8 JANVIER 2020
Cette loi est un précédent dangereux pour notre démocratie. Elle renforce les pouvoirs exorbitants du président de la République et écarte l’assemblée nationale du processus décisionnel en ce qui concerne l’appréciation du prolongement d’un régime d’exception et l’encadrement des mesures exceptionnelles y afférentes. Nous reproduisons ci-dessous la contribution que nous avions faite sur cette loi pour relever les erreurs et maladresses de formes ainsi que les violations et imprécisions de fond.
Projet de modification de la loi relative à l’état d’urgence et à l’état de siège : Erreurs et maladresses de forme, violations et imprécisions de fond
L’initiative d’adapter la loi sénégalaise pour une prise en charge efficace de certaines catastrophes naturelles ou sanitaires, qui, « par leur nature, ne constituent pas à proprement parler des atteintes à la sécurité intérieure ou à l’ordre public », est une bonne chose.
En effet, décréter l’état d’urgence sur une question liée à une catastrophe naturelle ou sanitaire est quand même excessif, compte tenu de l’orientation donnée à ce régime d’exception. L’idée de prévoir un régime différent, à cet effet, est donc opportun.
Toutefois, le projet de loi n°046/2020 modifiant la loi n°69-29 du 29 avril 1969 relative à l’état d’urgence et à l’état de siège
soumis à notre attention, par la presse, comporte des failles aussi bien sur la forme que sur le fond.
Sur la forme
Nous avons noté, un manquement dans la modification de la loi et une violation d’un principe lié au parallélisme des formes.
Manquement dans la modification
Dans l’exposé des motifs du projet de loi, il est établi que trois modifications ont été opérées : le changement de l’intitulé de la loi avec la mention « et à la gestion des catastrophes naturelles et sanitaires », l’insertion d’un nouveau titre intitulé (« Gestion des catastrophes naturelles ou sanitaires ») comportant deux articles et enfin la suppression de l’article 24 de la loi modifiée.
Cependant, l’article 1er de la loi n°69-29 du 29 avril 1969 relative à l’état d’urgence et à l’état de siège n’a pas été modifié par le présent projet de loi.
L’article 1er susvisé dispose : « L’état d’urgence et l’état de siège sont institués dans les conditions prévues à l’article 58 de la Constitution. Les dispositions qui les régissent font l’objet de la présente loi. »
Cet article risque de demeurer dans la loi faute de n’avoir pas été modifié sans qu’il ne prenne en compte les nouvelles dispositions introduites. Il limite l’objet de la loi à l’état d’urgence et à l’état de siège.
L’article premier devait, en outre, être modifié ne serait-ce que pour être adapté à l’article actuel (art 69) de la Constitution qui parle d’état d’urgence et d’état de siège à la place d’un article (art 58) de la constitution de 1963 qui n’est plus d’actualité.
Violation du principe du parallélisme des formes
Ce principe juridique commande qu’un acte pris selon une certaine procédure ne peut être modifié ou abrogé qu’en suivant la même procédure.
L’article 1er de la loi n°69-29 du 29 avril 1969 relative à l’état d’urgence et à l’état de siège est clair : ce sont « les dispositions qui régissent (l’art 58 de la constitution) qui font l’objet de la présente loi. »
Ce qui signifie que la loi trouve sa base légale sur les dispositions qui régissent l’article 58, sans cet article de la constitution cette loi n’aurait jamais existé.
Il se trouve que cet article (actuel art 69) qui est à la base de la loi 69-29 ne fait nullement allusion aux catastrophes naturelles et sanitaires.
Par conséquent, la modification de la loi objet de l’article de la constitution susvisé doit nécessiter au préalable la modification de la constitution en y adjoignant les nouveaux éléments à insérer dans la loi dont il est l’objet.
Sur le fond
Une énumération non limitative des prérogatives du président de la République permet de relever qu’il lui est accordé des pouvoirs exorbitants dans les circonstances susvisées. Il s’y ajoute qu’une volonté de contourner l’Assemblée nationale est clairement affichée à travers les dispositions des articles rajoutés à la loi modifiée. Enfin il faudra signaler une ignorance suspecte du principe de précaution.
Les pouvoirs absolus du président de la République
« Le pouvoir de prendre des mesures visant à assurer le fonctionnement normal des services publics et la protection des populations » est le terme fourre-tout utilisé pour octroyer au président de la République des prérogatives en cas de survenance de situations de catastrophes naturelles ou sanitaires (Article 24 nouveau).
L’énumération dans l’alinéa suivant de quelques prérogatives avec l’utilisation de l’adverbe « notamment » cache des pouvoirs qui pourront bien être justifiés par l’obligation « de prendre des mesures visant à assurer le fonctionnement normal des services publics et la protection des populations » que lui confère l’article 24 nouveau dudit projet de loi.
Le président de la République dispose ainsi, dans une logique interprétative de ses prérogatives sus indiquées, des pouvoirs non limitatives, y compris ceux alloués à l’occasion d’un état d’urgence contrairement à ce qui est présenté dans l’exposé des motifs. La seule différence est qu’avec cette nouvelle loi, il contourne l’Assemblée nationale.
Le terme, « Assurer le fonctionnement normal des services publics et la protection des populations » lui ouvre toutes les brèches régaliennes d’un pouvoir absolu.
L’Assemblée nationale contournée
Contrairement à la Constitution à laquelle cette loi s’adosse, qui prévoit le recours à l’Assemblée nationale douze jours après la signature du décret pour la prorogation de l’état d’urgence (art 69), avec ce projet de loi modifiant la loi n°69-29 du 29 avril 1969, l’Assemblée nationale n’est pas saisie en ce qui concerne le régime d’exception qu’impose les catastrophes naturelles et sanitaires.
Les articles 24 nouveau et 25 nouveau ne font intervenir que le président de la République dans le processus devant conduire à la mise en branle, à l’exécution et au renouvellement du délai d’un régime d’exception en cas de catastrophes naturelles et sanitaires. Il agit d’une manière unilatérale sans l’implication de l’assemblée nationale.
L’ignorance suspecte du principe de précaution
Le principe de précaution signifie qu’un gouvernement adopte des mesures pour prévenir les risques liés à un évènement dont les conséquences ne sont pas maîtrisées. Or, en l’espèce, le délai d’un mois renouvelable une fois prévu dans la loi ne peut pas répondre à une situation de catastrophe non maîtrisée. Avec une durée totale de deux mois maximum, les mesures ne peuvent prendre en compte des situations comme celle d’une pandémie. D’ailleurs l’exemple du COVID-19 est révélateur: l’Assemblée nationale avait prorogé le délai de trois mois. Ce qui ne serait pas possible avec le vote dudit projet de loi.
L’intérêt de faire intervenir une loi est d’apprécier la situation avec les élus du peuples et de fixer un délai raisonnable pour une meilleure prise en charge de la période d’exception. En l’espèce, la voie de la loi est écartée pour réserver l’exclusivité de la décision au président de la République.
Conclusion
Dans ce projet de loi, la volonté d’écarter l’Assemblée nationale du processus de décision pour l’installation d’un régime d’exception est clairement affichée sans que sa pertinence ne soit explicitée.
Il s’agit, par conséquent, d’une réforme qui consacre un recul démocratique dans la logique d’une démocratie représentative et le renforcement des prérogatives d’un président de la République dont les pouvoirs sont déjà assez exorbitants.
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