de diciembre de 2018. Two hundred million colones (¢200.000.000) for risk and watershed-management studies concerning Río Reventado. Seven hundred million colones (¢700.000.000) for the Project to Develop the Centro de Interpretación Agua Caliente de Cartago, Municipalidad de Cartago (…)” which, according to an inquiry made to Museo Nacional, has a cost exceeding ¢1.000.000.000,00.
Through official letter No. DVM-OF 169-2021 of October 2021, MINAE expressed its full support for carrying out the project at issue. In November 2021, according to Minutes No. 117-2021 of the Concejo de Cartago (Art. 2), the mayor of Cartago again secured approval of the Specific Cooperation Agreement for the Design of Construction Plans and Construction of the First Stage of the Centro de Interpretación de Agua Caliente between the Municipalidad de Cartago and the Museo Nacional de Costa Rica, and was authorized to sign it. At the request of MIVAH, the Oficina de Planificación Urbana, in coordination with the Dirección de Urbanismo Municipal de Cartago, issued, through official letter No. DU-OF-195-2022/OMPU-OF-049-2022 de 18 de abril de 2022, a comprehensive report on the Proyecto Parque Metropolitano Los Diques in connection with the Technical and Financial Interinstitutional Cooperation Agreement (Convenio de Cooperación Interinstitucional Técnica-Financiera) between MIVAH and the Municipalidad de Cartago.
That report stated: “(…) we are continuing the project-management process in order to bring it to a successful conclusion with the commitment of all municipal divisions involved, provided that MIVAH undertakes to guarantee the minimum resources agreed upon as necessary to fulfill the project’s scope and thereby achieve its short-, medium-, and long-term objectives, given its importance at the subregional level for fulfilling the commitments of the Estado Costarricense regarding climate-change risk mitigation, Puente para el Desarrollo, and achievement of the goal of decarbonizing our territory by 2030 (…)”. He claims that Ley de Presupuesto Nacional No. 10035, by reallocating the budget assigned to the Parque Metropolitano Los Diques project, undermines the scope of the Technical and Financial Interinstitutional Cooperation Agreement between MIVAH and the Municipalidad de Cartago and thus completely frustrates the intended objectives, which allowed the serving mayor of Cartago to divert the funds and deprived the Cartago community of a comprehensive response to the social, environmental, and urban problems affecting Los Diques de Cartago, an area with the lowest human-development indices in the province.
He states that, once the consultancy for the plans, specifications, and formalities had concluded, the project director indicated that the detailed budget for the minimum infrastructure works needed to ensure the success of the project amounted to more than ¢4.400.000.000, 4 times the amount set aside to develop the park. However, in response to the Oficina de Planificación Urbana’s request for a supplementary budget to continue the construction process for the park at issue, the Municipal Administration claimed that it lacked the resources to cover amounts exceeding the sum donated by the Estado Costarricense; accordingly, it must restore the 900 million from its own funds or else promote another motion before the Asamblea Legislativa to change the designated use of the funds, justified on the ground that Parque Metropolitano Los Diques cannot be completed with only 1100 million colones, as was asserted when the budget reallocation was pursued (see evidence No. 30).
He contends that, although the Technical and Financial Interinstitutional Cooperation Agreement between MIVAH and the Municipalidad de Cartago expired in February 2022, as of the date on which the application was filed, no addendum (adenda) or update had been executed due to the lack of a budget capable of ensuring the project’s success (see evidence No. 31). He alleges that, despite the express request of the technical director of the project at issue, the various management plans and programs for risk control and the proper administration of the Reserva Nacional del río Reventado to ensure the project’s sustainability have not been duly pursued by the Alcaldía de Cartago before the various municipal technical units connected with the agreement with MIVAH. This is serious because, given the existence of an agreement with MOPT, the Municipalidad de Cartago is currently the administrator of the reserve and therefore cannot claim that it lacks the legal authority to manage the area properly and diligently (see evidence No. 3).
He alleges a violation of the fundamental right to a healthy and ecologically balanced environment by placing at risk the lives and health of residents living in extreme poverty in the informal settlements (asentamientos informales) of Los Diques de Cartago and in the community of Taras de Cartago. He further alleges a violation of due process (debido proceso) in the budget amendment concerning funds earmarked for construction of Parque Metropolitano de Los Diques, which were transferred to the Municipalidad de Cartago in 2020 under Ley No. 9926, Ley de Presupuesto Ordinario y Extraordinario de la República, so that, together with municipal resources, construction of the park could begin under the oversight of MIVAH, MOPT, MINAE, CNE, INVU, Ministerio de Cultura, and Ministerio de Hacienda, in compliance with the Ley de Transferencias and all applicable regulations. He requests that the application be granted. He further requests that the following orders be issued:
It is therefore important to inform the Honorable Constitutional Chamber that, in essence, these are programs aimed at meeting the residential needs of lower-income groups. Although they can certainly be improved, they are key to our country’s social and political stability and have gained such legitimacy among the public that they have become a duly recognized public-policy practice. Their institutionalization process has been consolidated and, indeed, in recent years their offerings have expanded to include new modalities, such as the Bono Comunal or Colectivo. Their purpose is to enable the State, through the competent institutions (INVU-BANHVI-MIVAHMunicipalidades), to establish coordination actions within the scope of each institution’s authority in order to intervene in territories and human settlements, most of which are informal and lack the minimum urban infrastructure needed for the development of distressed areas requiring urban-renewal actions to eradicate even slums and informal settlements, and to intervene in those areas to transform spaces that previously lacked infrastructure, thereby maximizing the use of public space.
In this regard, the principal legal basis for neighborhood intervention and improvement and for urban-improvement areas lies in Chapter VI of the Ley de Planificación Urbana, which establishes the special and essential rules enabling institutions to carry out urban renewal through projects and interinstitutional coordination actions, without which it would not be foreseeable that such actions could be undertaken. In this regard, that chapter consists of Articles 51, 52, 53, 54 and 55, in relation to Article 21, subsection 4), and Transitory Provision II of the same statutory instrument, which are also harmonized with Article 28 of the Ley Orgánica del Ambiente (Ley N°7554 de 04 de octubre de 1995). Such actions are carried out by the Executive Branch through policy and programmatic provisions, pursuant to Articles 130, 140, subsection 8), and 146 of the Constitución Política, in harmony with Articles 25.1, 27.1, 99 and 100 of the Ley General de la Administración Pública, Ley N°6227 de 02 de mayo de 1978.
It is at the policy and programmatic level established by those provisions that the Executive Branch implements such measures through Directriz N°036-MP-MIVAH de 01 de noviembre del 2018, entitled “Bono colectivo para Obras Comunales y de Equipamiento Social en Asentamientos Humanos.” The head of MIVAH serves as the governing authority for the Sector Vivienda, Hábitat y Territorio pursuant to Decreto Ejecutivo N°43580 de 1° de junio del 2022, Article 7, subsection m), which comprises the Ministerios de Obras Públicas y Transportes, Planificación y Política Económica, Ambiente y Energía, Agricultura y Ganadería, Instituto Nacional de Vivienda y Urbanismo, Banco Hipotecario de la Vivienda, created by Ley N°7052 de 13 de noviembre de 1986, and the Instituto de Desarrollo Rural, for the purpose of issuing housing and land-use planning policy. In addition, and as a result of the provisions of the Ley de Planificación Urbana, pursuant to Chapter VI of that law, INVU developed the Reglamento de Renovación Urbana as a model regulation for carrying out urban-renewal projects and interventions in informal human settlements, as well as neighborhood improvements, in coordination with institutions of the Sector Vivienda, Hábitat y Territorio, establishing cooperation and coordination actions with the corresponding municipality to fulfill the mandate of the aforementioned provisions.
Pursuant to the aforementioned Directriz 036-MP-MIVAH, the Bono Comunal, under Article 1), subsection b), thereof, is conceived as: “a subsidy provided by the Costa Rican State to a settlement as a whole for the provision and improvement of community works and social facilities, in order to protect and improve residents’ quality of life and facilitate their right to a high-quality urban environment.” It follows that these are public-policy tools for neighborhood improvement intended to overcome conditions of exclusion and segregation affecting sectors of society, in order to facilitate the development of settlements under conditions of equity, habitability, multifunctionality, sustainability and accessibility. Legality framework governing funds through capital transfers to local governments and the design of Parque Los Diques Parque Los Diques is structured so that its budgetary funding is provided through capital transfers to Local Governments, as contemplated in the Ley de Presupuesto Ordinario y Extraordinario para el Ejercicio Económico del 2020.
Articles 169 and 170 of the Constitución Política enshrine municipal autonomy, bearing in mind that the “(…) administration of local interests and services in each canton shall be entrusted to the Municipal Government (…)” The first and second paragraphs of Article 176 of the Constitución Política provide that: “Public administration shall be conducted sustainably, transparently and responsibly, based on a multi-year budgeting framework, with a view to ensuring the continuity of the services it provides. // The ordinary budget of the Republic shall include all probable revenues and all authorized expenditures of the Public Administration throughout the fiscal year. Under no circumstances may the amount of budgeted expenditures exceed that of probable revenues.” This harmonizes the constitutional principle of annual budgeting so as to establish that the strategic planning of the Public Administration, understood broadly, must be conducted over the medium and long term, facilitating its linkage to the Plan Nacional de Desarrollo under the terms of Article 4 in relation to Articles 19, 33 and 38 of Ley N°8131 de 18 de agosto del 2001 and its amendments, “Ley de Administración Financiera de la República y Presupuestos Públicos,” within a multi-year budgeting framework intended to ensure sustainability in the use of public resources and continuity in public services, thereby improving the efficiency and oversight of budget implementation insofar as this results in greater well-being for the community.
The Ley para el Equilibrio de las Finanzas Públicas, Ley N° 9635 de 3 de diciembre del 2018 and its amendments, pursuant to Article 22, authorized the Ministerio de Hacienda “to include in the budget of the Republic the budgetary transfers necessary to guarantee the financing of institutions and social and economic development programs, as specified in the current functional classifier.” The aforementioned authorization was incorporated into the Ley de Presupuesto Ordinario y Extraordinario de la República para el Ejercicio Económico del año 2020, Ley N°9791 de 26 de noviembre del 2019, published in Alcance N°273 of the Diario Oficial La Gaceta N°233 del 06 de diciembre del 2019. With respect to the budget of the Ministerio de Vivienda y Asentamientos Humanos, it was identified in Budget Program 215-018 under Line-Item Code 7, “Capital Transfers,” Subitem 70104, “CAPITAL TRANSFERS TO LOCAL GOVERNMENTS 5.200.000.000,” as the transfers that the Ministerio de Vivienda y Asentamientos Humanos is responsible for making as an agency of the Executive Branch, in coordination with the competent bodies responsible for the Administration of the Public Treasury (Ministerio de Hacienda and Contraloría General de la República) and with the beneficiary Municipal Treasury, which is the final recipient of the public funds to be transferred.
The following capital transfer was authorized under that budgetary provision: MUNICIPALIDAD DE CARTAGO 2.000.000.000 (FOR THE PROJECT INVOLVING WORKS AT PARQUE SUBREGIONAL DE LOS DIQUES DE CARTAGO, DIRECTRIZ 027-MS-MIVAH DEL 25/03/2008 AND PURSUANT TO ARTICLES No. 22, 23 and 24 OF TITLE IV OF LEY No. 9635 “LEY FORTALECIMIENTO DE LAS FINANZAS PÚBLICAS” DEL 3 DE DICIEMBRE DE 2018). Legal Entity ID 3-014-042080 70104 280 2310 3120 202. Accordingly, the budget allocation for the transfers thus authorized by the Dirección General de Presupuesto Nacional was made in accordance with the parameters established in Article 23 of the aforementioned Ley para el Equilibrio de las Finanzas Públicas, taking into account the following criteria: “a) The Government’s priorities, according to the Plan Nacional de Desarrollo. b) The commitments established in multi-year programming. c) The social purpose of the beneficiary institution in providing public services for the collective benefit, such as education boards, development associations and associations administering community water-supply and sewerage systems. d) Fulfillment of institutional objectives and targets. e) Budget implementation during the three periods preceding the year in which the budget is formulated. f) Resources accumulated from prior fiscal years in the State’s single treasury account. g) Availability of financial resources. h) Variations in the consumer price index. i) Effective fulfillment of the rights intended to be financed and the principle of progressive realization of human rights. j) Other criteria used by the Dirección General de Presupuesto Nacional in exercising its constitutional powers.” For this purpose, the “Lineamientos Técnicos sobre el Presupuesto de la República” for the 2020 fiscal year, issued by the Ministerio de Hacienda, form part of the aforementioned legality framework.
Regarding budgetary transfers made by ministries, these guidelines address the supervision and monitoring of resources, as established in Article 29, which provides: “Article 29—Measurement of the supervision and monitoring of resources transferred by ministries. The governing ministers and ministries granting resources and transfers shall exercise management, coordination and oversight functions over the transferred resources and the results obtained through their implementation. They shall therefore establish internal mechanisms to conduct such monitoring and render the corresponding accounts to this Directorate through monitoring and evaluation reports, in accordance with the instructions that this governing body shall issue in due course.” Likewise, Article 33 of the aforementioned guidelines provides: “Article 33—Incorporation of resources from public entities and foreign donations for a specific purpose.
Entities requiring the incorporation of resources originating from transfers by public institutions or foreign donations for a specific purpose or project shall include in their request to the Minister of Finance up-to-date information on executed agreements, resource-disbursement schedules and details of expenditures, in accordance with the provisions set forth in this document.” As stated above, the capital transfer authorized in the national budget for the Municipalidad de Cartago addresses the need identified by the Ministerio de Vivienda y Asentamientos Humanos to contribute to improving community and neighborhood facilities through infrastructure works benefiting socially vulnerable communities. Within the framework of institutional planning, these communities may be assisted in order to channel, in the future, the means and instruments needed to provide neighborhood-improvement solutions and urban facilities through—as noted above—the interinstitutional coordination relationships required to accomplish these public purposes.
In light of the Regulations for Transfers from the Central Government to Beneficiary Entities (Reglamento para Transferencias de la Administración Central a Entidades Beneficiarias), Decreto Ejecutivo N°37485-H, the Ministry of Finance established a series of internal and external requirements that must be observed by grantor and beneficiary entities of capital transfers (transferencias de capital) in order for the respective disbursements to be processed. The requirements are internal and external. 1. The external requirements identified include: 2. Scheduling of the use of the funds by the beneficiary (Funds Disbursement Schedule). 3. Approval by the Comptroller Body (Ordinary–Extraordinary Budget). 4. Approval by the Municipal Council. 5. Sworn declaration regarding the use of the funds, without their generating an unrestricted surplus (superávit libre) during the period. 6. Justification for the use of the funds and Single Treasury Account balances. 7.
Certification of no arrears in Social Security Contributions. 8. Beneficiary’s Single Treasury Account. The internal requirements are: 1. Agreement executed between the Municipalities and MIVAH, detailing the responsibilities for the activities. 2. Justification for the adjustment to the budget line description (coletilla presupuestaria), if required, in order to process the Executive Decree. 3. Preparation of a form or interim supervision reports (according to the defined stages) by the Directorate of Territorial Planning, with the Director’s endorsement, establishing compliance with those stages and monitoring of the processes, so as to provide technical support to the Financial Department and the Head of Program 814 “Central Activities” for planning the request for funds, approval by the Head of the Program, and endorsement by the Minister, in order to make the transfers effective in accordance with the regulations. 4.
Coordination and scheduling with the National Treasury to make the transfers effective according to the timetable and cash-flow availability. 5. Following the disbursements and upon completion of the Project or, failing that, of the stages carried out, a supporting report on its implementation and on the effective expenditure of the funds is essential. That report must be submitted no later than 30 de enero of the following period. In observance of the aforementioned body of law (bloque de legalidad), this Ministry and the Municipalidad de Cartago executed the corresponding agreement for the capital transfer identified in febrero del 2020, which, as of the present date and as noted by this Ministry’s Internal Audit Office, is outdated, as indicated in section 8.2 of Informe MIVAH-AI-0086-2022, which states in relevant part: “According to the information provided by MIVAH’s Active Administration to this Internal Audit Office, the existence of at least an addendum to the first cooperation agreement signed by the heads of MIVAH and the mayor of the Municipalidad de Cartago (in febrero de 2020) was not established; such an addendum would reflect the project’s current situation, taking into account that a budget amendment reduced the funding for those works, the original amount being ¢2.000 millones and the final amount being ¢1.100 millones.” Regarding the execution of an addendum to the aforementioned agreement, the Minister’s Office, through Oficio N° MIVAH-DMVAH-0401-2023 de 20 de junio del 2023 addressed to the municipal mayor of Cartago, requested that an alternative proposal be submitted to this Ministry for the execution of the works associated with the development of the “Parque Subregional Los Diques,” funding for which was granted by this Ministry in the year 2020.
It also requested that the project profile be submitted promptly, using as a reference the “Guide for Preparing the Profile of a Project to Be Carried Out with Capital-Transfer Funds.” The foregoing was requested in order to conduct the respective technical assessments and, if a favorable endorsement were obtained, to formalize a new cooperation agreement between the Municipalidad de Cartago and the Ministerio de Vivienda y Asentamientos Humanos. Actions taken by the Instituto Nacional de Vivienda y Urbanismo (INVU) On 10 de octubre de 2023, through oficio DUV-134-10-2023, the Director of the Directorate of Urban Planning and Housing, Ing. Alfredo Calderón Hernández, reported that: “I. As shown by the evidence submitted with the petition filed, acting in good faith and with an attitude of cooperation and support, the Institute addressed the Parque Metropolitano Los Diques through oficio DUV-187-11-2020, dated 6 de noviembre del 2020, which states verbatim: ‘…I would also like to inform you that the Parque Metropolitano Los Diques project is of clear interest to INVU’s Directorate of Urban Planning and Housing.
The development of this urban-intervention project is important because it seeks to improve existing infrastructure and provide quality public spaces that will strengthen social interaction and dynamics…’. II. In accordance with Decreto N°22834-MOPT-MVAH, which establishes the Regulations for Land Use and Construction in the Río Reventado Watershed, INVU has applied the applicable regulations as prescribed. III. Approval of the budget for the project known as Parque Metropolitano los Diques does not fall within the authority of this Institute.” It follows from the foregoing that the matter, as an urban intervention, is of interest to INVU and that the support expressed since the year 2020 remains in place. Nevertheless, it is important to bear in mind that Decreto Ejecutivo N°22834-MOPT-MVAH (sic), “Regulations for Land Use and Construction in the Río Reventado Watershed,” serves to standardize the criteria for applying restrictions in the Río Reventado watersheds and, in particular, in the “Diques de Cartago” reserve area, so that public and private institutions, individuals, and legal entities duly comply with the provisions established herein for land use and the construction of houses and various structures, as well as for human settlements, as stated in the recitals of the document.
It may be inferred from the Petition that neither the relocation stage for the settlements nor the construction stage has been reached. Article 4 of that Decree states, in relevant part: “(…) Such uses and structures as are necessary and required exclusively for recreational and sporting activities, as contemplated in Ley N°5592 del 24 de octubre de 1975, shall be regulated by a committee composed of one representative from each of the following institutions: (emphasis added) a. Instituto Nacional de Vivienda y Urbanismo. b. Ministerio de Obras Públicas y Transportes. c. Ministerio de Cultura, Juventud y Deportes. d. Comisión Nacional de Emergencia e. Municipalidad de Cartago or El Guarco, as applicable. (…)” Although INVU is part of that committee, its involvement is regulated for situations in which uses and structures associated with recreational or sporting activities are identified in Dirección03.
Accordingly, the entire account of Facts presented by the Petitioner is essentially unrelated to any involvement INVU might currently have in the project—which it does not have—because the substance of the matter concerns a budget issue; moreover, INVU is not a party to the Agreement between MIVAH and the Municipality. Finally, the Petitioner’s Claims do not seek compliance by INVU. Actions taken in connection with the specific case concerning the alleged omission, as well as MIVAH’s internal procedure for the functioning and operation of transfers Regarding the monitoring of the actions established in the Interinstitutional Cooperation Agreement between the Municipalidad de Cartago and MIVAH within the framework of the capital transfers established for the development of Parque Metropolitano Los Diques, it was determined that staff from this Ministry’s Directorate of Integrated Territorial Management would be responsible for monitoring, while the Administrative and Financial Directorate would be responsible for the transfers.
It is important to note certain financial aspects concerning Parque Metropolitano Los Diques. As indicated by the Head of MIVAH’s Financial Department in an email dated 10 de octubre of the current year in connection with this amparo petition (recurso de amparo), as previously stated, the Budget Law for Fiscal Year 2020 authorized an amount of ¢2.000.000.000,00 (dos mil millones de colones) for this Ministry to make a capital transfer to the Municipalidad de Cartago for the following purpose: “(FOR THE PROJECT INVOLVING WORKS AT PARQUE SUBREGIONAL DE LOS DIQUES DE CARTAGO, DIRECTRIZ 027-MS-MIVAH DEL 25/03/2008 AND PURSUANT TO ARTICLES No. 22, 23 and 24 OF TITLE IV OF LEY No. 9635 ‘LEY FORTALECIMIENTO DE LAS FINANZAS PÚBLICAS’ DEL 3 DE DICIEMBRE DE 2018).” Once the supporting legal requirements under the body of law for expenditure approval (VISADO del gasto) had been satisfied, this Ministry proceeded to disburse the entire aforementioned amount to the Local Government in question; that disbursement was made on 29 de diciembre del año 2020 through proposal N° 15U04.
That proposal was communicated on the same day to both the heads of MIVAH and the mayor and officials of the Municipalidad de Cartago involved in the process. The disbursement in question was made to account N° 73911330100069969, which the Local Government opened in the State’s Single Treasury Account for that purpose. With respect to disbursements subsequent to those indicated above, it should be noted that neither this Department nor the Administrative and Financial Directorate has any involvement whatsoever because, since that account is held in the State’s Single Treasury Account and is owned by the Municipalidad de Cartago, the Local Government must coordinate the disbursements directly with the National Treasury of the Ministry of Finance; consequently, MIVAH has no relationship to or involvement in those actions. Likewise, given its importance in relation to the petitioner’s assertions, it is necessary to understand the current status of the financial resources for the indicated project.
For that purpose, the Executive Report “Capital Transfer to the Municipalidad de Cartago,” prepared by MIVAH’s Administrative and Financial Directorate and signed on 01 de agosto del 2022, is submitted; it reaches the following conclusions and recommendations: “Conclusions 1- The Ministry made the transfer as required at the time by the 2020 Budget Law, as well as by the agreement executed between both parties, and with the corresponding legal support. 2- The agreement executed between the parties has now expired; it also establishes obligations with which the parties must comply, including that the transfer would be used solely for the purpose initially specified by law and that, if there were a budgetary shortfall in covering the project’s total cost, the Municipality would be required to cover that shortfall. 3- The Municipalidad de Cartago applied to the Legislative Assembly for a change in the use of the transferred funds; that change was approved by the Legislature, whose decree was published in Diario La Gaceta No. 170, Alcance No. 175, on 03 de setiembre del año 2021.
The foregoing change represents a total of 45% of the funds initially transferred, that is, an impact amounting to ¢900 millones, leaving only ¢1.100 millones for completion of the works contemplated in the Budget Law and the agreement executed between the parties.
4- MIVAH has made several inquiries regarding responsibility for monitoring (seguimiento) the funds transferred following the budgetary modification (variación) made by the Local Government and approved by the Legislature, both to the Dirección General de Presupuesto Nacional and to the Contraloría General de la República. It may be inferred from these inquiries that MIVAH was responsible for monitoring all the funds until the funds subject to the modification were approved by the Contraloría General de la República, which has already occurred. Accordingly, only the funds corresponding to the project as originally proposed must currently be monitored; that is, MIVAH is responsible only for the ¢1.100.000.000 million. 5- The local government issued a Report stating that, to date, an expenditure (erogación) in the amount of ¢61.Telf01 has been made for engineering services, leaving a balance of: ¢1.038.151.178.
The report also states that the project cost exceeds ¢4 billion colones and that, for the project to continue, MIVAH must disburse the outstanding amount; it further indicates that it is unclear whether the land is a biological reserve (reserva biológica). 6- Several reports have been submitted by MIVAH’s technical departments to the Ministerial authorities, reporting on the circumstances described above. Recommendations In view of the matters set forth in this report, it is determined that, due to the change in the use of the funds approved by the Asamblea Legislativa, it is materially impossible to complete the project agreed upon by the parties, because its cost exceeds the amount initially transferred by MIVAH. The modification reduced the amount available for this work, and, as the Local Government itself indicates, for the project to be viable, the Ministry must transfer the outstanding amount required for that purpose.
It may be inferred from the foregoing that there has been a breach (incumplimiento) of the agreement (convenio) entered into by the parties, since it provided that the funds initially transferred were to be used solely and exclusively for the agreed project and that, should there be any shortfall in completing that project, the Local Government would be responsible for covering it. With respect to this particular issue, it is suggested that the matter be referred to the Ministry’s legal department for consultation. As a result of the various inquiries made to the governing and oversight bodies in this area—namely, the Dirección General de Presupuesto Nacional and the Contraloría General de la República, respectively—it is concluded that MIVAH is responsible only for monitoring the ¢1.100.000.000 approved for the work initially agreed upon by the parties. In accordance with the foregoing, it is considered appropriate to communicate the directives issued by the entities described above and, in view of the modification made to the amount allocated to the new projects, for which the Comisión Nacional de Emergencia and the Ministerio de Cultura Juventud/ Museo Nacional de Costa Rica would be responsible, it is suggested that this notification be copied to the Dirección General de Presupuesto Nacional, the Contraloría General de la República, Auditoría Interna, and Municipalidad de Cartago, in order to define and assign responsibilities according to each entity’s area of authority.
Along the same lines, regarding the amount that MIVAH is responsible for monitoring, it is suggested that consideration be given to coordinating among MIVAH, Tesorería Nacional, and Municipalidad de Cartago so that the latter returns to the Caja Única del Estado the balance of the aforementioned amount existing as of this date.” For purposes of this appeal for constitutional relief (recurso de amparo), the Dirección de Gestión Integrada del Territorio, through the Departamento de Gestión de Programas en el Territorio of this Ministry, submitted the roadmap summarizing the actions taken by this Ministry in connection with the specific case and the alleged omission asserted by the appellant; in that regard, the actions taken in monitoring the specified Project are described. (…) Regulations and other provisions: - Manual Institucional de Puestos MIVAH 2017, final version dated 21 de febrero 2018. - Lineamientos Técnicos sobre el Presupuesto de la República, Dirección General de Presupuesto Nacional, particularly Article 29, regarding the obligation of the ministry granting the resources to establish internal mechanisms for monitoring and accountability (rendición de cuentas) before the appropriate offices of the Ministerio de Hacienda. -Procedure DVMVAH-PRO-0001-2020, entitled Implementation and Monitoring of the Capital Transfer - Procedures approved for DGPT management Having defined the scope of DGPT’s work within the framework of capital transfers (transferencias de capital) to municipalities and, specifically, in relation to Municipalidad de Cartago, its work has been particularly limited to the following: - Assuming responsibility for technical monitoring after the coordination and direction process conducted by the institution’s policy-making units resulted in the corresponding resource-allocation process. - Advising municipal technical counterparts of the technical process to be followed. - Maintaining a system for controlling and monitoring transferred resources from a technical perspective to ensure completion of the works for which the financing was granted. - Technically evaluating the project proposals submitted by the authorities involved in the relevant cases. - Issuing technical opinions on the proposals submitted. - Reviewing the documentation submitted by the beneficiary entity (ente beneficiario) at the various stages of the project life cycle. - Supporting the municipality throughout project management. - Requesting from the municipality the various documents to be submitted throughout the process to ensure traceability (trazabilidad) of the resources. - Complying with the scope of the Convenio de Cooperación Técnico- Financiero entered into between MIVAH and Municipalidad de Cartago. - Establishing a coordination forum through the Comisión Técnica with the corresponding institutional counterparts. - Reporting on the performance of each transfer to the institution’s competent authorities through the issuance of relevant reports and communications. - Assisting municipal technical teams in preparing the documentation required for the management of each process. - Identifying areas for improvement in this financing method in connection with public-policy formulation. - Coordinating proper management of the process with the various MIVAH offices involved. - Developing technical instruments for tracking and monitoring capital transfers to municipalities. - Responding to inquiries submitted by various stakeholders regarding the management of each transfer being implemented. - Providing the technical input supporting submission of the documentation to the Ministerio de Hacienda. - Conducting field visits to monitor projects, as appropriate during the project life cycle. - Alerting MIVAH’s senior administration to the risks posed by the modifications made by Municipalidad Cartago to the resources granted in 2020. - Maintaining the project management file.
The following table details the management activities performed, based on the supporting documentation. The foregoing demonstrates MIVAH’s institutional commitment to the development of the Proyecto del Parque Metropolitano Los Diques, its commitments to Municipalidad de Cartago, and especially its commitments to the residents of the canton where the project is located, without those actions entailing any violation of the fundamental rights cited by the appellant. (…)
Regarding the procedure that the legal system (ordenamiento jurídico) requires the granting entity (entidad concedente) to follow, specifically for the operation and implementation of monitoring budgetary transfers granted to beneficiary entities, as part of the actions taken, MIVAH created the corresponding procedure entitled “Capital Transfers 2020” for the “Implementation and Monitoring of the Capital Transfer,” which is attached. For purposes of this response, it should be noted that the objective and scope of that procedure are to “Define the working mechanisms that, under the regulations in force, are necessary to ensure the traceability of financial resources allocated to local governments through capital transfers, in accordance with the specific purpose of the budgetary transfer,” and for MIVAH personnel to apply that procedure “to the process for capital transfers made by the Ministerio de Vivienda y Asentamientos Humanos (MIVAH) to Municipalities for the development of community infrastructure projects in vulnerable communities.” It is important to note that the specified procedure provides for a series of reports that must be submitted by MIVAH personnel assigned functions within the process, namely the following: “FINANCIAL PROCEDURE EVALUATION REPORT: Technical document prepared by DAF that evaluates the financial process.
This report systematically assesses the completed financial process and records a qualitative comparison between what was planned and what was performed by applying performance measures and verifying the degree of compliance with the forecasts contained in planning and budget instruments in relation to the achievements obtained. A partial report on the financial process shall be prepared when the transfer to the Municipality is made. TECHNICAL PROCEDURE EVALUATION REPORT: Technical document prepared by DGIT in collaboration with DGPT that evaluates the technical process. This report systematically assesses the technical process of the completed project and records a qualitative comparison between what was planned and what was performed by applying performance measures and verifying the degree of compliance with the forecasts contained in the planning instruments in relation to the achievements obtained.
WORK COMPLETION REPORT: Technical-financial document issued by the Municipality stating the dates of acceptance, inauguration, and commencement of operation of the works, when the project works are deemed completed and the financial closing (cierre financiero) is performed. With respect to financial matters, this report must state the amount actually expended, as well as the justification for the expenditure, together with the legal documents supporting the expenditure incurred. The expenditure must be specified in detail, including how the work was contracted and how it was paid for. If the total cost of the work exceeds the amount transferred by MIVAH, this must be recorded in the report, indicating the source of the additional resources. This report seeks to obtain the greatest possible detail regarding implementation so as to provide better traceability for the transferred funds, with the necessary supporting legal documentation (audited settlements, invoice payments, among others).
EXPERIENCE SYSTEMATIZATION REPORT: Report issued by the Municipality that documents and systematizes the processes undertaken during project management to promote reflection, analysis, and learning with the potential to be applied in similar future actions.
This report is submitted at closeout after the works have been completed and accepted, highlighting the most relevant aspects of the process and those that could be improved in future experiences. It includes lessons learned and reconstructs the process, identifying the factors that influenced it, how they interacted, and why they did so in that manner. PROCUREMENT PROCESS REPORT (INFORME DEL PROCESO DE CONTRATACIÓN): Technical document issued by the Municipalidad detailing the procurement process (proceso de contratación), recorded incidents, delays, and any remedial measures taken. This report provides a detailed explanation of the selection of the chosen company and the justification for the decision. This document is submitted after the project’s notice to proceed (orden de inicio). DESIGN AND PERMITTING PROCESS REPORT (INFORME DEL PROCESO DE DISEÑO Y TRAMITOLOGÍA): Technical document prepared by the Municipalidad describing the process of designing and preparing construction drawings (planos constructivos), technical specifications (especificaciones técnicas), calculation reports (memorias de cálculo), and a detailed budget, as well as the permitting procedures (tramitología) followed to obtain the construction permit.
It includes a schedule showing the time allocated to each of these activities, any incidents that occurred, and whether they affected the project schedule in any way. FINANCIAL REPORT (INFORME FINANCIERO): Report issued by the Municipalidad taking into account the actions carried out pursuant to Article 25 of the Reglamento para Transferencias de la Administración Central a Entidades Beneficiarias, which provides: “… the reports must be submitted by the beneficiary entity no later than January 31 of the year following the year in which the transfer was received…”. This report must state the amount actually expended and the justification for the expenditure, together with the legal documents supporting the expenditure incurred. The expenditure must be specified in detail, including how the works were contracted and how payment was made. If the total cost of the works exceeds the amount transferred by the MIVAH, this must be stated in the report.
This report seeks to obtain the greatest possible level of implementation detail so as to provide better traceability of the transferred funds, supported by the necessary legal documentation (audited settlements, payment of invoices, among others). If the Municipalidades do not expend the entire amount transferred during the year, they must nevertheless submit the implementation report by the date prescribed by law. In addition, they must issue another report upon completing the expenditure of the funds. TECHNICAL PROGRESS REPORT ON THE PROCUREMENT PROCESS (INFORME TÉCNICO DE AVANCE DEL PROCESO DE CONTRATACIÓN): Technical document prepared by the Municipalidad demonstrating progress in the implementation of the selected procurement procedure. It is submitted before the transfer request and includes at least: the tender specifications (cartel de licitación), a schedule of the tendering process (proceso licitatorio) from preparation of the tender specifications and terms of reference through the projected notice to proceed, the tender number in SICOP, the current status of that process, and any setbacks encountered.
TECHNICAL–FINANCIAL WORKS PROGRESS REPORT (INFORME TÉCNICO – FINANCIERO DE AVANCE DE OBRAS): Report prepared by the Municipalidad on the technical and financial variables of the construction-work implementation process, detailing recorded incidents, delays, and remedial measures (according to the submitted schedule), as well as expenditures incurred as of the date the report is issued and the corresponding legal supporting documents. If there are unexpended balances in the single treasury account (an account opened by the MIVAH), the Municipalidad must justify them and provide an expenditure forecast.” Accordingly, the corresponding technical reports issued by the MIVAH are attached to this response. Regarding modifications to the budgetary funding of the Parque Metropolitano Los Diques project: As to the reference submitted by the appellant herein, identified as (Evidence No. 08), stating that: “the deputy minister of the MIVAH was granted a hearing for the presentation of the project and the execution of a cooperation agreement between the MIVAH and the Gobierno Local de Cartago for the development of the park in question.
Official Letter No. MIVAH DVMVAH-0002-2020 was considered; it referred to Article 29 of Ley No. 9635 concerning the MIVAH’s oversight duty, as the grantor of transferred public funds, as well as its responsibility to direct and coordinate such funds and the results obtained from their use; it also instructed the specified ministry regarding accountability before the Dirección General de Presupuesto del Ministerio de Hacienda through the submission of the respective monitoring and evaluation reports requested by the technical governing authority (see Evidence No. 8).” Regarding that opinion, it is apparent that it is not binding. Moreover, Article 29 of Ley N°9635, upon which it is based, applies to the prior justification established by the granting Administration for an exclusive-dedication agreement (contrato de dedicación exclusiva) with a public servant or official, not to budgetary transfers specifically authorized by an ordinary budget law.
It is therefore clarified that this opinion does not have binding force sufficient to compel compliance with its contents, because it was not issued by the State’s Advisory Body or the Governing Body for the subject matter. Furthermore, the interpretation given is far removed from the provision’s regulated content and from what the legislature established, whose purpose is different: to regulate exclusive-dedication agreements granted by the Administration to public servants. Instead, the legal basis for monitoring the development of works financed through a capital transfer (transferencia de capital) is found in Article 29 of the Lineamientos Técnicos para el Presupuesto de la República, issued by the Ministerio de Hacienda for the 2020 budget. In this regard, it must be stated that, when capital transfers are made to a Gobierno Local, such oversight functions must—out of respect for the principle of municipal autonomy and the body of law governing municipal powers—be carried out within a framework of coordination and cooperation.
These actions must derive from a cooperation instrument embodied in a specific agreement that provides for the capital transfer, as well as the corresponding provisions governing oversight and the deployment of control mechanisms inherent to this collaborative activity among public-law entities, as was in fact established in the agreement executed between the MIVAH as the granting entity and the Municipalidad de Cartago as the beneficiary entity. This is without prejudice to the controls and responsibilities established in Articles 1, 4, 55, 56 and 57 of the Ley de Administración Financiera de la República y Presupuestos Públicos, Ley N°8131 de 18 de setiembre de 2001; the Reglamento para Transferencias de la Administración Central a Entidades Beneficiarias, Decreto Ejecutivo N°37485 del 17 de diciembre 2012; and the Reglamento Orgánico del Poder Ejecutivo under which the Los Diques project was initially conceived, Decreto Ejecutivo N°41187 del 20 de junio de 2018, which has now been replaced by Decreto Ejecutivo N°43580 de 1° de junio del 2022 establishing sectoral governing authority (rectorías sectoriales), understood as “the authority of Government Ministers to direct and coordinate a group of bodies and entities of the Administración Pública whose purposes and powers are related to the strategic governmental activity entrusted to them by Law or by the Presidente de la República, in order to guide and supervise the implementation of public policies that consistently direct the actions of the Poder Ejecutivo toward a specific public purpose.
Governing authority shall make it possible to establish the proposed policy objectives by formalizing them into policies that must be implemented by the various bodies and entities of the Administración Central y Descentralizada.” Through this mechanism, the head of the MIVAH exercises the governing authority over the Sector Vivienda, Hábitat y Territorio pursuant to Article 7(m) of Decreto Ejecutivo N°43580 de 1° de junio del 2022, which sector comprises the Ministerios de Obras Públicas y Transportes, Planificación y Política Económica, Ambiente y Energía, Agricultura y Ganadería, Instituto Nacional de Vivienda y Urbanismo, Banco Hipotecario de la Vivienda, created by Ley N°7052 de 13 de noviembre de 1986, and Instituto de Desarrollo Rural, for the issuance of housing and land-use planning policy (ordenamiento territorial). By virtue of this governing authority, the head of the MIVAH is entrusted with powers pursuant to Article 4 of the cited provision, including the following: “ (…) f) Create the coordination and advisory forums necessary for effective policy direction of the bodies and entities comprising the Sector, particularly within the field of national development planning; coordination and cooperation relationships may be established that lead to appropriate multilevel governance (national, sectoral, regional, and local) and multi-actor governance (Administración Central y Descentralizada, other Poderes de la República, Gobiernos Locales, private-sector organizations, and organized civil society) for such purposes. g) Facilitate actions to monitor and evaluate the institutional management of the sector, particularly public-investment projects.
(…)” In that vein, the main grievance raised by the appellant in this amparo proceeding (recurso de amparo) consists of identifying the change arising from the amendment to Ley N°9791 de 26 de noviembre del 2019 de Presupuesto Ordinario y Extraordinario de la República para el Ejercicio Económico del 2020, through which a capital transfer was allocated to the Municipalidad de Cartago, to be transferred by the Ministerio de Vivienda y Asentamientos Humanos to that municipality for the specific purpose of the Parque Los Diques. In this regard, it must be stated that the authorities of this Ministerio acted in accordance with law by proceeding, as ordered by the provision, to make the budgetary transfer as required by law. It bears recalling that, regarding the approval of the Municipalidad de Cartago’s initial budget for 2020 by the Contraloría General de la República, in Official Letter DFOE-DL-2244 de 19 de diciembre del 2019, the oversight body addressed the Administration’s responsibility during the budget-execution stage, stating, in pertinent part, as follows: “Implementation of the budget is the exclusive responsibility of the senior authority and subordinate officials; it must conform to the previously established program and be carried out in strict compliance with the legal and technical provisions in force, including Ley Fortalecimiento de las Finanzas Públicas, N.° 9635.
Accordingly, the institution must establish the control mechanisms necessary to ensure that budget implementation conforms to the allocations approved by this Contraloría General, complies with the body of applicable law, and proceeds in accordance with the objectives, targets, and priorities set forth in the institutional operational plan. Pursuant to Rule 4.2.3 of the NTPP, budget amendments (modificaciones presupuestarias) must not be submitted for external approval by the Contraloría General de la República, because the act of internal approval confers upon them the legal effectiveness required for implementation during the corresponding period.
However, in application of the principle limiting the financing of current expenditures with capital revenue, during the execution phase the institution may not make budget amendments (modificaciones presupuestarias) that entail an increase in current expenditure to the detriment of capital expenditure financed from such revenue.” It follows that, with regard to the amendments to the Ley de Presupuesto Ordinario y Extraordinario de la República and the prescribed manner of varying the distribution of the budget transfer made by the MIVAH, which the Municipalidad de Cartago subsequently sought before the Asamblea Legislativa, this may be considered part of the normal process undergone by the programming of the budgetary fiscal year, which falls within the exclusive jurisdiction of the Asamblea Legislativa. Accordingly, these actions far exceed the authority of the Ministerio de Vivienda y Asentamientos Humanos and fall under the strict responsibility of the implementing Administration; the Chamber is therefore requested to reject, as regards this Ministry, the applicant’s claim that fundamental rights were violated for that reason.
The legality framework (bloque de legalidad) established in the aforementioned Ley N°8131 is subject to the principle of budget annuality, as well as to the quantitative and qualitative specificity of the financial management involved in the budget process and the various stages comprising that process, identified in Capítulo II Sección I Formulación, Sección II Ejecución and Sección III Control y Evaluación del Presupuesto de la República of the Ley de Administración Financiera de la República y Presupuestos Públicos. Consequently, the budget’s operation and implementation are subject to amendments and extraordinary budgets, as provided in artículo 45 of the aforementioned Ley N°8131. Therefore, because the budget is subject to all such amendments inherent in the budget process, pursuant to artículos 32 (Extraordinary budget), 33 (Budget structure), 61 (Budget amendments by executive decree), 62 (Request for transfers of appropriations within the same program or subprogram), 70 (Reprogramming due to amendments), and principally 128 of the Reglamento a la Ley N°8131 (Decreto Ejecutivo N°32988 de 31 de enero del 2006), in relation to numeral 46 of that same law, it is reiterated that this is the normal course followed by the programming of the Presupuesto Ordinario y Extraordinario de la República, which—as stated—is subject to the amendments authorized by the legal system and carried out by the Asamblea Legislativa in observance of due process (debido proceso).
Accordingly, these are actions in which this Ministry must refrain from intervening so that such amendments may be carried out, since doing so could constitute interference with municipal autonomy in the distribution of its budgetary resources, a matter over which this Ministry has no authority. The amendment was ultimately approved by the Asamblea Legislativa in accordance with the legislative procedure, without this directly entailing a violation of the fundamental rights of the residents of Cartago carried out or promoted by this Ministry. Although we operate within relationships of cooperation and coordination, this was a decision made without consulting this Ministry, since our actions, as noted, fall within interinstitutional coordination and the provision of means so that the competent bodies may carry out the corresponding actions as required by law, whether under the specific budget provision or the other related regulatory instruments, in order to undertake the corresponding work on the Parque Metropolitano Los Diques.
Informe MIVAH-AI-0086-2022, issued by the Auditoría Interna del MIVAH on 18 de octubre del 2022 concerning the amendment of the budget allocation for the Proyecto del Parque Los Diques, stated: On 03 de setiembre de 2021, the Municipalidad de Cartago took action through “Ley N.º 10035 "Quinto Presupuesto Extraordinario de la República para el Ejercicio Económico de 2021” (published in alcance N.°175 of Gaceta N.°170) to establish a new distribution5 of the ¢2.000 million initially budgeted, which was ultimately authorized by the Plenario de la Asamblea Legislativa de Costa Rica, specifying the following amounts: a) ¢1.1006 million for the Parque Subregional de los Diques de Cartago works. b) ¢200 million for studies of the río Reventado watershed. c) ¢700 million for the “Proyecto desarrollo del Centro de Interpretación Agua Caliente de Cartago Municipalidad de Cartago”. Given the new amount of ¢1.100 million, this sum does not conform to the project profile7, together with the budget projections and work schedules8 initially prepared on the basis of the ¢2.000 million budgeted; accordingly, these are examples of technical commitments detailed in the original “cooperation agreement (convenio de cooperación)” and established with a budget allocation that, as of today, is no longer the same.
In addition, the Municipalidad de Cartago failed to submit to the MIVAH, in its capacity as Granting Entity, the report with a cutoff date of 31-01-2022 required by artículo No.25 of Decreto N°37485-H. According to inquiries made with the Dirección Administrativa Financiera del MIVAH (DAF), a report on the use of the funds by the Municipalidad de Cartago, dated 17-08-2022, was received at the request of the DAF del MIVAH; however, this constitutes an untimely submission of the report required by the aforementioned artículo of Decreto N°37485-H. Cause: Although the new distribution of the use of the resources materialized through the budget amendment approved by the Plenario de la Asamblea Legislativa on 03-09-2021, it should be noted that other official letters and technical reports also form part of the matter under review and must therefore be considered by the MIVAH in order to clarify the current status of this capital transfer and the aforementioned project.
For example: a) One relevant precedent is official letter AM-OF1212-2021, issued by the Municipalidad de Cartago and dated 11-08-2021 (See Anexo No.1 for details), in which the Municipalidad de Cartago set forth the new overall budget for infrastructure works to be developed using the amounts of ¢1.100 and ¢200 million for studies of the río Reventado watershed. That official letter lists the works to be carried out with the ¢1.100 million, including plan designs, multiuse courts, opening of trails, a water well, a security booth, a skate park, and electrical systems, as well as a separate list containing a total of 44 technical studies for the río Reventado watershed, valued at ¢200 million. b) Furthermore, according to an email dated 10 de junio del 2022 and sent by the Head of the DGPT, we were provided with a series of documents concerning the project with the Municipalidad de Cartago, including official letter DU-OF-195- 2022 / OMPU-49-2022 dated 18-04-2022 (See Anexo No.2), signed by the Director de Urbanismo Municipal de Cartago and the Encargado de la Oficina de Planificación Urbana Director técnico del Proyecto Parque Metropolitano los Diques.
In summary, that official letter states that the Municipality had no technical studies supporting the amendment of budgetary resources processed before the Asamblea Legislativa, and that continuation of the project depends on the MIVAH providing an additional ¢3.000 million to complete the works. The foregoing is detailed below in an excerpt from the aforementioned official letter: “(Underlining and highlighting appear in the original) And the following is identified as an effect of those amendments on the Project budget: “Given the extensive documentation concerning the project based on a capital transfer to the Municipalidad de Cartago, it is determined that the operational budget amendment10 approved by the Asamblea Legislativa creates a risk to the planning, execution, and construction of the project with the Municipalidad de Cartago. This exposes the MIVAH to potential reputational and legal implications due to the failure to achieve the public purpose associated with this capital transfer.
The untimely submission of reports to the Granting Entity is addressed in the applicable regulations and may constitute grounds for requesting the return of the funds, should that be deemed appropriate.” The report addressed to the head of the MIVAH recommended that, in light of Decreto N°37485-H Reglamento para Transferencias de la Administración Central a Entidades Beneficiarias and the application of NICSP 36 concerning Investments in Associates and Joint Ventures, and considering that resources are traceable through the annual formulation of the Presupuesto Nacional de la República and its execution through the Ministerio de Hacienda, Ministerio de Vivienda y Asentamientos Humanos, BANHVI, developers, and authorized entities, coordination by the head and subordinate officials is required in order to: “10.3 In the case of the Cartago capital transfer, identify the most significant provisions of the original “cooperation agreement” that were amended as a result of the aforementioned reduction in budgetary resources, for the purpose of establishing a new agreement or addendum that reflects the project’s current circumstances and represents the final agreement between the parties (Directora DAF and Director DGIT) See punto 8.2 of the report. 10.4 Rely on the reports or analyses of the technical departments of both entities to prepare a report determining the project’s feasibility and how the additional future resources required to complete construction of the Parque Subregional de los Diques de Cartago will be managed (Directora DAF and Director DGIT) See punto 8.2 of the report. 10.5 Request from the Municipalidad de Cartago detailed budget projections and schedules for the expenditure of the ¢1.100 million on works related to the Parque Subregional de los Diques de Cartago and the ¢200 million for studies of the río Reventado watershed, taking into consideration that CGR official letter DFOE-LOC-0988 dated 17-06-2022 determined that a balance of ¢1.038 million remained for the aforementioned project.
(Directora DAF and Director DGIT) See punto 8.2 of the report.” The foregoing indicates that, although the MIVAH was barred by principle and by the legality framework from interfering in municipal budget development and execution, these actions by the Gobierno Municipal do affect the overall planning and distribution of resources, which already present significant difficulties for implementing the Project under the terms originally agreed upon and budgeted. Nevertheless, within the scope of its authority and capabilities, this Ministry will endeavor to continue taking the actions assigned to it under the legal system with respect to the budget transfer granted. It follows from the foregoing that, in this case, the authorities of the Ministerio de Vivienda y Asentamientos Humanos acted within the established scope of their authority, without infringing any fundamental right invoked by the appellant.
Finally, given their importance to the scope of this report as it relates to the present amparo proceeding (recurso de amparo), the recommendations issued by the MIVAH technical team in Report DGPT-AAS-005-21.09.2023 of October 11, 2023, prepared by the Departamento de Gestión de Programas en el Territorio, are transcribed below. In relevant part, the report recommends: “MIVAH shall request that the Municipalidad de Cartago: 1.- Provide details concerning the use of the difference in the amount of ¢473.151.178,00 (Four hundred seventy-three million one hundred fifty-one thousand one hundred seventy-eight net colones), resulting from the amount available for ‘Construction of Parque Metropolitano Los Diques’ and the ‘…sports and recreational components proposed in this project,’ in accordance with the details set forth in area 6 of the document submitted as ‘Project profile to be carried out with funds from the National Budget through a transfer from MIVAH in 2020,’ ‘Taras and Los Diques Sports and Recreational Project.’ 2.- Assessment by the senior authorities of MIVAH of the use of 20% of the amount transferred to conduct a ‘Risk and Watershed Management Study for Rio Reventado,’ given that, as its introduction properly explains, ‘This area has been extensively studied over the years by institutions such as the Instituto Costarricense de Electricidad ICE, Refinadora Costarricense de Petróleo RECOPE, Ministerio de Ambiente y Energía MINAE, Universidad de Costa Rica UCR, Instituto Tecnológico de Costa Rica ITCR, Comisión Nacional de Emergencias CNE.
It has also been studied by the private sector through Quebrador Ochomogo, which is currently being exploited to reduce the possibility of the Reventado River being dammed as a result of the Banderillas movement. Of all so early that contributes to risk management in this watershed.’ (underlining not in the original). 3.- Request that a technical opinion supporting the need for investment in a ‘Risk and Watershed Management Study for Rio Reventado’ be attached to the profile; such investment is considered to be municipal matching funding (contrapartida municipal) as a contribution guaranteeing to the State the proper use of the resources allocated to the municipality for the development of projects benefiting the canton. The foregoing is intended to optimize the resources granted by MIVAH for the development of public works. 4.- Following the evaluation of the materials submitted by the institution that benefited from the capital transfer (transferencia de capital) in 2020, there is no element describing a clear and specific project scope to be covered by the ¢1.038.151.178,00. 5.- Having such an element is a fundamental basis that must be reflected in a mature proposal.
Far from clarifying the situation, the materials submitted raise questions regarding the scope of the project, including all possible activities consistent with the characteristics of the intervention area, a budget breakdown consistent with the foregoing, and the provision of municipal matching funding for preliminary studies that are not contemplated but are required in order to execute the new framework technical and financial cooperation agreement (convenio marco de cooperación técnico-financiera) between the two public entities. 6.- The use of public investment capital is not recommended on land that has not yet been registered in the name of Nombre01 of the municipality; this is to provide legal certainty for the maintenance of the works using municipal budgets. 7.- Assessment by the senior authorities of MIVAH of the use of the resources allocated for the original purpose, in view of the reduction in the components comprising it within a specific area and the modifications that have reduced those components through the present profile submitted, in which the municipality proposes their use in other portions of the territory initially proposed, in accordance with the provisions of the Reglamento de Requerimientos generales sobre las transferencias, subsections: ‘… 8.- For each transfer, the purpose, consistent with the laws and provisions governing the subject matter, shall be clearly established. 9.- The granting entity (entidad concedente) shall verify compliance with the conditions necessary to ensure observance of the purpose assigned to the transfer.
Likewise, every transfer is subject to fulfillment of the purpose established in the governing provision, such that the resources may be used only for the purpose that gave rise to the transfer.’ (boldface not in the original) 10.- Until all of the foregoing has been adequately remedied, it is recommended that the MIVAH administration refrain from signing the aforementioned Agreement; likewise, should the beneficiary entity (entidad beneficiaria) fail to provide what has been requested, it should consider recovering the resources granted, as provided in the Reglamento de Transferencias, Article 26.- Failure to submit reports to the Granting Entity. ‘If the Beneficiary Entity fails to submit the reports required under these regulations, the Granting Entity shall take the appropriate actions within the scope of its authority, which may include, at a minimum: Suspension of resource transfers.
Initiation of proceedings to recover transferred resources. Revocation of the suitability qualification (calificación de idoneidad).’ (underlining not in the original) “ 2. CONCLUSIONS: In view of the foregoing, it may be concluded without any doubt that: 1. Neither MIVHA nor INVU has violated the constitutional rights or guarantees invoked by the petitioner herein, because, in observance of the principle of legality (principio de legalidad), they exercised the powers and took the actions authorized by the legal system. 2. The amendment of the Ley de Presupuesto Ordinario y Extraordinario de la República for the redistribution of capital transfers made to the Municipalidad de Cartago is a matter of coordinated authority between the Local Government and the Asamblea Legislativa, in which neither MIVAH nor INVU has had any involvement because they lack authority over the matter; therefore, no violation of the fundamental rights of the residents of Cartago may be attributed to them. 3.
The actions taken by MIVAH and INVU in this specific case constitute, within the scope of their authority, interinstitutional coordination efforts and the provision of means so that the competent bodies may carry out the corresponding works relating to the Bono Comunal in Parque Metropolitano Los Diques, without such actions resulting in or entailing any violation of fundamental rights.” It requests that the petition be denied.
In other words, it is the right to make a request, not the right to obtain what is requested—even when the public official must decide in strict accordance with the law—because freedom of petition is founded on another principle; namely, that the Administration may not restrict the right of those governed to address public bodies.” Along the same lines, judgment Nº 2004-07296, issued at eight fifty-six a.m. on July second, two thousand four, by that honorable Court, stated: “In any event, the duty to decide does not entail receiving either a favorable or unfavorable response, but it does require consistency between the subject matter of the request and that of the response.” Furthermore, the doctrine developed in light of constitutional case law indicates that the right of petition (derecho de petición) is realized not through the satisfaction of the applicant’s request, but through a timely response from the Administration within a reasonable period; in such a case, the period for responding is strictly related to the particular characteristics inherent in the nature of the request, including its complexity and institutional consequences, which under no circumstances may be interpreted as authorization to violate the applicant’s fundamental right (...)”. It requests that the appeal be dismissed.
From the foregoing, it can be inferred that there has been a breach of the agreement entered into by the parties, since it stipulated that the funds initially transferred were solely and exclusively for the agreed project and that, should there be any shortfall in completing that project, the Local Government would be responsible for covering it. On this particular point, it is suggested that the matter be referred to the Ministry’s legal counsel for consultation. As a result of the various inquiries made to the governing and oversight bodies in this area, namely, the Dirección General de Presupuesto Nacional and the Contraloría General de la República, respectively, it follows that MIVAH is responsible solely for monitoring the ¢1.100.000.000 approved for the work initially agreed upon by the parties. In light of the foregoing, it is considered appropriate to communicate the directives issued by the entities described above and, given the change made to the amount, which was allocated to the new projects for which the Comisión Nacional de Emergencia and the Ministerio de Cultura Juventud/ Museo Nacional de Costa Rica would be responsible, it is suggested that this notice be provided with copies to the Dirección General de Presupuesto Nacional and the Contraloría General de la República, Auditoría Interna, and Municipalidad de Cartago, in order to define and assign responsibilities according to each entity’s area of authority.
Along the same lines, with respect to the amount that MIVAH is responsible for monitoring, it is suggested that consideration be given to having MIVAH coordinate with Tesorería Nacional and Municipalidad de Cartago so that the latter entity returns to Caja Única del Estado the existing balance, as of this date, of the aforementioned amount.” Based on the foregoing, we state that, as authorities of the Ministerio de Vivienda y Asentamientos Humanos, with regard to the subject matter of this appeal for constitutional relief (recurso de amparo), we have acted strictly within the scope of our administrative authority, without encroaching upon other areas or affecting any fundamental right invoked by the petitioner, and have reached the following conclusions. CONCLUSIONS: By virtue of the foregoing, it may be concluded, without any doubt, that: 1. This Ministry has not violated any constitutional rights or guarantees invoked by the petitioner herein, since, in observance of the principle of legality (principio de legalidad), it exercised the powers and took the actions authorized by the legal system. 2.
We incorporate into this report the statements submitted by the head of the Ministerio de Vivienda y Asentamientos in the report dated 12 de octubre of this year concerning the merits of this appeal for constitutional relief. 3. The amendment of the Ley de Presupuesto Ordinario y Extraordinario de la República for the redistribution of capital transfers made to Municipalidad de Cartago is a matter coordinated between the Local Government and Asamblea Legislativa, in which Ministerio de Vivienda y Asentamientos Humanos has had no direct involvement because it lacks authority to do so; consequently, because this Ministry did not participate in that action, it cannot be held responsible for any violation of the fundamental rights of the residents of Cartago. 4. The actions taken by Ministerio de Vivienda y Asentamientos Humanos in this specific case constitute, within the scope of its authority, interinstitutional coordination efforts and the provision of means so that the competent bodies may carry out the corresponding works relating to the Bono Comunal in Parque Metropolitano Los Diques, without such actions causing or entailing any violation of fundamental rights.
Accordingly, let the hearing granted be deemed answered and the corresponding report be deemed submitted and supplemented insofar as it concerns the authorities of Ministerio de Vivienda y Asentamientos Humanos.” They request that the appeal be dismissed.
Justice Delgado Faith drafts the opinion; and,
Whereas:
I.Preliminary matter (cuestión preliminar). Given that the Director General of Museo Nacional failed to submit the report within the period established by this Court in the order admitting this matter for consideration, pursuant to article 45 of the Ley de la Jurisdicción Constitucional, the constitutionality of the matter shall be analyzed on the basis of the other evidence entered into the record.
II.Subject matter of the petition (objeto del recurso). The petitioner believes that the rights of the inhabitants of Cartago are being violated by the budget amendment (modificación presupuestaria) concerning the construction of Parque Metropolitano de Los Diques, the funds for which were transferred to Municipalidad de Cartago in 2020 pursuant to Ley 9926 so that, together with municipal resources, construction of the park could begin under the oversight of Ministerio de Vivienda y Asentamientos Humanos, Ministerio de Obras Públicas y Transportes, Ministerio de Ambiente y Energía, Comisión Nacional de Emergencias, Instituto Nacional de Vivienda y Urbanismo, and Ministerio de Cultura y Juventud. He states that the purpose of the project is to prevent further encroachment upon Reserva Nacional del río Reventado and to provide sound urban oversight and risk management (gestión del riesgo) for the community of Cartago. He alleges that the project cannot be carried out with the budget remaining after the budget amendment. Based on the foregoing, he requests the intervention of the Chamber.
III.Proven facts (hechos probados). The following facts are deemed duly established and relevant to the decision in this matter:
a. The development proposal for Parque Metropolitano Los Diques seeks to provide the area with multiple cultural, economic, social, and environmental functions and to consolidate Reserva Nacional del río Reventado as an intermediate biological corridor (corredor biológico intermedio) within the watershed, thereby contributing to the national carbon-neutrality goals by opening it to the general public and improving residents’ quality of life through greener spaces offering greater availability, quality, safety, and accessibility in the province of Cartago (see reports submitted under oath); b. The development proposal for Parque Metropolitano Los Diques does not entail eviction proceedings (procesos de desalojo); therefore, a subsequent phase must be undertaken to find a housing solution for the informal settlements (asentamientos informales) currently located in the Los Diques area (relocation of the settlements) (see reports submitted under oath); c. On 1 de diciembre de 2020, Ministerio de Obras Públicas y Transportes, Ministerio de Vivienda y Asentamientos Humanos, and Municipalidad de Cartago entered into the agreement entitled “SPECIFIC INTERINSTITUTIONAL COOPERATION AGREEMENT AMONG MINISTERIO DE OBRAS PÚBLICAS Y TRANSPORTES, MINISTERIO DE VIVIENDA Y ASENTAMIENTOS HUMANOS, AND MUNICIPALIDAD DE CARTAGO, FORMALIZING THE REVOCABLE LOAN FOR USE OF LAND AND THE PROVISION OF ADVICE AND SUPPORT FOR ADDRESSING THE RÍO REVENTADO PROTECTION AREA IN CANTÓN CENTRAL DE CARTAGO THROUGH A COMPREHENSIVE APPROACH TO ENVIRONMENTAL, SOCIAL, AND LEGAL MATTERS,” which established the following purpose: “FIRST: PURPOSE.
The purpose of this agreement is to regulate the conditions governing a specific interinstitutional cooperation agreement under which MOPT, MIVAH, and the Municipality will combine their efforts, in accordance with their respective powers, to bring about various environmental, maintenance, encroachment-prevention, and sports-infrastructure projects. Such participation shall be subject to the powers of each Institution and to their available budgets and resources. / All interventions undertaken by the Signatory Parties shall be carried out with the intention of achieving better environmental, social, legal, material, and any other conditions for Cantón de Cartago, specifically along the banks of Río Reventado de Cartago, an area known as ‘Los Disques’” (see reports submitted under oath); d. On an undetermined date, Ministerio de Obras Públicas y Transportes granted Municipalidad de Cartago, by way of a revocable loan for use (préstamo en precario), a total of 28 properties registered in its Nombre01 and duly recorded in the cadastre, entrusting the local government with the administration of the loaned land so that it could construct the infrastructure works included in the Parque Metropolitano Los Diques project (see reports submitted under oath); e. Through a capital transfer to account no. 73911330100069969 from Ministerio de Vivienda y Asentamientos Humanos to Municipalidad de Cartago, the sum of ¢2.000 million was allocated to finance the first phase of the Parque Metropolitano Los Diques project, consisting of trails, reforestation of the river protection areas, sports courts, a fairground, an amphitheater, picnic areas, and shelters from the rain (see reports submitted under oath); f. The sum of ¢2.000 million was provided for under the Ley de Presupuesto Ordinario y Extraordinario para el Ejercicio Económico del 2020 (Ley N°9791 de 26 de noviembre del 2019) (see reports submitted under oath); g. On an undetermined date, Municipalidad de Cartago prepared the preliminary conceptual design (anteproyecto preliminar), which led to the preparation of the tender specifications (cartel de licitado) for the design of construction plans and the construction of the Parque Metropolitano Los Diques project (see reports submitted under oath); h. Through report no. AM-INF-223-2021 of 29 de julio de 2021, the Mayor of Municipalidad de Cartago submitted a request to the Concejo seeking its approval to refer the corresponding authorization to Comisión Permanente de Asuntos Hacendarios de la Asamblea Legislativa for the purpose of partially modifying (redistributing) the allocation of the resources for the Parque Metropolitano Los Diques project (see reports submitted under oath); i. By means of the resolution contained in article no. 5 of minutes no. 96-2021, from the meeting held on 3 de agosto de 2021, the Concejo of Municipalidad de Cartago approved report no. AM-INF-223-2021 (see reports submitted under oath); j. Asamblea Legislativa approved and published the fifth extraordinary budget of the Republic for fiscal year 2021 and the sixth legislative amendment to Ley no. 9926, “Ley de Presupuesto Ordinario y Extraordinario de la República para el Ejercicio Económico del 2021,” which was published in Diario La Gaceta no. 170, supplement no. 175, on 3 de setiembre de 2021 (see reports submitted under oath); k. The change requested by Municipalidad de Cartago represented a total of 45% of the funds for the Parque Metropolitano Los Diques project, leaving a balance of ¢1.100 million (see reports submitted under oath); l. Through resolution no. 1112-2022-SETENA at 09:19 hours on 30 de junio de 2022, Secretaría Técnica Nacional Ambiental granted environmental approval (viabilidad ambiental) to the Parque Metropolitano Los Diques project for a term of 5 years (see reports submitted under oath); m. The authorities of Municipalidad de Cartago reported that “8.
The park project is currently continuing to move forward responsibly, with contracts associated with the environmental component and interinstitutional coordination intended to safeguard the investments to the greatest extent possible; in this case, they remain within the boundaries of Reserva del Rio Reventado pending the results thereof (…) 10. Parque Metropolitano Los Diques, as a risk-management and urban and ecological regeneration strategy, is not unviable under the municipality’s technical assessment, and more specifically from the perspective of Oficina de Planificación Urbana. In this regard, conducting studies to supplement the existing hydraulic studies is necessary and always advisable, given the origin of the Reserve and its natural cycles of events associated with flooding and landslides. This will enable all the entities involved either to safeguard the planned investments or to abandon them, if warranted. 11.
Parque Metropolitano Los Diques already exists as a public space; what is required is to enhance its value and encourage the people of Cartago to embrace the site by creating a sufficient range of services and recreational opportunities within a safe and welcoming environment. Otherwise, we will continue to foster improper environmental and social conditions within the reserve” (see reports submitted under oath).
IV.Regarding the specific case. In the case at hand (sub lite), the petitioner believes that the rights of the residents of Cartago are being violated by the budget amendment intended for the construction of the Parque Metropolitano de Los Diques, which was transferred to the Municipalidad de Cartago in 2020 pursuant to Ley 9926 so that, together with municipal resources, implementation of the park could begin under the oversight of the Ministerio de Vivienda y Asentamientos Humanos, the Ministerio de Obras Públicas y Transportes, the Ministerio de Ambiente y Energía, the Comisión Nacional de Emergencias, the Instituto Nacional de Vivienda y Urbanismo, and the Ministerio de Cultura y Juventud. He states that the purpose of the project is to prevent further encroachment upon the reserva nacional del río Reventado and to provide sound urban control and risk management for the Cartago community. He alleges that the project cannot be carried out with the budget remaining after the budget amendment. In light of the foregoing, he requests the Chamber’s intervention.
In this regard, based on the reports submitted under oath and the evidence entered into the case record (expediente), this Court does not find that any violation of the protected party’s (amparado) fundamental rights has occurred. In this respect, it is important to emphasize that the petitioner has brought this proceeding in general terms, without identifying any specific situation involving injury or threat to his fundamental rights attributable to the authorities of the Comisión Nacional de Prevención de Riesgos y Atención de Emergencias, the Instituto Nacional de Vivienda y Urbanismo, the Ministerio de Ambiente y Energía, the Ministerio de Cultura y Juventud, the Ministerio de Obras Públicas y Transportes, the Ministerio de Vivienda y Asentamientos Urbanos, the Municipalidad de Cartago, or the Museo Nacional. It should be noted that, upon reading the petition initiating the proceeding, the petitioner’s allegations are directed at challenging the budget amendment intended for the construction of the Parque Metropolitano de Los Diques and the conduct of the Municipalidad de Cartago concerning implementation of the Parque Metropolitano Los Diques project.
Regarding this matter, first, this Court observes that the challenged budget amendment was authorized and approved by the Asamblea Legislativa—publication made in Diario La Gaceta nro. 170, alcance nro. 175 on 3 de setiembre de 2021. In this regard, any challenge concerning actions taken by the Municipalidad de Cartago or the authorities in connection with this law, or any disagreement regarding whether the budget appropriations established by the legislature for the project in question have been implemented, is far removed from a constitutional matter, as these are clearly disputes concerning ordinary legality that must be brought and resolved before the appropriate ordinary authorities. It is evident that it is not for this Chamber to determine whether particular budget amendments approved by the legislature in the exercise of its own powers are advisable, much less to verify whether the budget appropriations have been implemented, because jurisdiction to hear and rule on these types of allegations lies with the administrative or judicial bodies responsible for matters of ordinary legality.
Moreover, contrary to the petitioner’s allegations, the authorities of the Municipalidad de Cartago reported under oath that “8. The park process is currently continuing responsibly, with procurement related to the environmental component and interinstitutional coordination intended to safeguard the investments insofar as possible; in this case, those investments remain within the boundaries of the Reserva del Rio Reventado pending receipt of the results of these efforts (…) 10. From the municipality’s technical standpoint, and more specifically from the perspective of the Oficina de Planificación Urbana, the Parque Metropolitano los Diques, as a risk-management and urban and ecological regeneration strategy, is not unfeasible. In this regard, conducting studies to supplement the existing hydraulic studies is necessary and always beneficial, given the origin of the Reserva and its natural cycles of events associated with flooding and landslides.
This will enable all entities involved either to safeguard the planned investments or, if appropriate, to reject them. 11. The Parque Metropolitano los Diques already exists as a public space; what is required is to enhance its value and enable the people of Cartago to take ownership of the site by creating an adequate offering of services and recreation within a safe and welcoming environment. Otherwise, we will continue to foster inappropriate conditions in the Reserva in environmental and social terms” (emphasis not in the original).
Based on the foregoing, it must be stated that the purpose of an amparo proceeding (recurso de amparo) is to provide timely protection against violations of or direct threats to fundamental rights and freedoms, not to serve as a general instrument for channeling other types of petitions or complaints. In this regard, it must be clarified that this Court is not a forum for processing disagreements or complaints of this kind. The foregoing is unquestionably inconsistent both with the summary nature of amparo proceedings and with the jurisdiction of this specialized court, as established by the Ley de la Jurisdicción Constitucional and the Constitución Política itself. Should the petitioner remain dissatisfied with the conduct of the Municipalidad de Cartago, he may, if he sees fit, formally file a complaint or grievance so that the appropriate determination may be made. This is because, contrary to the petitioner’s allegations, it has been duly established that the respondent authorities that signed the relevant agreement, including the Ministerio de Obras Públicas y Transporte and the Ministerio de Vivienda y Asentamientos Urbanos, acted within the scope of their powers.
Furthermore, according to the information provided by the authorities of the Municipalidad de Cartago, the challenged project remains underway because, under the technical assessment, its completion is not unfeasible. It must be made clear that the Parque Metropolitano los Diques already exists as a public space for the enjoyment of the residents of the province of Cartago.
Additionally, it is reiterated that the petitioner does not describe any specific situation involving injury or threat to his fundamental rights by the authorities of the Comisión Nacional de Prevención de Riesgos y Atención de Emergencias, the Instituto Nacional de Vivienda y Urbanismo, the Ministerio de Ambiente y Energía, the Ministerio de Cultura y Juventud, the Ministerio de Obras Públicas y Transportes, the Ministerio de Vivienda y Asentamientos Urbanos, the Municipalidad de Cartago, or the Museo Nacional. In any event, analysis of the reports and evidence submitted shows that each institution has taken the relevant actions within the scope of its powers to monitor and ensure continuity of the implementation phase of the Parque Metropolitano Los Diques project, such as issuing environmental feasibility approval (viabilidad ambiental), transferring the agreed budget to finance the project, or granting land on which to carry out the works included in the project.
Finally, the petitioner must be advised that, if he believes the respondent authorities have failed to perform the duties inherent in the offices they hold under the regulations governing such matters, this essentially constitutes a complaint that does not fall within the jurisdiction of this Court. The investigation and subsequent sanction—if appropriate—of a public authority that has failed to perform the duties assigned to it by law falls within the jurisdiction of other judicial authorities (the criminal courts) or administrative authorities. He may therefore raise his objection before the appropriate authorities overseeing the respondents or report the matter as a breach of official duties (incumplimiento de deberes) before the corresponding court so that the appropriate legal determination may be made.
Accordingly, under the terms set forth in the petition initiating the proceeding, no violation of the protected party’s fundamental rights is apparent. Consequently, the appropriate course is to dismiss the petition.
V.Different reasoning of Justice Salazar Alvarado. With due respect, I disagree with the reasoning of the majority opinion denying this amparo proceeding (recurso de amparo) in relation to the violation of Article 50 of the Political Constitution, for the following reasons: Under the Costa Rican Legal System, protection of a healthy and ecologically balanced environment is safeguarded not only by Article 50 of the Political Constitution, but also by a series of laws and executive decrees (regulations) currently in force, such as the Organic Law of the Environment (Ley Orgánica del Ambiente), Law No. 7554 of October 4, 1995; the Biodiversity Law (Ley de Biodiversidad), Law No. 7788 of April 30, 1998; the Wildlife Conservation Law (Ley de Conservación de la Vida Silvestre), Law No. 7317 of October 21, 1992; and Executive Decree No. 31849 of May 24, 2004, General Regulations on Environmental Impact Assessment Procedures (Reglamento General sobre los Procedimientos de Evaluación de Impacto Ambiental, EIA), to name only a few.
This makes it necessary, in environmental matters, to distinguish constitutional review (control de constitucionalidad) from legality review (control de legalidad). In this regard, the undersigned are of the view that this Chamber, through an amparo proceeding, should hear a matter alleging a violation of the right to a healthy and ecologically balanced environment only if the Administration has not yet intervened and the violation of that right is manifest and evident, readily ascertainable, of some importance or seriousness, and directly affects a specific person or community. Otherwise, the matter must be raised and litigated through legality proceedings (vía de legalidad). Accordingly, mere noncompliance with obligations and duties legally imposed on the various public administrations in environmental matters is properly heard through administrative or judicial legality proceedings, where the alleged failures or omissions may be reviewed much more comprehensively.
It must be borne in mind that an amparo proceeding is a summary, informal, simple, and expedited proceeding; therefore, from the very moment the Administration intervenes in an environmental matter in the exercise of its powers and conducts a proceeding involving the issuance of administrative acts (actos administrativos), adjudication of the matter falls outside the scope of this specialized jurisdiction. Consequently, review of administrative actions undertaken in connection with an environmental matter that, for proper assessment, requires plenary proceedings (proceso de conocimiento pleno) is possible only before the ordinary courts, since the design of amparo proceedings is incompatible with comparing or reviewing technical or legal criteria developed under the applicable statutes or regulations, or with taking additional and more extensive evidence necessary to compare or review the criteria already contained in the administrative record (expediente administrativo) for the case.
Holding otherwise would transform amparo into ordinary plenary proceedings, thereby distorting its nature and frustrating the purposes for which it was designed; as a result, it would lose its status as an instrument for the effective protection of fundamental rights. In light of the foregoing, I consider that when a public entity or body has intervened in various ways or has issued administrative acts concerning an environmental matter, adjudication and review thereof fall within the jurisdiction of the administrative courts (jurisdicción de lo contencioso-administrativo). It is precisely the verification that such administrative intervention exists that determines that the matter falls within the jurisdiction of legality proceedings. Accordingly, this proceeding should have been summarily dismissed (rechazado de plano), because its subject matter is an issue properly litigated, analyzed, and resolved through legality proceedings.
However, because that was not done, the proper course is to deny the proceeding without making any ruling whatsoever on the merits of the issue raised, since it is for the ordinary courts—specifically, the administrative courts—to determine whether the challenged administrative actions and conduct substantively comply with the provisions of the statutory legal framework concerning the protection, safeguarding, and preservation of the right to a healthy and ecologically balanced environment.
VI.Documentation submitted for inclusion in the case file. This Chamber must advise the petitioner that if any paper documents, as well as objects or evidence stored on any additional device or on electronic, computerized, magnetic, optical, or telematic media, or produced using new technologies, have been submitted, they must be collected from the Clerk’s Office within 30 business days after receipt of notice of this judgment; otherwise, all such materials will be destroyed in accordance with the “Regulations on Electronic Case Files before the Poder Judicial” (“Reglamento sobre Expediente Electrónico ante el Poder Judicial”), approved by the Corte Plena at session No. 27-11 of August 22, 2011, Article XXVI, and published in Boletín Judicial number 19 of January 26, 2012, as well as the resolution approved by the Consejo Superior del Poder Judicial at session No. 43-12 held on May 3, 2012, Article LXXXI.
Por tanto:
The proceeding is denied. Justice Salazar Alvarado states different reasons.- Fernando Cruz C.
Acting President Paul Rueda L.
Luis Fdo. Salazar A.
Ingrid Hess H.
Ana María Picado B.
Alejandro Delgado F.
Jorge Isaac Solano A.
*G1J0D5TBYHW61* Telephone numbers: Telf03/ ALA-4TA (800-7252-482). Fax: Telf04 / Telf05. Website: www.poder-judicial.go.cr/salaconstitucional. Address: (Dirección04, Dirección05, 100 mts.Sur de la iglesia del Perpetuo Socorro). Intake of matters involving vulnerable groups: Dirección06, San José, Distrito Catedral, Dirección07, calles 19 y 21, Dirección08
Revisión del Documento *230198200007CO* SALA CONSTITUCIONAL DE LA CORTE SUPREMA DE JUSTICIA. San José, a las nueve horas veinte minutos del veintidos de marzo de dos mil veinticuatro .
Recurso de amparo interpuesto por [Nombre01 001], cédula de identidad [Valor CED01], a favor de la COMUNIDAD DE CARTAGO, contra la COMISIÓN NACIONAL DE PREVENCIÓN DE RIESGOS Y ATENCIÓN DE EMERGENCIAS (CNE), EL INSTITUTO NACIONAL DE VIVIENDA Y URBANISMO (INVU), EL MINISTERIO DE AMBIENTE Y ENERGÍA (MINAE), EL MINISTERIO DE CULTURA Y JUVENTUD (MCJ), EL MINISTERIO DE OBRAS PÚBLICAS Y TRANSPORTES (MOPT), EL MINISTERIO DE VIVIENDA Y ASENTAMIENTOS URBANOS (MIVAH), LA MUNICIPALIDAD DE CARTAGO Y EL MUSEO NACIONAL.
Resultando:
Redacta el Magistrado Delgado Faith; y,
Considerando:
I.Cuestión preliminar. En vista que el director general del Museo Nacional omitió rendir el informe dentro del plazo fijado por este Tribunal en la resolución de curso de este asunto, de conformidad con el artículo 45 de la Ley de la Jurisdicción Constitucional se procede a analizar la constitucionalidad del asunto con base en los demás elementos aportados a los autos.
II.Objeto del recurso. El recurrente estima que se están violentando los derechos de los habitantes de Cartago por la modificación presupuestaria destinada a la construcción del Parque Metropolitano de Los Diques, el cual fue transferido a la Municipalidad de Cartago desde el 2020 según la Ley 9926 para que en complemento con los recursos municipales se iniciara la ejecución de dicho parque, bajo el control del Ministerio de Vivienda y Asentamientos Humanos, el Ministerio de Obras Públicas y Transportes, el Ministerio de Ambiente y Energía, la Comisión Nacional de Emergencias, el Instituto Nacional de Vivienda y Urbanismo y el Ministerio de Cultura y Juventud. Expone que el fin del proyecto es evitar que se siga invadiendo la reserva nacional del río Reventado y dar un buen control urbano y gestión del riesgo a la comunidad de Cartago. Acusa que con el presupuesto que quedó por la modificación presupuestaria no puede ser ejecutado. Por lo expuesto solicita la intervención de la Sala.
III.Hechos probados. De importancia para la decisión de este asunto, se estiman como debidamente demostrados los siguientes hechos:
a. La propuesta de desarrollo del Parque Metropolitano Los Diques busca dotar la zona de múltiples funciones culturales, económicas, sociales y ambientales y consolidar la Reserva Nacional del río Reventado como corredor biológico intermedio de la cuenca, para contribuir a los objetivos nacionales de carbono neutralidad, abriéndolo al público en general, para mejorar la calidad de vida de los habitantes por medio de espacios verdes de mayor disponibilidad, calidad, seguridad y accesibilidad en la provincia de Cartago (ver informes rendidos bajo juramento); b. La propuesta de desarrollo del Parque Metropolitano Los Diques no conlleva procesos de desalojo, por lo que se deberá gestionar una etapa posterior para buscar una solución de vivienda para los asentamientos informales existentes en la zona de los Diques (relocalización de los asentamientos) (ver informes rendidos bajo juramento); c. El 1 de diciembre de 2020, el Ministerio de Obras Públicas y Transportes, el Ministerio de Vivienda y Asentamientos Humanos y la Municipalidad de Cartago suscribieron el convenio denominado “CONVENIO ESPECÍFICO DE COOPERACIÓN INTERINSTITUCIONAL ENTRE EL MINISTERIO DE OBRAS PÚBLICAS Y TRANSPORTES, EL MINISTERIO DE VIVIENDA Y ASENTAMIENTOS HUMANOS Y LA MUNICIPALIDAD DE CARTAGO, QUE FORMALIZA EL PRÉSTAMO EN PRECARIO DE TERRENOS Y LA ASESORÍA Y ACOMPAÑAMIENTO PARA LA ATENCIÓN DE LA ZONA DE PROTECCIÓN DEL RÍO REVENTADO EN EL CANTÓN CENTRAL DE CARTAGO, MENDIANTE EL ABORDAJE INTEGRAL DE ASPECTOS AMBIENTALES, SOCIALES Y JURÍDICOS”, en el cual se determinó como objeto el siguiente: “PRIMERA: OBJETO.
El objeto de este convenio es regular las condiciones en que operará un convenio específico de cooperación interinstitucional, en el cual el MOPT, el MIVAH y la Municipalidad sumarán esfuerzos de acuerdo a sus competencias para que se materialicen diferentes proyectos, tanto ambientales, como de mantenimiento, evasión de invasiones y de infraestructura deportiva. Esta participación estará sujeta a las competencias de cada Institución, a la disponibilidad presupuestaria y de recursos que tengan. / Todas las intervenciones que desarrollaran las Partes Suscribientes se ejecutaran con la intención de alcanzar mejores condiciones ambientales, sociales, jurídicas, materiales y cuales quiera otras, para el Cantón de Cartago, concretamente al margen del Río Reventado de Cartago, zona a la cual se le denomina “Los Disques” (ver informes rendidos bajo juramento); d. En fecha indeterminada, el Ministerio de Obras Públicas y Transportes otorgó a la Municipalidad de Cartago, en calidad de préstamo en precario, un total de 28 propiedades inscritas a su Nombre01 y debidamente catastradas, confiriéndole al gobierno local la administración de los terrenos prestados para que pueda construir obras de infraestructura contenidas en el proyecto del Parque Metropolitano Los Diques (ver informes rendidos bajo juramento); e. Mediante transferencia de capital a la cuenta nro. 73911330100069969 desde el Ministerio de Vivienda y Asentamientos Humanos a la Municipalidad de Cartago se destinó el monto de ¢2.000 millones para financiar la primera etapa del proyecto del Parque Metropolitano Los Diques, la cual consiste en senderos, reforestación de las zonas de protección del río, canchas deportivas, campo ferial, anfiteatro, zonas de picnic y para escampar (ver informes rendidos bajo juramento); f. El monto de los ¢2.000 millones fue concebido por la Ley de Presupuesto Ordinario y Extraordinario para el Ejercicio Económico del 2020 (Ley N°9791 de 26 de noviembre del 2019) (ver informes rendidos bajo juramento); g. En fecha indeterminada, la Municipalidad de Cartago efectuó el anteproyecto preliminar, el cual dio paso a la elaboración del cartel de licitado para el diseño de planos constructivos y la construcción del proyecto del Parque Metropolitano Los Diques (ver informes rendidos bajo juramento); h. Mediante informe nro. AM-INF-223-2021 del 29 de julio de 2021, el alcalde de la Municipalidad de Cartago presentó una solicitud ante el Concejo para acordar elevar la respectiva autorización a la Comisión Permanente de Asuntos Hacendarios de la Asamblea Legislativa con la finalidad de modificar (redistribuir) parcialmente el destino de los recursos del proyecto Parque Metropolitano los Diques (ver informes rendidos bajo juramento); i. Por medio del acuerdo contenido en el artículo nro. 5 del acta nro. 96-2021, celebrada el 3 de agosto de 2021, el Concejo de la Municipalidad de Cartago aprobó el informe nro. AM-INF-223-2021 (ver informes rendidos bajo juramento); j. La Asamblea Legislativa aprobó y publicó el quinto presupuesto extraordinario de la República para el ejercicio económico del año 2021 y sexta modificación legislativa de la Ley nro. 9926 “Ley de Presupuesto Ordinario y Extraordinario de la República para el Ejercicio Económico del 2021”, lo cual salió publicado en el Diario La Gaceta nro. 170, alcance nro. 175 el 3 de setiembre de 2021 (ver informes rendidos bajo juramento); k. El cambio solicitado por la Municipalidad de Cartago representó un total de 45% de los fondos del proyecto Parque Metropolitano los Diques, por lo que quedó un monto de ¢1.100 millones (ver informes rendidos bajo juramento); l. Mediante la resolución nro. 1112-2022-SETENA de las 09:19 horas del 30 de junio de 2022, la Secretaría Técnica Nacional Ambiental otorgó la viabilidad ambiental al proyecto del Parque Metropolitano Los Diques, la cual se dio por un plazo de 5 años (ver informes rendidos bajo juramento); m. Las autoridades de la Municipalidad de Cartago informaron que “8.
Actualmente el proceso del parque continua responsablemente su marcha con contrataciones asociadas al componente ambiental y las coordinaciones interinstitucionales para garantizar hasta donde sea posible las inversiones, que en este caso se mantienen en los márgenes de la Reserva del Rio Reventado hasta tanto se conocen los resultados de estas (…) 10. El Parque Metropolitano los Diques como estrategia de gestión de riesgos y regeneración urbana y ecológica no es inviable desde el criterio técnico municipal y más propiamente desde la perspectiva de la Oficina de Planificación Urbana. En este sentido realizar estudios complementarios a los estudios hidráulicos existentes es necesario siempre es bueno dado el origen de la Reserva y a sus ciclos naturales de eventos asociados a inundaciones y deslizamientos, ello permitirá asegurar las inversiones que están programadas o bien desestimarlas si fuera el caso por parte de todos los entes involucrados. 11.
El Parque Metropolitano los Diques como espacio público ya existe, lo que se requiere es ponerlo en valor y que la gente de Cartago se apropie del sitio creando una suficiente oferta de servicios y recreación bajo un entorno seguro y amigable, de lo contrario seguiremos alimentando un comportamiento inadecuado de la reserva en términos ambientales y sociales” (ver informes rendidos bajo juramento).
IV.Sobre el caso concreto. En el sub lite, el recurrente estima que se están violentando los derechos de los habitantes de Cartago por la modificación presupuestaria destinada a la construcción del Parque Metropolitano de Los Diques, el cual fue transferido a la Municipalidad de Cartago desde el 2020 según la Ley 9926 para que en complemento con los recursos municipales se iniciara la ejecución de dicho parque, bajo el control del Ministerio de Vivienda y Asentamientos Humanos, el Ministerio de Obras Públicas y Transportes, el Ministerio de Ambiente y Energía, la Comisión Nacional de Emergencias, el Instituto Nacional de Vivienda y Urbanismo y el Ministerio de Cultura y Juventud. Expone que el fin del proyecto es evitar que se siga invadiendo la reserva nacional del río Reventado y dar un buen control urbano y gestión del riesgo a la comunidad de Cartago. Acusa que con el presupuesto que quedó por la modificación presupuestaria no puede ser ejecutado. Por lo expuesto solicita la intervención de la Sala.
Al respecto, de los informes rendidos bajo juramento y de las pruebas aportadas al expediente no estima este Tribunal que exista lesión alguna a los derechos fundamentales del amparado. En ese sentido, es importante resaltar que el recurrente plantea este proceso de forma genérica sin individualizar alguna situación concreta de lesión o amenaza a sus derechos fundamentales respecto a las autoridades de la Comisión Nacional de Prevención de Riesgos y Atención de Emergencias, del Instituto Nacional de Vivienda y Urbanismo, del Ministerio de Ambiente y Energía, del Ministerio de Cultura y Juventud, del Ministerio de Obras Públicas y Transportes, del Ministerio de Vivienda y Asentamientos Urbanos, de la Municipalidad de Cartago o del Museo Nacional. Nótese que de la lectura del escrito de interposición los alegatos realizados por el recurrente se dirigen a cuestionar la modificación presupuestaria destinada a la construcción del Parque Metropolitano de Los Diques y el actuar de la Municipalidad de Cartago respecto a la ejecución del proyecto del Parque Metropolitano Los Diques.
Sobre el particular, en primer lugar, este Tribunal observa que la modificación presupuestaria que se reclama fue permitida y aprobada por la Asamblea Legislativa -publicación realizada en el Diario La Gaceta nro. 170, alcance nro. 175 el 3 de setiembre de 2021-. En este sentido, algún cuestionamiento respecto de las actuaciones realizadas por la Municipalidad de Cartago o las autoridades relacionadas al amparo de esta ley, o toda inconformidad relacionada con la ejecución o no de las partidas presupuestarias dispuestas por el legislador para el proyecto en cuestión, distan de ser aspectos de constitucionalidad, pues se trata claramente de conflictos de legalidad que deberán plantearse y resolverse ante las instancias ordinarias que corresponda; es evidente que no le corresponde a esta Sala determinar la conveniencia o no de determinadas modificaciones presupuestarias aprobadas por el legislador en el ejercicio de sus propias competencias, y menos aún, verificar si las partidas presupuestarias han sido ejecutadas o no, pues conocer y pronunciarse sobre este tipo de alegaciones es competencia de los órganos administrativos o judiciales del ámbito de la legalidad ordinaria.
Aunado a ello, contrario a lo alegado por el recurrente las autoridades de la Municipalidad de Cartago informaron bajo la solemnidad del juramento que “8. Actualmente el proceso del parque continua responsablemente su marcha con contrataciones asociadas al componente ambiental y las coordinaciones interinstitucionales para garantizar hasta donde sea posible las inversiones, que en este caso se mantienen en los márgenes de la Reserva del Rio Reventado hasta tanto se conocen los resultados de estas (…) 10. El Parque Metropolitano los Diques como estrategia de gestión de riesgos y regeneración urbana y ecológica no es inviable desde el criterio técnico municipal y más propiamente desde la perspectiva de la Oficina de Planificación Urbana. En este sentido realizar estudios complementarios a los estudios hidráulicos existentes es necesario siempre es bueno dado el origen de la Reserva y a sus ciclos naturales de eventos asociados a inundaciones y deslizamientos, ello permitirá asegurar las inversiones que están programadas o bien desestimarlas si fuera el caso por parte de todos los entes involucrados. 11.
El Parque Metropolitano los Diques como espacio público ya existe, lo que se requiere es ponerlo en valor y que la gente de Cartago se apropie del sitio creando una suficiente oferta de servicios y recreación bajo un entorno seguro y amigable, de lo contrario seguiremos alimentando un comportamiento inadecuado de la reserva en términos ambientales y sociales” (el resaltado no pertenece al original).
A partir de lo expuesto, debe indicarse que la finalidad del recurso de amparo es brindar tutela oportuna contra infracciones o amenazas directas a los derechos y libertades fundamentales, no servir como un instrumento genérico para canalizar peticiones o quejas de otros tipos. En ese sentido, se debe aclarar que este Tribunal no es una instancia tramitadora de este tipo de inconformidades o denuncias. Lo anterior, sin lugar a duda, es ajeno tanto a la naturaleza sumaria del proceso de amparo, como la competencia de esta jurisdicción especializada, consagrada por la Ley de la Jurisdicción Constitucional y la propia Constitución Política. En caso de mantener su disconformidad con el actuar de la Municipalidad de Cartago, podrá el petente, si a bien lo tiene, interponer la queja o denuncia de manera formal, para que se resuelva lo correspondiente. Debido a que a diferencia de lo alegado por el recurrente ha quedado debidamente acreditado que las autoridades accionadas que suscribieron el convenio respectivo efectuaron las acciones dentro del ámbito de sus competencias, tales como el Ministerio de Obras Públicas y Transporte y el Ministerio de Vivienda y Asentamientos Urbanos.
Además, según se informó por las autoridades de la Municipalidad de Cartago el proyecto que se reclama continúa su marcha, pues según criterio técnico no es inviable su realización. Debe quedar claro que el Parque Metropolitano los Diques como espacio público ya existe para el disfrute de los ciudadanos de la provincia de Cartago.
Adicionalmente, se reitera que el recurrente no expone alguna situación concreta de lesión o amenaza a sus derechos fundamentales por parte de las autoridades de la Comisión Nacional de Prevención de Riesgos y Atención de Emergencias, del Instituto Nacional de Vivienda y Urbanismo, del Ministerio de Ambiente y Energía, del Ministerio de Cultura y Juventud, del Ministerio de Obras Públicas y Transportes, del Ministerio de Vivienda y Asentamientos Urbanos, de la Municipalidad de Cartago o del Museo Nacional. En todo caso, del análisis de los informes y las pruebas aportadas se evidencian que cada institución ha ejecutado las acciones pertinentes dentro del ámbito de sus competencias para brindar un seguimiento y la continuidad de la fase de ejecución del proyecto del Parque Metropolitano Los Diques, tales como emitir la viabilidad ambiental, transferir el presupuesto acordado para financiar el proyecto o el otorgamiento de terreno para realizar las obras contenidas en el proyecto.
Finalmente, se impone advertir al recurrente que si estima que las autoridades accionadas han inobservado las funciones inherentes al cargo que ocupan, según la normativa que regula tales supuestos, ello en el fondo constituye una queja que no compete ventilarse ante esta Jurisdicción, toda vez que la investigación y posterior amonestación -si fuera el caso- a una autoridad pública que no ha cumplido las funciones que la propia ley le asigna, compete a otras instancias judiciales (la penal) o administrativas, por lo que podrá plantear su inconformidad ante las autoridades correspondientes de los accionados o bien, denunciar el hecho por incumplimiento de deberes, ante la vía jurisdiccional respectiva, a fin de que se resuelva lo que en derecho corresponda.
De ahí que, en los términos planteados en el escrito de interposición, no se aprecia alguna lesión a los derechos fundamentales del amparado. En consecuencia, lo procedente es desestimar el recurso.
V.Razones diferentes del magistrado Salazar Alvarado. Con el debido respeto, disiento de las razones del voto de mayoría que declara sin lugar este recurso en relación con la infracción al ordinal 50, de la Carta Política, con base en las siguientes razones: La protección a un ambiente sano y ecológicamente equilibrado, en el Ordenamiento Jurídico Costarricense, está tutelado no solo en el artículo 50, de la Constitución Política, sino también en una serie de leyes y decretos ejecutivos (reglamentos) vigentes, tales como la Ley Orgánica del Ambiente, Ley N° 7554 de 4 de octubre de 1995; la Ley de Biodiversidad, Ley N° 7788 de 30 de abril de 1998; la Ley de Conservación de la Vida Silvestre, Ley N° 7317 de 21 de octubre de 1992; y el Decreto Ejecutivo N° 31849 de 24 de mayo de 2004, Reglamento General sobre los Procedimientos de Evaluación de Impacto Ambiental (EIA), para citar solo algunos.
Esto hace necesario, en materia ambiental, separar el control de constitucionalidad del control de legalidad. En este sentido, es criterio de los suscritos que esta Sala, por vía de amparo, solo debe conocer un asunto en que se alega violación al derecho a un ambiente sano y ecológicamente equilibrado, si la Administración no ha intervenido aún y cuando la violación a ese derecho sea manifiesta y evidente, de fácil constatación, de cierta importancia o gravedad y que afecte, de forma directa, a alguna persona o comunidad en concreto. De lo contrario, el tema debe plantearse y discutirse en la vía de legalidad. Por ello, el simple incumplimiento de obligaciones y deberes impuestos legalmente a las diversas administraciones públicas en materia ambiental es propio de ser conocido en la vía de legalidad –administrativa o jurisdiccional-, donde, con mucha mayor amplitud, podrán fiscalizarse los incumplimientos u omisiones que se acusen.
Debe tenerse presente que el recurso de amparo es un proceso sumario, informal, sencillo y rápido, de manera tal, que desde el momento mismo en que la Administración interviene en un asunto ambiental, en ejercicio de sus competencias, y sustancia un procedimiento, con el dictado de actos administrativos, su conocimiento resulta ajeno al ámbito de acción de esta jurisdicción especializada. Por ello, la revisión de las actuaciones administrativas llevadas a cabo en torno a un tema ambiental que requiera, para su correcta valoración, de un proceso de conocimiento pleno, solo es posible en la jurisdicción ordinaria, toda vez que el diseño del proceso de amparo es incompatible con la contrastación o revisión de criterios técnicos o jurídicos elaborados al amparo de las normas legales o reglamentarias vigentes o con la evacuación de nuevos y mayores elementos de convicción necesarios para la contrastación o revisión de los criterios que ya consten en el expediente administrativo del caso.
Lo contrario implicaría transformar el amparo en un proceso ordinario de pleno conocimiento, con lo cual se desnaturalizaría y se tornarían nugatorios los fines para los cuales ha sido diseñado, con lo cual, perdería su condición de instrumento para la tutela eficaz de los derechos fundamentales. Como consecuencia de lo anterior, estimo que cuando un ente u órgano público ha intervenido, en diversas formas, o ha dictado actos administrativos en relación con un asunto ambiental, su conocimiento y fiscalización corresponde a la jurisdicción de lo contencioso-administrativo. Es, precisamente, la verificación de la existencia de esa intervención administrativa lo que determina que el asunto sea competencia de la vía legalidad. En consecuencia, este recurso debió haberse rechazado de plano, ya que su objeto es una cuestión propia de ser discutida, analizada y resuelta en la vía de legalidad. Empero, como no se hizo así, lo procedente es declararlo sin lugar, sin hacer pronunciamiento alguno con respecto al fondo de la cuestión planteada por corresponderle a la jurisdicción ordinaria, en específico, a la contencioso-administrativa, determinar si las actuaciones y conductas administrativas acusadas se ajustan o no, en sustancia, a lo preceptuado en el ordenamiento jurídico de rango legal, en cuanto a la protección, tutela y conservación del derecho a un ambiente sano y ecológicamente equilibrado.
VI.Documentación aportada al expediente. Debe prevenir esta Sala a la parte recurrente que de haber aportado algún documentos en papel, así como objetos o pruebas respaldadas por medio de cualquier dispositivo adicional, o por medio de soporte electrónico, informático, magnético, óptico, telemático o producido por nuevas tecnologías, éstos deberán ser retirados del despacho, en un plazo de 30 días hábiles, después de recibida la notificación de esta sentencia, de lo contrario todo ello será destruido de conformidad con lo establecido en el “Reglamento sobre Expediente Electrónico ante el Poder Judicial”, aprobado por la Corte Plena en sesión No. 27-11 del 22 de agosto del 2011, artículo XXVI y publicado en Boletín Judicial número 19 del 26 de enero del 2012, así como en el acuerdo aprobado por el Consejo Superior del Poder Judicial, en la sesión No. 43-12 celebrada el 3 de mayo del 2012, artículo LXXXI.
Por tanto:
Se declara sin lugar el recurso. El magistrado Salazar Alvarado da razones diferentes.- Fernando Cruz C.
Presidente a.i Paul Rueda L.
Luis Fdo. Salazar A.
Ingrid Hess H.
Ana María Picado B.
Alejandro Delgado F.
Jorge Isaac Solano A.
*G1J0D5TBYHW61*
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