Municipal omission in road repair violates right to proper functioning of public servicesOmisión municipal en reparación de calles vulnera derecho al buen funcionamiento de servicios públicos

Res. No. 2010005412 CONSTITUTIONAL CHAMBER OF THE SUPREME COURT OF JUSTICE. San José, at ten hours and twenty-seven minutes of the nineteenth of March, two thousand ten.

Amparo action filed by CESAR ENRIQUE QUIRÓS MORA, identity card 0105750012, against the MUNICIPALITY OF PALMARES.

WHEREAS:

1.- By a writing received in the Secretariat of the Chamber at 14:10 hrs. on February 16, 2010, the petitioner files an amparo action against the Municipality of Palmares and states that since January 2009, he has requested, together with a group of neighbors of the Urbanización Los Palmares, located approximately 400 meters from the center of Palmares, the repair of the streets of said urbanization, which are in terrible condition since no type of maintenance has been provided. He states that said roadways lack the asphalt layer, becoming a gravel (lastre) road, "full of potholes." He indicates that despite multiple efforts made, by means of official communication SCM-608-2009 of November 18, 2009, Mrs. Eithel Hidalgo Méndez, secretary of the Municipal Council, sent to the Municipal Mayor the transcription of Agreement ACM-06-185-09, ordinary session number 185, Chapter IV, article 06 held on November 16, 2009, in which it was indicated: "It is unanimously agreed to forward the note from the neighbors of Urbanización Los Palmares to the Mayor so that he may analyze it and see if it can be included in the list of roads to repair" (sic). He adds that on November 21, 2009, he sent the Mayor a note requesting a short-term solution to the problem. However, to date, he has not yet received a response to his request. The petitioner requests that the action be granted.

2.- By resolution at 7:09 hrs. on February 16, 2010, the proceeding was admitted and reports were requested from the respondent authorities (see folios 10-11).

3.- Luis Carlos Castillo Pacheco, in his capacity as Mayor, and Maynor Solórzano Sancho, in his capacity as President of the Council, both of the Municipality of Palmares, reported under oath (folio 22) that the petitioner has indeed submitted several requests before the Municipality of Palmares, which were received on November 18, 2009. In the planning of projects to be executed in 2010, the repair of the street that the petitioner reported was included. Additionally, they indicated that the street has not been repaired due to a lack of raw material, which they are currently procuring. They request that the action filed be dismissed.

4.- In the processing of the proceeding, the legal requirements have been observed.

Drafted by Magistrate Jinesta Lobo; and,

WHEREAS:

I.- SUBJECT OF THE ACTION. The petitioner comes before this jurisdiction in protection of his fundamental rights, alleging that he has requested the Municipality of Palmares to repair the streets of the Los Palmares residential development (Residencial Los Palmares), located in the El Colegio neighborhood. The petitioner states that as of the date of filing the action, he has not received a response to his requests.

II.- PROVEN FACTS. Of importance for the decision of this matter, the following facts are deemed duly proven: 1) For an indeterminate period, the streets of the Los Palmares residential development (Residencial Los Palmares), located in the El Colegio neighborhood, have been in poor condition (uncontested fact). 2) On November 18, 2009, the petitioner requested the Municipality of Palmares to repair the streets of the Los Palmares residential development (Residencial Los Palmares), located in the El Colegio neighborhood (report at folio 22).

III.- UNPROVEN FACT. Of importance for the decision of this amparo, the following is considered unproven: SOLE FACT.- That to date, the respondent Municipality has resolved the petitioner's complaint.

IV.- ON THE MERITS. It follows from the sub lite that several neighbors of the Los Palmares residential development (Residencial Los Palmares), located in the El Colegio neighborhood, reported to the Municipality of Palmares the poor condition of the roads in that place. The respondent municipal authorities indicated in their report that they would resolve the problem raised and that they have added the indicated street to the municipality's list of repairs. However, as verified, repairs on the indicated streets have not yet begun. This Court considers that the omission in the repair and maintenance of the roads by the respondent authorities constitutes an injury to the fundamental right to the proper functioning of public services and represents a breach of the constitutional obligation entrusted to the Municipalities to oversee the administration of the local interests and services of the canton, in this particular case, regarding the maintenance of the cantonal road network. It should be recalled that, in accordance with the provisions of article 1 of the General Law of Public Roads (Ley General de Caminos Públicos), No. 5060 of August 22, 1972, the administration of the cantonal road network corresponds to the municipalities. However, even though article 2 of the cited law establishes that public roads and highways may only be constructed and improved by the Minister of Public Works and Transport (Ministro de Obras Públicas y Transportes, MOPT), in the second paragraph of that same norm, it is provided that, with prior authorization from that Ministry, the municipalities and decentralized State institutions, whose functions are related to the construction of public roads, may execute them directly or through third parties. This Court, on previous occasions, has recognized that the maintenance and repair of municipal public roads must be a coordinated effort between the Ministry of Public Works and Transport (MOPT) and the municipalities themselves, as derived from the relationship of article 2 of the General Law of Public Roads (Ley General de Caminos Públicos) and subsection a), article 2 of the Law Creating the Ministry of Public Works and Transport (Ley de Creación del Ministerio de Obras Públicas y Transportes) (see in this regard, Voto No. 5445- 99 at 14:30 hours on July 14, 1999). Likewise, subsection b), article 5, of Law No. 8114, Law of Tax Simplification and Efficiency (Ley de Simplificación y Eficiencia Tributarias), allocates 25% of the resources to the municipalities for the conservation, routine and periodic maintenance, improvement, and rehabilitation of the cantonal road network. Hence, by directly allocating these resources to the municipalities, their competence over the maintenance of the cantonal road network is evident. As matters stand, it is appropriate to grant this action.

THEREFORE:

The action is granted. Luis Carlos Castillo Pacheco, in his capacity as Mayor, and Maynor Solórzano Sancho, in his capacity as President of the Council, both of the Municipality of Palmares, or whomever holds their positions, are ordered to carry out all actions within the scope of their powers and coordinate with the competent bodies, so that, within a period of THREE MONTHS, counted from the notification of this judgment, they proceed to repair the roads of the Los Palmares residential development (Residencial Los Palmares), located in the El Colegio neighborhood. The respondents are warned that, in accordance with the provisions of article 71 of the Law of Constitutional Jurisdiction (Ley de la Jurisdicción Constitucional), imprisonment of three months to two years, or a fine of twenty to sixty days, shall be imposed on anyone who receives an order that must be fulfilled or enforced, issued in an amparo action, and fails to comply with it or fails to have it complied with, provided the offense is not more severely punished. The Municipality of Palmares is condemned to pay the costs, damages, and losses caused by the facts that serve as the basis for this declaration, which shall be liquidated in the execution of the judgment in the contentious-administrative jurisdiction. Notify Luis Carlos Castillo Pacheco, in his capacity as Mayor, and Maynor Solórzano Sancho, in his capacity as President of the Council, both of the Municipality of Palmares, or whomever holds their positions, PERSONALLY. COMMUNICATE.- Gilbert Armijo S. Acting President Ernesto Jinesta L. Fernando Cruz C.

Fernando Castillo V. Aracelly Pacheco S.

Roxana Salazar C. Ricardo Guerrero P.

The Municipality of Palmares is ordered to pay the costs, damages, and losses caused by the acts serving as the basis for this declaration, which shall be liquidated in the enforcement of judgment phase of the administrative contentious proceeding. Notify Luis Carlos Castillo Pacheco in his capacity as Mayor and Maynor Solórzano Sancho in his capacity as Council President, both of the Municipality of Palmares, or whoever holds their office, IN PERSON. LET IT BE COMMUNICATED.- Gilbert Armijo S.

President a.i.

Ernesto Jinesta L. Fernando Cruz C.

Fernando Castillo V. Aracelly Pacheco S.

Roxana Salazar C. Ricardo Guerrero P.

They request that the appeal be dismissed.

**4.-** In the processing of the case, the legal requirements have been observed.

Drafted by Magistrate **Jinesta Lobo**; and, **CONSIDERING:** **I.- OBJECT OF THE APPEAL.** The appellant comes before this jurisdiction in protection of his fundamental rights, alleging that he has petitioned the Municipality of Palmares for the repair of the streets in Residencial los Palmares, located in the El Colegio neighborhood. The appellant states that as of the date of filing the appeal, he has not received a response to his requests.

**II.- PROVEN FACTS.** Of importance for the decision in this matter, the following facts are deemed duly proven: **1)** For an undetermined period, the streets of Residencial los Palmares, located in the El Colegio neighborhood, have been in poor condition (uncontested fact). **2)** On **November 18, 2009**, the appellant requested that the Municipality of Palmares repair the streets of Residencial los Palmares, located in the El Colegio neighborhood (report on folio 22).

**III.- UNPROVEN FACT.** Of importance for the decision in this amparo, the following is considered unproven: **ONLY.-** That to date, the respondent Municipality has resolved the appellant's complaint.

**IV.- ON THE MERITS.** From the *sub lite*, it is clear that several residents of Residencial Los Palmares, located in the El Colegio neighborhood, reported the poor condition of the roads in that place to the Municipality of Palmares. The respondent municipal authorities indicated in their report that they would resolve the problem raised and that they have added the indicated street to the municipality's repair list. However, as verified, to date, repairs on the indicated streets have not begun. This Tribunal considers that the omission in the repair and maintenance of the roads by the respondent authorities constitutes a violation of the fundamental right to the proper functioning of public services and represents a breach of the constitutional obligation entrusted to the Municipalities to oversee the administration of the local interests and services of the canton, in this particular case, regarding the maintenance of the cantonal road network. It should be remembered that, in accordance with the provisions of Article 1 of the General Law of Public Roads (Ley General de Caminos Públicos), No. 5060 of August 22, 1972, the administration of the cantonal road network corresponds to the municipalities. However, even though Article 2 of the cited law establishes that public roads and highways may only be built and improved by the Minister of Public Works and Transport (Ministro de Obras Públicas y Transportes), the second paragraph of that same norm provides that, with prior authorization from that Ministry, the municipalities and decentralized State institutions whose functions are related to the construction of public roads may execute them directly or through third parties. This Tribunal, on previous occasions, has recognized that the maintenance and repair of municipal public roads must be a coordinated effort between the Ministry of Public Works and Transport (Ministerio de Obras Públicas y Transportes, MOPT) and the municipalities themselves, as derived from the relationship between Article 2 of the General Law of Public Roads and subsection a) of Article 2 of the Law Creating the Ministry of Public Works and Transport (Ley de Creación del Ministerio de Obras Públicas y Transportes) (see in that regard, Voto No. 5445-99 at 14:30 hours on July 14, 1999). Likewise, subsection b) of Article 5 of Law No. 8114, the Law of Tax Simplification and Efficiency (Ley de Simplificación y Eficiencia Tributarias), allocates 25% of the resources to the municipalities for the conservation, routine and periodic maintenance, improvement, and rehabilitation of the cantonal road network. Hence, by directly assigning these resources to the municipalities, their competence over the maintenance of the cantonal road network is evident. Therefore, the appropriate course of action is to grant this appeal.

**POR TANTO:** The appeal is granted. Luis Carlos Castillo Pacheco, in his capacity as Mayor, and Maynor Solórzano Sancho, in his capacity as President of the Council, both of the Municipality of Palmares, or whoever holds their positions, are ordered to carry out all actions within the scope of their powers and coordinate with the competent offices, so that, within a period of **THREE MONTHS**, counted from the notification of this judgment, they proceed with the repair of the roads in Residencial Los Palmares, located in the El Colegio neighborhood. The respondents are warned that in accordance with the provisions of Article 71 of the Law of Constitutional Jurisdiction (Ley de la Jurisdicción Constitucional), a penalty of imprisonment from three months to two years, or a fine of twenty to sixty days, shall be imposed on anyone who receives an order that must be complied with or enforced, issued in an amparo proceeding, and does not comply with it or does not enforce it, provided that the offense is not more severely penalized. The Municipality of Palmares is ordered to pay the costs, damages, and losses caused by the facts serving as the basis for this declaration, which shall be liquidated in the execution of the judgment in the contentious-administrative proceeding. Notify Luis Carlos Castillo Pacheco, in his capacity as Mayor, and Maynor Solórzano Sancho, in his capacity as President of the Council, both of the Municipality of Palmares, or whoever holds their positions, **PERSONALLY**. **COMUNÍQUESE.-** Gilbert Armijo S.

Presidente a.i.

Ernesto Jinesta L. Fernando Cruz C.

Fernando Castillo V. Aracelly Pacheco S.

Roxana Salazar C. Ricardo Guerrero P.

Res. Nº 2010005412 SALA CONSTITUCIONAL DE LA CORTE SUPREMA DE JUSTICIA. San José, a las diez horas y veintisiete minutos del diecinueve de marzo del dos mil diez.

Recurso de amparo interpuesto por CESAR ENRIQUE QUIRÓS MORA, cédula de identidad 0105750012, contra la MUNICIPALIDAD DE PALMARES.

RESULTANDO:

1.- Por escrito recibido en la Secretaría de la Sala a las 14:10 hrs. de 16 de febrero de 2010, el recurrente interpone recurso de amparo contra la Municipalidad de Palmares y manifiesta que desde el mes de enero de 2009 ha solicitado a la Municipalidad recurrida en conjunto con un grupo de vecinos de la Urbanización Los Palmares, ubicada aproximadamente a 400 metros del centro de Palmares, el arreglo de las calles de dicha urbanización, las cuales se encuentran pésimo estado ya que no se les ha brindado ningún tipo de mantenimiento. Manifiesta que dichas calzadas se encuentran sin la capa asfáltica, convirtiéndose en una calle de lastre, "llena de huecos". Indica que a pesar de las múltiples gestiones realizadas, por medio del oficio SCM-608-2009 de 18 de noviembre de 2009 la señora Eithel Hidalgo Méndez, secretaria del Concejo Municipal, envió al Alcalde Municipal, la transcripción del Acuerdo ACM-06-185-09, sesión ordinaria número 185, Cap. IV, artículo 06 celebrada el 16 de noviembre de 2009, en el cual se indicó "Se acuerda por unanimidad trasladar la nota de los vecinos de la Urbanización Los Palmares al señor Alcalde a fin de que la analice y ver su se puede incluir dentro de la lista de caminos por reparar"(sic). Añade que el 21 de noviembre de 2009, envió al Alcalde una nota en donde le solicitó una solución al problema en un corto plazo. No obstante, hasta el momento aún no ha recibido una respuesta a su gestión. Solicita el recurrente que se declare con lugar el recurso.

2.- Mediante resolución de las 7:09 hrs. del 16 de febrero de 2010 se dio curso al proceso y se solicitó informes a las autoridades recurridas (ver folios 10-11).

3.- Informó bajo juramento Luis Carlos Castillo Pacheco en su condición de Alcalde y Maynor Solórzano Sancho en su condición de Presidente del Concejo, ambos de la Municipalidad de Palmares (folio 22), que efectivamente el recurrente ha presentado varias gestiones ante la Municipalidad de Palmares, las que fueron recibidas el 18 de noviembre de 2009. En la planificación de los proyectos a ejecutar en el año 2010, se incluyó el la reparación de la calle que el recurrente denunció. Adicionalmente indicó que la calle no ha sido reparada por falta de materia prima, la cual están gestionando. Solicitan que se desestime el recurso planteado.

4.- En la substanciación del proceso se ha observado las prescripciones legales.

Redacta el Magistrado Jinesta Lobo; y,

CONSIDERANDO:

I.- OBJETO DEL RECURSO. El recurrente acude ante esta jurisdicción en resguardo de sus derechos fundamentales, por cuanto acusa que ha gestionado ante la Municipalidad de Palmares para la reparación de las calles del Residencia l l os Palmares, ubicado en el barrio El Colegio. El recurrente manifiesta que a la fecha de interposición del recurso no ha recibido respuesta a sus pedimentos.

II.- HECHOS PROBADOS. De importancia para la decisión de este asunto, se estiman como debidamente demostrados los siguientes hechos: 1) Desde fecha indeterminada, las calles del Residencia l l os Palmares, ubicado en el barrio El Colegio , se encuentran en mal estado (hecho no controvertido). 2) El 18 de noviembre de 2009, el recurrente solicitó a la Municipalidad de Palmares la reparación de las calles del Residencia l l os Palmares, ubicado en el barrio El Colegio (informe a folio 22).

III.- HECHO INDEMOSTRADO. De importancia para la decisión de este amparo se tiene por indemostrado el siguiente: ÚNICO.- Que a la fecha, el Municipio accionado haya resuelto la denuncia del recurrente.

IV.- SOBRE EL FONDO. Del sub lite se desprende, que varios vecinos del Residencial Los Palmares, ubicado en el barrio El Colegio, denunciaron ante la Municipalidad de Palmares, el mal estado de las carreteras en ese lugar. Las autoridades municipales accionadas, indicaron en su informe, que resolverían el problema planteado y que han agregado la calle indicada a la lista de reparaciones del municipio. No obstante, según se constata, a la fecha, no se han iniciado las reparaciones en las calles indicadas. Considera este Tribunal que la omisión en la reparación y mantenimiento de las carreteras, por parte de las autoridades recurridas, configura una lesión al derecho fundamental al buen funcionamiento de los servicios públicos y representa un quebranto a la obligación constitucional encomendada a las Municipalidades de velar por la administración de los intereses y servicios locales del cantón, en este caso particular, en cuanto al mantenimiento de la red vial cantonal. Recuérdese que, de acuerdo con lo dispuesto en el artículo 1° de la Ley General de Caminos Públicos, No. 5060 del 22 de agosto de 1972, la administración de la red vial cantonal corresponde a las municipalidades. No obstante, aún cuando el artículo 2 de la ley de cita, establece que las carreteras y caminos públicos, únicamente, podrán ser construidos y mejorados por el Ministro de Obras Públicas y Transportes, en el párrafo segundo de esa misma norma, se dispone que, con previa autorización de ese Ministerio, las municipalidades y las instituciones descentralizadas del Estado, cuyas funciones están relacionadas con la construcción de vías públicas, pueden ejecutarlas directamente o a través de terceros. Este Tribunal, en ocasiones anteriores, ha reconocido que el mantenimiento y reparación de las vías públicas municipales debe ser una labor coordinada entre el Ministerio de Obras Públicas y Transportes y las propias municipalidades, según se desprende de la relación del artículo 2 de la Ley General de Caminos Públicos y el inciso a), artículo 2 de la Ley de Creación del Ministerio de Obras Públicas y Transportes (ver en ese sentido, el Voto No. 5445- 99 de las 14:30 horas del 14 de julio de 1999). Asimismo, el inciso b), artículo 5, de la Ley No. 8114, Ley de Simplificación y Eficiencia Tributarias, destina el 25% de los recursos a las municipalidades para la conservación, el mantenimiento rutinario y periódico, el mejoramiento y la rehabilitación de la red vial cantonal. De ahí que, al asignárseles directamente, esos recursos a las municipalidades, resulta evidente su competencia sobre el mantenimiento de la red vial cantonal. Así las cosas, lo procedente es estimar el presente recurso.

POR TANTO:

Se declara con lugar el recurso. Se le ordena a Luis Carlos Castillo Pacheco en su condición de Alcalde y a Maynor Solórzano Sancho en su condición de Presidente del Concejo, ambos de la Municipalidad de Palmares, o a quienes ejerzan su cargo, que realicen todas las actuaciones que estén dentro del ámbito de sus atribuciones y coordinen con las dependencias competentes, para que, en el plazo de TRES MESES, contado a partir de la notificación de esta sentencia, procedan a la reparación de las carreteras del Residencial Los Palmares, ubicado en barrio El Colegio. Se les advierte a los recurridos que de conformidad con lo establecido en el artículo 71 de la Ley de la Jurisdicción Constitucional, se impondrá prisión de tres meses a dos años, o de veinte a sesenta días multa, a quien recibiere una orden que deba cumplir o hacer cumplir, dictada en un recurso de amparo y no la cumpliere o no la hiciere cumplir, siempre que el delito no esté más gravemente penado. Se condena a la Municipalidad de Palmares al pago de las costas, daños y perjuicios causados con los hechos que sirven de fundamento a esta declaratoria, los que se liquidarán en ejecución de sentencia de lo contencioso administrativo. Notifíquese a Luis Carlos Castillo Pacheco en su condición de Alcalde y Maynor Solórzano Sancho en su condición de Presidente del Concejo, ambos de la Municipalidad de Palmares, o a quienes ejerzan su cargo en FORMA PERSONAL. COMUNÍQUESE.- Gilbert Armijo S.

Presidente a.i.

Ernesto Jinesta L. Fernando Cruz C.

Fernando Castillo V. Aracelly Pacheco S.

Roxana Salazar C. Ricardo Guerrero P.