Exclusion from municipal competition due to change in academic requirementsExclusión de concurso municipal por cambio de requisitos académicos

Appeal in improper municipal hierarchy Nombre104379 v/ Municipality of Belén N° 10-2014 CONTENTIOUS ADMINISTRATIVE AND CIVIL TREASURY COURT. THIRD SECTION. SECOND JUDICIAL CIRCUIT OF SAN JOSÉ. ANNEX A. Goicoechea, at eight hours forty-five minutes on the twenty-second of January, two thousand fourteen.

Municipal Appeal filed by Nombre104379, of legal age, married, holder of a Licentiate degree in Environmental Management (Gestión Ambiental), identification number CED80721, against the resolution of the Mayor of Belén, No. AM-R-045-2011 of 9:00 a.m. on September 6, 2011.

Drafted by Judge Solano Ulloa, and;

CONSIDERING:

I.-BACKGROUND. Of interest to this case, the following facts are deemed relevant: 1) In ordinary session No. 46-2006 held on August 8, 2006, the Municipal Council of Belén approved endorsing the report INF-RH-009-2006 from the Human Resources Process, which contained the "Proposal for the functional and occupational redesign of the Environmental Development process," in which the functional profile for the position of Environmental Coordinator, Dirección12290, was defined, requiring, among other requirements, holding a Licentiate degree in Environmental Management (Gestión Ambiental) or in Environmental Education (Educación Ambiental), with two years of professional experience in activities specific to environmental management (gestión ambiental) and no less than one year of experience in personnel supervision (folios 21 to 34 of the administrative file); 2) In 2006, the Internal Competition for the Environmental Coordinator position was opened, with the requirements established in the previous agreement, for which the Human Resources Process would be receiving the respective applications on September 7 and 8, 2006, which lacked applicants for the position (folio 37 of the administrative file, according to judgment of the Constitutional Chamber No. 2007-1276 of 4:40 p.m. on January 31, 2007); 3) In official communication No. AM-A-149-2008 of April 2, 2008, the Municipal Mayor temporarily assigned (recargó) the functions of Coordinator of the Environmental Unit to Mr. Nombre104379, who was already an employee of that municipality, "until the profile for the position of Coordinator of the Environmental Unit requested from CICAP of the University of Costa Rica is presented, and this is approved by the Municipal Council and said position is filled according to the regulations in force in the Municipal Code..." (folios 84 and 85 of the administrative file); 4) In official communication No. OF-RH-140-2009 of September 16, 2009, the Coordinator of the Human Resources Process informed the Mayor that, due to the impossibility of filling the Environmental Coordinator position through direct promotion, he had proceeded to convene Internal Competition No. 02-09 for the position of Municipal Professional 2-B, with the requirements in force at the time, for which he would receive applications on July 9 and 10, 2009. Said competition was declared void for lack of sufficient applicants (folios 86 to 88, 99 to 102, and 130 of the administrative file); 5) In memorandum No.

AMA-342-2010 of August 24, 2010, the Mayor referred to the Council the document numbered INF-RH-007-2010, prepared by the Human Resources Process, which contained the "Proposal for the adjustment of the academic affinities (atenecias académicas) established for the position of Environmental Coordinator," according to which the expansion of the group of academic affinities was proposed and added to the requirements of the position, *"postgraduate degrees in environmental management with a base education at the Bachelor's or Licentiate level in the field of agronomic sciences"* (folios 132 to 143, 145 to 157 of the administrative file); **6)** The Municipal Council, in Ordinary Session No. 74-2010 of December 7, 2010, disapproved the report presented by the Mayor—indicated in the previous fact—and, in its place, approved a proposal presented by some members of the Municipal Council, which modified the requirements for the position, which from that moment forward would be the Licentiate or Master's degree in Biology with emphasis on Sustainable Development and the Licentiate or Master's degree in Environmental Education for Sustainable Development. This eliminated the Licentiate in Environmental Management as a requirement for the post, which was also left out of the academic affinities (folios 145 to 157); **7)** The differences between the positions of the Human Resources Coordinator and the Mayor, versus the Council, regarding the academic requirements of this post and its academic affinities, were brought before the Municipal Council on repeated occasions. In the agreement reached in session 04-2011, held on January 18, 2011, the decision to depart from the technical opinion presented by the Human Resources Coordinator was ratified. Likewise, in agreement No. 16-2011 of March 8, 2011, the Municipal Council ordered the expansion of the academic affinities and legal requirements of said post to the following: Licentiate in Chemistry, in Geology, Environmental Education, Biology, Postgraduate degrees in Sustainable Development with a base education in the areas of biology, chemistry, or geology (folios 162 to 175); **8)** In April 2011, the Mayor convened Internal Competition No. 02-2011 based on the requirements defined by the Municipal Council in the cited agreements (uncontested fact); **9)** Mr. Nombre104379, who continued with the additional duties exercising the position of Coordinator of the Environment Unit, submitted his offer to compete for said post on July 6, 2011 (folio 208 of the administrative file); **10)** In official letter OF-RH-101-2011 of July 8, 2011, the Human Resources Unit informed Mr. Nombre104379 that, concerning his participation for the position of Environmental Coordinator, internal competition Number 02-2011, the academic background he possesses is not contemplated within the group of professional specialties established for that position (folio 209 of the administrative file); **11)** In an agreement of the Municipal Council taken in ordinary session No. 42-2011, held on July 12, 2011, the council body heard a report from the Legal Advisor, which indicated that there was no problem incorporating the Licentiate in Environmental Management and postgraduate degrees in that subject, however, the council could well depart from that opinion, it being essential that it substantiate its decision (folios 200 to 206); **12)** Having filed two ordinary appeals against official letter OF-RH-101-2011 of July 8, 2011, the Human Resources Unit rejected the revocation in official letter No. OF-RH-103-2011 of July 18, 2011 (appeal at folios 210 to 212, official letter at folio 214, all from the administrative file); **13) The Mayor of Belén, in resolution No. AM-R-045-2011 at 9:00 a.m. on September 6, 2011, rejected the subsidiary appeal filed** (folios 221 to 224); **14)** Mr. Nombre104379 filed an extraordinary review appeal against the Municipal Council agreements from ordinary sessions 74-2010 of December 7, 2010, and 04-2011 of January 18, 2011 [sic], which was declared without merit in an agreement taken in ordinary session No. 46-2012 held on July 24, 2012 (folios 276 to 289 and 297 to 306); **15)** Against the previous agreement, Mr. Nombre104379 did not file the ordinary appeals provided by law (a fact expressly acknowledged as such by the appellant).

**II.- Grounds for Grievance.** Mr. Nombre104379 filed an appeal against the resolution of the Mayor of Escazú [sic] No. AM-R-045-2011, by means of which his exclusion from participation in the competition to permanently fill the post of Municipal Professional II-B, Coordinator of the Environment Unit of the Municipality of Escazú [sic], was confirmed. In summary, the appellant alleges that, given that he holds a Licentiate in Environmental Management, he has occupied the post subject to competition for several years, and has therefore demonstrated his suitability for the position. He accuses the Municipal Council of having assumed a tendency to obstruct and neutralize his aspiration for the post of Coordinator of the Environment Unit, since since 2006 it has sought the ideal profile for the post, and in view of administrative technicalities, it has definitively denied him the right to hold said post. He argues that the Council ignored the technical opinion rendered by the Human Resources Coordinator in official letter No. INF-007-2010, which allowed him to participate as an offeror in the internal or external competition, so changing the academic requirements discriminates against him, despite having been occupying the post to which he aspires for years, as additional duties. He states that with unsustainable justifications, subsections a) and b) of Article 128 of the Código Municipal were not applied to him, putting the aforementioned post out to external competition. He adds that the change in the post's profile was made by the Municipal Council in the agreement approved in ordinary session 74-2010 of December 7, 2010, which causes him irreparable harm. He indicates that this situation was warned by the Human Resources Coordinator in official letter OF-RH-046-2011 of March 22, 2011, making his fundamental right impossible, curtailing his right to participate in an external competition for the post that, by additional duties, he has been occupying. He adds that the contested act lacks substantiation, in contrast to the warning made by the legal advisor in report MB-022-2011. He accuses that, in essence, the Council does not want him to occupy this post, which is evidenced in the statements of proprietary council member Rosemile Ramsbotton in ordinary session No. 23-2011 of April 12, 2011. He considers himself a victim of workplace persecution, to the point that technical reports are delegitimized, thereby violating his rights to the administrative career, suitability, right to the merit and incentive system, right to promotions, violated by the Municipal Council. In his statement of grievances, the appellant requests that the contested resolution be annulled.

**III.- On the Merits.** Several are the grievances put forward by the appellant, which will now be addressed. The selection process for employees within the public service is covered by the constitutional guarantee of proven suitability (Article 192 of the Constitución Política). This is developed in the various recruitment and selection rules for public sector personnel, which, for the purposes of the municipal regime, are found within the Código Municipal, integrated with the Estatuto del Servicio Civil and its regulations, in matters it does not regulate. From this standpoint, it is true that Mr. Nombre104379, in his capacity as a Licentiate in Environmental Management, was appointed on an interim basis to the post of Municipal Professional II-B, as Coordinator of the Environment Unit in the Municipality of Belén, but the mere exercise of that position is not, in itself, a reflection of his suitability for the post. Our case law has recognized that the only way for a public official to occupy a position permanently is by meeting the requirements for the post, according to the rules that regulate it and, if necessary, passing the tests required for such purpose (with the exception of Article 11 of the Regulations to the Estatuto del Servicio Civil). The present case has relevant particularities that merit attention, since the historical development of the facts, by all members of the local government, is what allows one to appreciate where the moments lie in which the sphere of rights and legitimate interests of the appellant is affected. Note that, for example, when Mr. Nombre104379 was appointed on an interim basis to the post, by official letter No. AM-A-149-2008 of April 2, 2008, from the Mayor, the agreement taken by the Municipal Council in ordinary session No. 46-2006, held on August 8, 2006, was in effect, in which the "Proposal for the functional and occupational rethinking of the Environmental Development process" had been approved, according to which the appellant could well occupy the position of Environmental Coordinator, Municipal Professional 2-B post, given that he met the requirement of having a Licentiate in Environmental Management. On the other hand, if Mr. Nombre104379 had been permanently occupying a post of Municipal Professional I-B, it was not possible for him to aspire to a direct promotion in the terms he invokes, applying Article 128 of the Código Municipal, since for this it was essential that the promotion occur in the immediately higher grade post, and the Coordinator post does not have that quality. In application of that same article and correctly so, the next step was the internal competition, for which competition 02-2009 was opened, which was declared void for lack of competitors. Up to this point, in this account of facts, this Tribunal does not find any error whatsoever on the part of the Human Resources Process or the Mayor, their procedure being in accordance with legal requirements. The appellant's accusations that he was a victim of technicalities that at these stages prevented him from occupying the post are not shared by this Tribunal, and the grievances raised in this regard are therefore rejected.

**IV.-** In the subsequent stages, the Manual Descriptivo de plazas was subjected to review and, despite the Human Resources Process recommending that the Municipal Council broaden the careers and affinities of the post in question—always maintaining the Licentiate in Environmental Management—, in Ordinary Session No. 74-2010 of December 7, 2010, it disapproved the report presented by the Mayor and, in its place, approved what it called the "Functional and occupational Rethinking of the COORDINATOR OF THE ENVIRONMENT UNIT," which was a proposal drafted by some council members, in which the requirements for the post and its affinities were modified, eliminating the Licentiate in Environmental Management. This agreement became final and, therefore, its application was mandatory for the Mayor and the Human Resources Process, as provided in Article 121 of the Código Municipal. From that point on, internal competition 02-2011 was published, which unfortunately prevented Mr. Nombre104379 from participating, since indeed, in application of said Council agreement, his Licentiate in Environmental Management was no longer a requirement to aspire to the post. Furthermore, it is notable that both the Mayor and the Human Resources Process were subsequently insistent before the Municipal Council, reiterating efforts to add the Licentiate in Environmental Management to the requirements of the post, which they did not achieve as the council body maintained its decision to exclude it from the manual. On this particular matter, this Office finds that the actions of the Mayor are in accordance with the law, whose conduct tended to defend the thesis that the Licentiate in Environmental Management should remain as a requirement for the position, which would thereby allow Mr. Nombre104379 to compete, efforts that proved fruitless. Thus, it is not possible to interpret that, regarding the Mayor, any intent to prevent the appellant's participation in the competition is apparent; rather, quite the opposite, and there is no illegality whatsoever that would give cause to declare the nullity of what was done by him in this improper hierarchy.

**V.-** Now, it is also true that the reasons that gave rise to the change in the requirements of the post under review were the product of the Municipal Council's actions. The differences in criteria between the council body and the Mayor, together with the Human Resources Process, are a reality evidenced in the list of proven facts of this resolution. Mr. Nombre104379 has been accusing that the reasons that gave rise to the impossibility of participating in internal competition 02-2011 stem from the agreement taken by the Council, in Ordinary Session No. 74-2010 of December 7, 2010. Indeed, the council members opted to eliminate the requirement of the Licentiate in Environmental Management, but this agreement was not timely challenged with the appropriate ordinary appeals by the appellant. In fact, as can be seen from the file, Mr. Nombre104379 did file an extraordinary review appeal against that agreement, which was rejected, but he informs the Tribunal that he did not challenge this rejection. In this way, the possibility for this Office to review the reasons that gave rise to this agreement, as well as the subsequent ones where the powers of the Municipal Council to make the decisions now questioned were again submitted for discussion, is null, since the stage for challenging them is precluded. This Office cannot proceed to review the actions of the council body if they have not been timely challenged, that is, through the filing of the appeals provided for in Articles 156 and 157 of the Código Municipal, by means of which one could have entered into the analysis of the reasons for which such a decision was taken, which are, ultimately, the true grievances set forth in the challenge brief and in the statement of grievances. In the manner in which the appeals chain was structured, the review powers are exhausted and limited to what the Mayor resolved, who, as reiterated, acted in compliance with the rules governing the matter. It is clear and unquestionable that the manner in which the Municipal Council of Belén acted had, as one of its purposes, to eliminate the Licentiate in Environmental Management as a requirement or affinity for the post of Coordinator of the Environment Unit and, with this, the real impossibility for Mr. Nombre104379 to aspire to the post was realized. Despite the discussions generated internally within the local government, the Municipal Council maintained its position, even though the Legal Advisor informed it that it had to duly substantiate its position. The events described here, while they occurred and are an integral part of the chain of relevant facts in this case, were never properly challenged, thereby becoming final. This unfortunately prevents this Tribunal from ruling on the matter, as doing so would transgress the legal powers conferred in Article 162 of the Código Municipal and Articles 180 and 181 of the Ley General de la Administración Pública, which to that effect provide that "*the non-hierarchical comptroller may review only the legality of the act and by virtue of an administrative appeal*...", with the competence being limited to reviewing only the Mayor's resolution.

**VI.- Corollary.** There being no grounds to annul what was resolved by the Mayor of Belén, in resolution No. AM-R-045-2011 at 9:00 a.m. on September 6, 2011, the appropriate course is to confirm it and, as there is no further appeal, the administrative channel shall be deemed exhausted.

</span></p><p style="margin-top:0pt; margin-bottom:0pt; line-height:150%"><span>&#xa0;</span></p><p style="margin-top:0pt; margin-bottom:0pt; text-align:center; line-height:150%"><span style="font-family:'Century Gothic'; font-weight:bold">&#xa0;</span><span style="font-family:'Century Gothic'; font-weight:bold">THEREFORE:</span></p><p style="margin-top:0pt; margin-bottom:0pt; line-height:150%"><span style="font-family:'Century Gothic'">The appealed resolution is confirmed</span><span style="font-family:'Century Gothic'">&#xa0;</span><span style="font-family:'Century Gothic'"> and the administrative route is deemed exhausted.</span><span style="font-family:'Century Gothic'">&#xa0;</span><span style="font-family:'Century Gothic'"> </span></p><p style="margin-top:0pt; margin-bottom:0pt; line-height:150%"><span style="font-family:'Century Gothic'">&#xa0;</span></p><p style="margin-top:0pt; margin-bottom:0pt; line-height:150%"><span>&#xa0;</span></p><p style="margin-top:0pt; margin-bottom:0pt; text-align:center; line-height:150%"><span style="font-family:'Century Gothic'; font-weight:bold">Evelyn Solano Ulloa</span></p><p style="margin-top:0pt; margin-bottom:0pt; text-align:center"><span>&#xa0;</span></p><p style="margin-top:0pt; margin-bottom:0pt; text-align:center"><span>&#xa0;</span></p><p style="margin-top:0pt; margin-bottom:0pt; text-align:center"><span>&#xa0;</span></p><p style="margin-top:0pt; margin-bottom:0pt; text-align:center"><span>&#xa0;</span></p><p style="margin-top:0pt; margin-bottom:0pt; text-align:center"><span style="font-family:'Century Gothic'; font-weight:bold">Jorge Leiva Poveda</span><span style="font-family:'Century Gothic'; font-weight:bold">&#xa0;</span><span style="font-family:'Century Gothic'; font-weight:bold">&#xa0;</span><span style="font-family:'Century Gothic'; font-weight:bold">&#xa0;</span><span style="font-family:'Century Gothic'; font-weight:bold">&#xa0;</span><span style="font-family:'Century Gothic'; font-weight:bold">&#xa0;</span><span style="font-family:'Century Gothic'; font-weight:bold">&#xa0;</span><span style="font-family:'Century Gothic'; font-weight:bold">&#xa0;</span><span style="font-family:'Century Gothic'; font-weight:bold">&#xa0;</span><span style="font-family:'Century Gothic'; font-weight:bold">&#xa0;</span><span style="font-family:'Century Gothic'; font-weight:bold">&#xa0;</span><span style="font-family:'Century Gothic'; font-weight:bold">&#xa0;</span><span style="font-family:'Century Gothic'; font-weight:bold">&#xa0;</span><span style="font-family:'Century Gothic'; font-weight:bold">&#xa0;</span><span style="font-family:'Century Gothic'; font-weight:bold">&#xa0;</span><span style="font-family:'Century Gothic'; font-weight:bold">&#xa0;</span><span style="font-family:'Century Gothic'; font-weight:bold">&#xa0;</span><span style="font-family:'Century Gothic'; font-weight:bold">&#xa0;</span><span style="font-family:'Century Gothic'; font-weight:bold">&#xa0;</span><span style="font-family:'Century Gothic'; font-weight:bold">&#xa0;</span><span style="font-family:'Century Gothic'; font-weight:bold">&#xa0;</span><span style="font-family:'Century Gothic'; font-weight:bold">&#xa0;</span><span style="font-family:'Century Gothic'; font-weight:bold">&#xa0;</span><span style="font-family:'Century Gothic'; font-weight:bold">&#xa0;</span><span style="font-family:'Century Gothic'; font-weight:bold">&#xa0;</span><span style="font-family:'Century Gothic'; font-weight:bold">&#xa0;</span><span style="font-family:'Century Gothic'; font-weight:bold">&#xa0;</span><span style="font-family:'Century Gothic'; font-weight:bold">&#xa0;</span><span style="font-family:'Century Gothic'; font-weight:bold">&#xa0;</span><span style="font-family:'Century Gothic'; font-weight:bold">&#xa0;</span><span style="font-family:'Century Gothic'; font-weight:bold">&#xa0;</span><span style="font-family:'Century Gothic'; font-weight:bold">&#xa0;</span><span style="font-family:'Century Gothic'; font-weight:bold">&#xa0;</span><span style="font-family:'Century Gothic'; font-weight:bold">&#xa0;</span><span style="font-family:'Century Gothic'; font-weight:bold">&#xa0;</span><span style="font-family:'Century Gothic'; font-weight:bold">&#xa0;</span><span style="font-family:'Century Gothic'; font-weight:bold">Siria Carmona Castro</span></p><p style="margin-top:0pt; margin-bottom:0pt"><span>&#xa0;</span><span>&#xa0;</span></p><p style="margin-top:0pt; margin-bottom:0pt"><span style="font-family:Arial; color:#010101">&#xa0;</span></p></div></body></html> This is developed in the various recruitment and selection regulations for public sector personnel which, for the purposes of the municipal regime, are found within the Código Municipal, integrated with the Estatuto del Servicio Civil and its regulations, in matters not regulated by the former. From this perspective, it is true that Mr. Nombre104379, in his capacity as a Licenciado in Environmental Management (Gestión Ambiental), was appointed on an interim basis to the position of Municipal Professional II-B, as Coordinator of the Environment Unit in the Municipality of Belén, but the mere exercise of that position is not, in itself, a reflection of his suitability for the position. Our case law has recognized that the only way a public official can hold a position permanently (en propiedad) is by meeting the requirements for the post, according to the rules that govern it, and, if necessary, by passing the tests required for that purpose (with the exception of Article 11 of the Reglamento al Estatuto del Servicio Civil). The present case has relevant particularities that deserve attention because the historical development of the facts, by all members of the local government, is what allows one to appreciate where the moments are in which the sphere of rights and legitimate interests of the appellant are affected. Note that, for example, when Mr. Nombre104379 was appointed on an interim basis to the position, by official communication No. AM-A-149-2008 of April 2, 2008, from the Mayor, the agreement adopted by the Concejo Municipal in ordinary session No. 46-2006 held on August 8, 2006, was in force, in which the "Propuesta para el replanteamiento funcional y ocupacional del proceso de Desarrollo Ambiental" had been approved, according to which the appellant could well occupy the position of Environmental Coordinator, Municipal Professional 2-B position, given that he met the requirement of having a Licenciatura in Environmental Management (Gestión Ambiental). On the other hand, if Mr. Nombre104379 had been permanently occupying a Municipal Professional I-B position, he could not aspire to a direct promotion under the terms he invokes, applying Article 128 of the Código Municipal, since for that it was essential that the promotion be to the immediately adjacent grade position, and the Coordinator position does not have that quality. In application of that same article and correctly, the next step was the internal competition (concurso interno), for which competition 02-2009 was opened, which was declared void (desierto) for lack of applicants. Up to this point, in this account of facts, this Tribunal finds no error whatsoever on the part of the Human Resources Process (Proceso de Recursos Humanos) or the Mayor, as their conduct conforms to legal requirements. The appellant's accusations that he was a victim of technicalities that at these stages prevented him from occupying the position are not shared by this Tribunal, and the grievances stated in that regard are therefore rejected.

**IV.-** In the subsequent stages, the Manual Descriptivo of positions was submitted for review and, despite the fact that the Human Resources Process (Proceso de Recursos Humanos) recommended that the Concejo Municipal expand the academic backgrounds and related qualifications (atinencias) of the position in question —always maintaining the Licenciatura in Environmental Management (Gestión Ambiental)—, in Ordinary Session No. 74-2010 of December 7, 2010, it rejected the report presented by the Mayor and, instead, approved what it called the "Replanteamiento funcional y ocupacional del COORDINADOR (a) DE LA UNIDAD DE AMBIENTE", which was a proposal prepared by some council members (regidores), in which it modified the requirements for the position and its related qualifications (atinencias), eliminating the Licenciatura in Environmental Management (Gestión Ambiental). This agreement became final and, therefore, its application was mandatory for the Mayor and the Human Resources Process (Proceso de Recursos Humanos), as stipulated in Article 121 of the Código Municipal. From there, internal competition (concurso interno) 02-2011 was published, which unfortunately prevented Mr. Nombre104379 from participating, because indeed, in application of said Council agreement, his Licenciatura in Environmental Management (Gestión Ambiental) was no longer a requirement to apply for the position. Moreover, it is notorious that both the Mayor and the Human Resources Process (Proceso de Recursos Humanos) subsequently insisted before the Concejo Municipal, reiterating efforts to have the Licenciatura in Environmental Management (Gestión Ambiental) added back into the position's requirements, something they did not achieve because the council body maintained its decision to exclude it from the manual. On this particular matter, this Office finds that the actions of the Mayor were in accordance with law, whose conduct tended to defend the thesis that the Licenciatura in Environmental Management (Gestión Ambiental) should remain as a requirement of the post, which would thereby allow Mr. Nombre104379 to compete, efforts that proved unsuccessful. Thus, it is not possible to interpret that, with regard to the Mayor, there was any intent to prevent the appellant from participating in the competition; quite the contrary, and no illegality is found that would give reason to declare the nullity of his actions in this improper hierarchy.

**V.-** Now then, it is also true that the reasons that gave rise to the change in the requirements of the position under examination were a product of the actions of the Concejo Municipal. The differences of opinion between the council body and the Mayor, together with the Human Resources Process (Proceso de Recursos Humanos), are a reality reflected in the list of proven facts of this resolution. Mr. Nombre104379 has been accusing that the reasons that gave rise to the impossibility of participating in internal competition (concurso interno) 02-2011 stem from the agreement adopted by the Council in Ordinary Session No. 74-2010 of December 7, 2010. Indeed, the council members (regidores) chose to eliminate the requirement of the Licenciatura in Environmental Management (Gestión Ambiental), but this agreement was not challenged in a timely manner with the appropriate ordinary remedies by the appellant. Even more, according to what emerges from the case file, Mr. Nombre104379 did file an extraordinary review appeal (recurso extraordinario de revisión) against that agreement, which was rejected, but he informed the Tribunal that he did not challenge this rejection. In this way, the possibility that this Office may review the reasons that gave rise to this agreement, as well as the subsequent ones where the powers of the Concejo Municipal to make the decisions now questioned were again submitted for discussion, is null, because the stage to challenge them is precluded (precluida). This Office cannot proceed to review the actions of the council body if they were not appealed in a timely manner, that is, through the filing of the remedies provided for in Articles 156 and 157 of the Código Municipal, through which the analysis of the reasons why such decision was taken could have been undertaken, which are, ultimately, the true grievances set forth in the appeal brief and in the statement of grievances. In the manner in which the appeal chain was presented, the review powers are exhausted and limited to what the Mayor resolved, who, it is reiterated, acted in subjection to the rules governing the matter. It is clear and unquestionable that the manner in which the Concejo Municipal of Belén acted had as one of its purposes to eliminate the Licenciatura in Environmental Management (Gestión Ambiental) as a requirement or related qualification (atinencia) of the position of Coordinator of the Environment Unit, and, with this, the real impossibility of Mr. Nombre104379 to apply for the position was realized. Despite the discussions generated internally within the local government, the Concejo Municipal maintained its position, even when the Legal Advisor informed it that it had to duly substantiate its position. The events described here, although they occurred and are an integral part of the chain of relevant facts of this case, were never duly challenged, therefore becoming final. This unfortunately prevents this Tribunal from ruling on the matter, as that would mean transgressing the legal powers conferred in Article 162 of the Código Municipal and Articles 180 and 181 of the Ley General de la Administración Pública, which stipulate that "the non-hierarchical comptroller may review only the legality of the act and by virtue of an administrative appeal...", the jurisdiction being limited to reviewing only the Mayor's resolution.

**VI.- Corollary.** There being no reasons to annul what was resolved by the Mayor of Belén, in resolution No. AM-R-045-2011 at 9:00 a.m. on September 6, 2011, the appropriate course is to confirm it and, as there is no further remedy, the administrative procedure (vía administrativa) shall be deemed exhausted.

**POR TANTO:** The challenged resolution is confirmed and the administrative procedure (vía administrativa) is deemed exhausted.

**Evelyn Solano Ulloa** **Jorge Leiva Poveda** **Siria Carmona Castro**

Apelación en jerarquía impropia municipal Nombre104379 c/ Municipalidad de Belén N° 10-2014 TRIBUNAL DE LO CONTENCIOSO ADMINISTRATIVO Y CIVIL DE HACIENDA. SECCIÓN TERCERA. II CIRCUITO JUDICIAL DE SAN JOSÉ. ANEXO A. Goicoechea, a las ocho horas cuarenta y cinco minutos del veintidós de enero del dos mil catorce.

Apelación Municipal interpuesta por Nombre104379 , mayor, casado, licenciado en Gestión Ambiental, cédula CED80721, en contra de la resolución del Alcalde de Belén, No. AM-R-045-2011 de las 9:00 horas del 6 de setiembre del 2011.

Redacta la jueza Solano Ulloa, y;

CONSIDERANDO:

I.-ANTECEDENTES. De interés para esta causa, se tienen como de relevancia los siguientes hechos: 1) En la sesión ordinaria No. 46-2006 celebrada el 8 de agosto del 2006, el Concejo Municipal de Belén aprobó avalar el dictamen INF-RH-009-2006 del Proceso de Recursos Humanos, que contenía la "Propuesta para el replanteamiento funcional y ocupacional del proceso de Desarrollo Ambiental", en la que se definió el perfil funcional del cargo del Coordinador Ambiental, Dirección12290 , para el cual se exigía, entre otros requisitos, ostentar Licenciatura en Gestión Ambiental o en Educación Ambiental, con dos años de experiencia profesional en actividades propias de la gestión ambiental y no menos de un año de expediente en supervisión de personal (folios 21 a 34 del expediente administrativo); 2) En el año 2006, se abrió el Concurso Interno para la plaza de Coordinador Ambiental, con las exigencias establecidas en el acuerdo anterior, para lo cual el Proceso de Recursos Humanos estaría recibiendo las respectivas ofertas los días 7 y 8 de setiembre del 2006, el cual careció de oferentes para el cargo (folio 37 de expediente administrativo, según la sentencia de la Sala Constitucional No. 2007-1276 de las 16:40 horas del 31 de enero del 2007); 3) En oficio No. AM-A-149-2008 del 02 de abril de 2008, el Alcalde Municipal recargó las funciones de Coordinador de la Unidad Ambiental en el señor Nombre104379 , quien ya era funcionario de ese ayuntamiento, "hasta tanto sea presentado el perfil para el puesto de Coordinador de la Unidad Ambiental solicitada al CICAP de la Universidad de Costa Rica, y este sea aprobado por el Concejo Municipal y dicha plaza sea llenada según la normativa vigente en el Código Municipal..." (folios 84 y 85 del expediente administrativo); 4) En oficio No. OF-RH-140-2009 del 16 de setiembre del 2009, el Coordinador del Proceso de Recursos Humanos comunicó al Alcalde, que debido a la imposibilidad de llenar el cargo de Coordinador Ambiental mediante ascenso directo, había procedido a convocar el Concurso Interno No. 02-09 para el puesto de Profesional Municipal 2-B, con los requisitos vigentes al momento, para lo cual recibiría ofertas los días 9 y 10 de julio del 2009. Dicho concurso fue declarado desierto por falta de oferentes suficientes (folio 86 a 88, 99 a 102 y 130 del expediente administrativo); 5) En memorial No. AMA-342-2010 del 24 de agosto del 2010, el Alcalde remitió al Concejo, el documento con número INF-RH-007-2010 elaborado por el Proceso de Recursos Humanos, que contenía la "Propuesta para el ajuste de las atenecias (sic) académicas establecidas para el cargo del Coordinador Ambiental" según la cual se proponía la ampliación del grupo de atinencias académicas y se adicionaban a los requisitos del cargo, "postgrados en gestión ambiental con formación de base a nivel de Bachillerato o licenciatura en el campo de las ciencias agronómicas" (folios 132 a 143, 145 a 157 del expediente administrativo); 6) El Concejo Municipal, en la Sesión Ordinaria No. 74-2010 del 7 de diciembre del 2010, desaprobó el informe presentado por el Alcalde -indicado en el hecho anterior- y, en su lugar, se aprobó una propuesta presentada por algunos miembros del Concejo Municipal, que modificaba los requisitos para el cargo, lo cuales a partir de ese momento serían la Licenciatura o Maestría en Biología con énfasis en Desarrollo Sostenible y la Licenciatura o Maestría en Educación Ambiental para el Desarrollo Sostenible. Con ello se eliminaba la Licenciatura en Gestión Ambiental como requisito para el puesto, la cual también quedaba fuera de las atinencias académicas (folios 145 a 157); 7) Las diferencias entre las posiciones del Coordinador de Recursos Humanos y Alcalde, para con el Concejo, respecto de los requisitos académicos de esta plaza y sus atinencias académicas, fueron llevadas al seno del Concejo Municipal en reiteradas ocasiones. En el acuerdo tomado en la sesión 04-2011, celebrada el 18 de enero del 2011, se ratificó la decisión de apartarse del criterio técnico presentado por el Coordinador de Recursos Humanos. Asimismo, en el acuerdo No. 16-2011 del 8 de marzo del 2011, el Concejo Municipal dispuso ampliar las atinencias académicas y requerimientos legales de dicha plaza, a las siguientes: Licenciatura en Química, en Geología, Educación Ambiental, Biología, Postgrados en Desarrollo Sostenible con formación de base en las áreas de biología, química o geología (folios 162 a 175); 8) En abril del 2011, el Alcalde convocó el Concurso interno No. 02-2011 con base en los requisitos definidos por el Concejo Municipal en los citados acuerdos (hecho no controvertido); 9) El señor Nombre104379 , que seguía con el recargo de funciones ejerciendo el puesto de Coordinador de la Unidad de Ambiente, presentó su oferta para concursar para dicha plaza, el 6 de julio del 2011 (folio 208 del expediente administrativo); 10) En oficio OF-RH-101-2011 del 08 de julio del 2011, la Unidad de Recursos Humanos informó al señor Nombre104379 , que concerniente a su participación para el cargo del Coordinador Ambiental, concurso interno Número 02-2011, la formación académica que posee no se encuentra contemplada dentro del grupo de especialidades profesionales establecidas para ese cargo (folio 209 del expediente administrativo); 11) En acuerdo del Concejo Municipal tomado en la sesión ordinaria No. 42-2011, celebrada el 12 de julio del 2011, el cuerpo edil conoció un informe del Asesor Legal, en el que se indicaba que no había problema en incorporar la Licenciatura en Gestión Ambiental y los postgrados en esa materia, empero, bien podía el concejo apartarse de dicho criterio, siendo indispensable que fundamentara su decisión (folios 200 a 206); 12) Habiendo interpuesto sendos recursos ordinarios en contra del oficio OF-RH-101-2011 del 08 de julio del 2011, la Unidad de Recursos Humanos rechazó la revocatoria en oficio No. OF-RH-103-2011 del 18 de julio del 2011 (recurso a folios 210 a 212, oficio a folio 214, todo del expediente administrativo); 13) El Alcalde de Belén, en resolución No. AM-R-045-2011 de las 9:00 horas del 6 de setiembre del 2011, rechazó la apelación subsidiaria interpuesta (folios 221 a a 224); 14) El señor Nombre104379 interpuso recurso extraordinario de revisión en contra de los acuerdos del Concejo Municipal, de las sesiones ordinarias 74-2010 del 7 de diciembre del 2010 y 04-2011 del 18 de enero del 200, el cual fue declarado sin lugar en acuerdo tomado en la sesión ordinaria No. 46-2012 celebrada el 24 de julio del 2012 (folios 276 a 289 y 297 a 306); 15) Contra el anterior acuerdo, el señor Nombre104379 no interpuso los recursos ordinarios de ley (hecho así reconocido expresamente por el apelante).

II.- Motivos de agravio. El señor Nombre104379 interpuso recurso de apelación en contra de la resolución del Alcalde de Escazú No. AM-R-045- 2011, por medio de la cual se confirmó su exclusión de participación en el concurso para llenar en propiedad la plaza de Profesional Municipal II-B, Coordinador de la Unidad de Ambiente de la Municipalidad de Escazú. En resumen, alega el recurrente que siendo que él ostenta una Licenciatura en Gestión Ambiental, ha ocupado la plaza sometida a concurso por varios años, por lo que ha demostrado su idoneidad para el cargo. Acusa que el Concejo Municipal ha asumido una tendencia a obstaculizar y neutralizar la aspiración al puesto de Coordinador de la Unidad de Ambiente, pues desde el año 2006 ha buscado el perfil ideal para el puesto, en vista de tecnicismos administrativos, le ha negado el derecho en definitiva a ostentar dicha plaza. Argumenta que el Concejo soslayó el criterio técnico vertido por el Coordinador de Recursos Humanos en el oficio No. INF-007-2010, en el que le permitía participar como oferente en el concurso interno o externo, por lo que el cambiar los requisitos académicos lo discrimina, a pesar de que desde hace años ha venido ocupando la plaza a la que aspira, como recargo de funciones. Manifiesta que con justificaciones insostenibles, no se le aplicaron los incisos a) y b) del artículo 128 del Código Municipal, sacando a concurso externo la mencionada plaza. Agrega que el cambio de perfil de la plaza, lo hizo el Concejo Municipal en el acuerdo aprobado en la sesión ordinaria 74-2010 del 7 de diciembre del 2010, con lo que le genera un daño irreparable. Indica que dicha situación fue advertida por el Coordinador de Recursos HUmanos en el oficio OF-RH-046-2011 del 22 de marzo del 2011 al imposibilitársele su derecho fundamental, coartándosele el derecho de participar en un concurso externo del puesto que, por recargo de funciones, viene ocupando. Agrega que el acto impugnado se encuentra carente de fundamentación, en contraposición de la advertencia que se hiciera por el asesor legal en el informe MB-022-2011. Acusa que en el fondo, el Concejo no quiere que él ocupe esta plaza, lo cual se evidencia en las manifestaciones de la regidora propietaria Rosemile Ramsbotton en la sesión ordinaria No. 23-2011 del 12 de abril del 2011. Considera que es víctima de una persecución laboral, al punto que se deslegitiman los informes técnicos, con lo cual se transgreden sus derechos a la carrera administrativa, idoneidad, derecho al régimen de méritos e incentivos, derecho a ascensos, violentados por el Concejo Municipal. En su escrito de expresión de agravios, el recurrente solicita se anule la resolución impugnada.

III.- Sobre el fondo. Varios son los agravios esgrimidos por el apelante que de seguido se procede a desarrollar. El proceso de selección de empleados dentro del servicio público, está revestido por la garantía constitucional de idoneidad comprobada (artículo 192 de la Constitución Política). Ello se desarrolla en las distintas normas de reclutamiento y selección del personal del sector público que, para los efectos del régimen municipal, se encuentran dentro del Código Municipal integrado con el Estatuto del Servicio Civil y su reglamento, en aquello que no regule. Desde este punto de vista, cierto resulta que el señor Nombre104379 , en su condición de Licenciado en Gestión Ambiental, fue nombrado interinamente en el cargo de Profesional Municipal II-B, como Coordinador de la Unidad de Ambiente en la Municipalidad de Belén, mas el sólo ejercicio de ese cargo no es por sí, reflejo de su idoneidad para el cargo. Nuestra jurisprudencia ha reconocido que la única manera de que un funcionario público pueda ocupar en propiedad un cargo, es cumpliendo los requisitos para el puesto, según las normas que lo regulen y, si fuera necesario, superando las pruebas que al efecto se exijan (con la excepción del artículo 11 del Reglamento al Estatuto del Servicio CIvil). El caso presente tiene particularidades relevantes que merecen su atención pues el desarrollo histórico de los hechos, por parte de todos los miembros del gobierno local, es el que permite apreciar dónde se encuentran los momentos en los que se afecta la esfera de derechos e intereses legítimos del apelante. Nótese que, por ejemplo, cuando el señor Nombre104379 es nombrado interinamente en el cargo, mediante oficio No. AM-A-149-2008 del 02 de abril de 2008 del Alcalde, se encontraba vigente el acuerdo tomado por el Concejo Municipal en la sesión ordinaria No. 46-2006 celebrada el 8 de agosto del 2006, en que se había aprobado la "Propuesta para el replanteamiento funcional y ocupacional del proceso de Desarrollo Ambiental", según el cual el recurrente bien podía ocupar el cargo del Coordinador Ambiental, plaza Profesional Municipal 2-B, dado que cumplía con el requisito de tener Licenciatura en Gestión Ambiental. Por otra parte, si el señor Nombre104379 venía ocupando en propiedad una plaza de Profesional Municipal I-B, no le era posible aspirar a un ascenso directo en los términos que él invoca, aplicando el numeral 128 del Código Municipal, ya que para ello era indispensable que el ascenso se diera en la plaza de grado inmediato, resultando que la de Coordinador no tiene esa cualidad. En aplicación de ese mismo artículo y de manera correcta, el paso siguiente era el concurso interno, para lo cual se abrió el concurso 02-2009, el cual fue declarado desierto por falta de concursantes. Hasta este momento, en este relato de hechos, no encuentra este Tribunal yerro alguno por parte del Proceso de Recursos Humanos ni del Alcalde, siendo que su proceder se ajusta a las exigencias de ley. Las acusaciones del apelante, respecto de que fue víctima de tecnicismos que en estas etapas le impidieron ocupar el puesto no son compartidas por este Tribunal, rechazándose por ende los agravios expuestos al respecto.

IV.- En las etapas posteriores, se sometió a revisión el Manual Descriptivo de plazas y, a pesar de que el Proceso de Recursos Humanos recomendó al Concejo Municipal ampliar las carreras y atinencias de la plaza en mención -manteniendo siempre la Licenciatura en Gestión Ambiental-, en la Sesión Ordinaria No. 74-2010 del 7 de diciembre del 2010, desaprobó el informe presentado por el Alcalde y, en su lugar, aprobó lo que denominó el "Replanteamiento funcional y ocupacional del COORDINADOR (a) DE LA UNIDAD DE AMBIENTE", que era una propuesta elaborada por algunos regidores, en la que modificaba los requisitos para el cargo y su atinencias, eliminando la Licenciatura en Gestión Ambiental. Este acuerdo quedó firme y, por ende, su aplicación era obligatoria para el Alcalde y el Proceso de Recursos Humanos, pues así lo dispone el artículo 121 del Código Municipal. A partir de allí, se publica el concurso interno 02-2011 del que lamentablemente, impedía al señor Nombre104379 su participación, pues efectivamente, en aplicación de dicho acuerdo del Concejo, su Licenciatura en Gestión Ambiental ya no era requisito para aspirar a la plaza. Inclusive, es notorio que tanto el Alcalde como el Proceso de Recursos Humanos, posteriormente fueron insistentes ante el Concejo Municipal al reiterar esfuerzos a efecto de que se agregara la Licenciatura en Gestión Ambiental dentro de los requisitos de la plaza, cosa que no lograron pues el cuerpo edil se mantuvo en su decisión de excluirla del manual. Sobre este particular, aprecia este Despacho que lo actuado por el Alcalde se encuentra ajustado a derecho, cuyas conductas tendieron a defender la tesis de que la Licenciatura en Gestión Ambiental permaneciera como requisito del puesto, con lo cual permitiría al señor Nombre104379 concursar, esfuerzos que resultaron infructuosos. Así las cosas, no es posible interpretar que respecto del Alcalde, se desprenda algún ánimo de impedirle al recurrente su participación en el concurso, más bien todo lo contrario, no encontrándose vicio alguno de ilegalidad que de motivo para declarar la nulidad de lo actuado por él en esta jerarquía impropia.

V.- Ahora bien, cierto resulta también que los motivos que dieron pie para el cambio de los requisitos de la plaza sometida a examen, fueron producto de la actuación del Concejo Municipal. Las diferencias de criterios entre el cuerpo edil y el Alcalde, junto con el Proceso de Recursos Humanos, son una realidad plasmada en el elenco de hechos probados de esta resolución. El señor Nombre104379 viene acusando que los motivos que dieron origen a la imposibilidad de participar en el concurso interno 02-2011, provienen del acuerdo tomado por el Concejo, en la Sesión Ordinaria No. 74-2010 del 7 de diciembre del 2010. En efecto, los señores regidores optaron por eliminar el requisito de la Licenciatura en Gestión Ambiental, mas este acuerdo no fue impugnado oportunamente con los recursos ordinarios de rigor, por parte del recurrente. Inclusive, según se desprende del expediente, el señor Nombre104379 sí interpuso recurso extraordinario de revisión en contra de ese acuerdo, el cual le fue rechazado, mas de este rechazo informa al Tribunal que no lo impugnó. De esta forma, la posibilidad de que este Despacho pueda revisar los motivos que dieron origen a este acuerdo, así como a los posteriores en donde se sometió nuevamente a discusión los poderes del Concejo Municipal para tomar las decisiones ahora cuestionadas, es nula, pues la etapa para impugnarlos se encuentra precluida. No puede este Despacho proceder a revisar lo actuado por el cuerpo edil, si ello no ha sido recurrido oportunamente, o sea, mediante la interposición de los recursos previstos en los artículos 156 y 157 del Código Municipal, mediante los cuales se podía entrar al análisis de los motivos por los que se tomó tal decisión, que son, a fin de cuentas, los verdaderos agravios expuestos en el libelo de impugnación y en el de expresión de agravios. En la forma en que se planteó la cadena recursiva, las competencias de revisión quedan agotadas y limitadas a lo que resolvió el Alcalde que, como se reitera, lo hizo en sometimiento a las normas que imperan la materia. Es claro e incuestionable que la manera en que actuó el Concejo Municipal de Belén, tuvo como uno de sus fines, eliminar la Licenciatura en Gestión Ambiental como requisito o atinencia de la plaza de Coordinador de la Unidad de Ambiente y, con ello, se concretó la imposibilidad real del señor Nombre104379 de aspirar para la plaza. A pesar de las discusiones generadas a lo interno del gobierno local, el Concejo Municipal se mantuvo en su posición, aún y cuando el Asesor Legal le informó que debía fundamentar debidamente su posición. Los acontecimientos aquí descritos, si bien ocurrieron y son parte integral de la cadena de hechos relevantes de esta causa, no fueron nunca impugnados debidamente, quedando por ende, firmes. Ello impide lamentablemente a este Tribunal pronunciarse al respecto, pues ello sería transgredir las competencias legales conferidas en el numeral 162 del Código Municipal y 180 y 181 de la Ley General de la Administración Pública, que al efecto disponen que "el contralor no jerárquico podrá revisar sólo la legalidad del acto y en virtud de recurso administrativo...", quedando limitada la competencia, a revisar únicamente la resolución del Alcalde.

VI.- Corolario. No habiendo motivos para anular lo resuelto por el Alcalde de Belén, en la resolución No. AM-R-045-2011 de las 9:00 horas del 6 de setiembre del 2011, lo procedente es confirmarla y, al no existir ulterior recurso, se deberá dar por agotada la vía administrativa.

POR TANTO:

Se confirma la resolución impugnada y se da por agotada la vía administrativa.

Evelyn Solano Ulloa Jorge Leiva Poveda Siria Carmona Castro